Fremantle Prison
heritage management plan
February 2019

This report was prepared for the Western Australian Department of Planning,Lands and Heritage by Extent Heritage Pty Ltd and Lovell ChenTABLEOF
CONTENTs
Table of Contents
1.

Introduction................................................................................................................. 6

1.1 Preamble.................................................................................................................................... 6
1.2 Methodology............................................................................................................................... 6
1.3 Report structure.......................................................................................................................... 6
1.4 Outstanding Universal Value...................................................................................................... 8
1.5 Authorship.................................................................................................................................. 8
1.6 Acknowledgements.................................................................................................................... 8
1.7 Rankings..................................................................................................................................... 9
1.8 Terminology: The Burra Charter................................................................................................. 92.

Site identification...................................................................................................... 11

2.1 Location.................................................................................................................................... 11
2.2 Description of area................................................................................................................... 13
3.

Heritage status.......................................................................................................... 1 8

3.1 Listings........................................................................................................................ 18
3.2 Assessed heritage values and statement of significance................................................... 19
4.

Historic context......................................................................................................... 3 3

4.1 The convict period (1850–1886)............................................................................................... 33
4.2 Colonial/early state period (1886–1918)................................................................................... 37
4.3 Post–World War I (1918–present)............................................................................................ 40
5.

Overarching policies................................................................................................. 4 3

5.1 Outstanding Universal Value ................................................................................................... 44
5.2 Aboriginal Cultural Heritage ..................................................................................................... 47
5.3 Archaeology ............................................................................................................................. 49
5.4 Community and Stakeholder Engagement .............................................................................. 52
5.5 Governance and Finance ........................................................................................................ 54
5.6 Keeping a Record ................................................................................................................... 57
5.7 Movable Heritage .................................................................................................................... 60
5.8 New Development ................................................................................................................... 63

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TABLE OF CONTENTs
5.9 Physical Conservation ............................................................................................................. 67
5.10 Setting ................................................................................................................................... 70
5.11 Telling the Story .................................................................................................................... 74
6.

Specific policy areas and actions............................................................................. 7 8

6.1 Accessibility ............................................................................................................................. 79
6.2 Carpentry ................................................................................................................................. 80
6.3 Compatible Uses ..................................................................................................................... 81
6.4 Concrete .................................................................................................................................. 82
6.5 Environmental Pressures ........................................................................................................ 83
6.6 Existing Plant ........................................................................................................................... 84
6.7 Graffiti ...................................................................................................................................... 85
6.8 Hazardous Materials ................................................................................................................ 86
6.9 Historic Signage ...................................................................................................................... 87
6.10 Ironmongery .......................................................................................................................... 88
6.11 Landscaping .......................................................................................................................... 89
6.12 Lighting .................................................................................................................................. 90
6.13 Masonry and Cement ............................................................................................................ 91
6.14 Murals .................................................................................................................................... 93
6.15 Other Hazards ....................................................................................................................... 94
6.16 Roofing .................................................................................................................................. 95
6.17 Services ................................................................................................................................. 96
6.18 Surfaces ................................................................................................................................ 97
6.19 Visitation Management .......................................................................................................... 98
7.

Structures and spaces: conservation principles and actions................................. 9 9

7.1 East Terrace (East Bank) and Reservoir, Tunnels and Pumping Station .............................. 100
7.2 East Workshops.......................................................................................................................102

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TABLE OF CONTENTs
7.3 Exercise Yards ........................................................................................................................104
7.4 Fairbairn Street Ramp ........................................................................................................... 106
7.5 Female Division ..................................................................................................................... 108
7.6 The Gatehouse and Entry Complex ...................................................................................... 110
7.7 Hampton Road and Reserve.................................................................................................. 113
7.8 Hospital .................................................................................................................................. 115
7.9 Main Cell Block ...................................................................................................................... 117
7.10 New Division ........................................................................................................................ 119
7.11 Parade Ground .................................................................................................................... 121
7.12 Perimeter Walls ................................................................................................................... 123
7.13 Refractory Block .................................................................................................................. 125
7.14 South Knoll, Prison Industries and Southern Area .............................................................. 127
7.15 Sterile Zones ....................................................................................................................... 129
7.16 The Knowle .......................................................................................................................... 130
7.17 The Terrace ......................................................................................................................... 131
7.18 Warders’ Cottages ............................................................................................................... 135
7.19 Watch Towers and Elevated Walkways ............................................................................... 136
7.20 West Workshops ................................................................................................................. 138
Appendix A – Relevant heritage listings....................................................................... 1 40
Appendix B – Contributory views................................................................................. 1 50
Appendix C – References and select bibliography.. ..................................................... 1 60

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introduction

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01
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1. Introduction
1.1 Preamble
This Heritage Management Plan (HMP) has been prepared to meet therequirements of the Australian Environment Protection and Biodiversity
Conservation Act 1999 (EPBC Act) in relation to places listed on
the World Heritage List (WHL) and National Heritage List (NHL).
Specifically, the HMP addresses the requirements of a management
plan pursuant to Schedules 5, 5A, and 5B of the Environment Protection
and Biodiversity Conservation Regulations 2000.

The authors of the HMP undertook a number of site visits between
January and May 2018 to inform their policies and recommendations.
The HMP has also been prepared in accordance with Schedules 5, 5A,
and 5B of the Environment Protection and Biodiversity Conservation
Regulations 2000. The Schedules emphasise that a HMP must include
a number of critical elements, including the following elements (whichhave been paraphrased):This HMP sits at the top of Fremantle Prison’s overarching management
framework. Where there is an inconsistency between the HMP and
those other documents within that framework this HMP will prevail tothe extent of the inconsistency.

•

a clear statement demonstrating an understanding of thenature and level of significance that the place embodies  and how the place embodies different kinds of significance(its different ‘values’)

This HMP is designed as a high-level management tool. It equips the
managers of Fremantle Prison with a policy framework within which
management decisions should be made. It includes recommendations
for the preparation of ‘second tier’ management documents in the future(for example, Conservation Management Strategies). It is envisaged
that those documents will contain more specific management guidancefor discrete locations and activities. This HMP also contains policy andguidance to inform future masterplanning for Fremantle Prison.

•a clear statement demonstrating an understanding of thelegislative processes that the HMP must operate within•a clear description of the place so that managers understandprecisely what they must conserve and where•a mechanism for the early identification of ‘risks’ to identified
heritage values and the constraints on future actions thatthese risks impose; as a counterpoint, the HMP may identify
opportunities (e.g. for new development) arising out of theplace’s heritage values•

a clear means of identifying and assessing potential adverse
impacts on the assessed heritage values of the place arisingfrom the prevailing environment and/or proposed actions•

recommendations for timely ‘actions’ necessary to theconservation of the place•mechanisms for monitoring the condition of the place andfor reporting on changes to its condition

Fremantle Prison is listed on both the WHL and NHL for embodying a
range of heritage values. It is also included on the Western AustralianState Register of Heritage Places (SRHP) for meeting a broader rangeof heritage assessment criteria. This poses particular challenges forthe managers of Fremantle Prison who must balance the imperative
to conserve the place’s OUV against the conservation needs of its
National Heritage values and state significance. The HMP avoids theapplication of a universal ‘rule’ for decision-making in this environment.
Rather, it assumes that conservation management decisions will need
to be made on a case-by-case basis, balancing the co-existing heritage
values.
It is envisaged that the HMP will be reviewed five years from the date ofits adoption by Fremantle Prison.

1.2 Methodology
The methodology used in the preparation of this HMP is consistent
with the principles and definitions contained in the The Burra Charter:
The Australia ICOMOS Charter for Places of Cultural Significance (theBurra Charter). In particular, it observes the principle that the nature andlevel of a place’s heritage significance will determine the appropriate
management response.
This HMP is based on consultation with Fremantle Prison personnel andwith ‘external’ stakeholders from the WA Department of Planning, Lands
and Heritage and the WA Heritage Council. Further, extensive andongoing community consultation has been undertaken by Fremantle
Prison. This has included a combination of online data collection andface-to-face community consultation regarding the ways in which thecommunity (widely defined) values Fremantle Prison and would like to
see it used and enhanced. These data have also informed the content
of this HMP.
A draft of the HMP was exhibited for public comment. The content of the
HMP reflects the sentiments expressed by the bulk of the respondents
concerning community connection and aspirations for the place.
FREMANTLE PRISON // Heritage Management Plan

1.3 Report structure
Rather than present the above matters in separate sections – which
requires users to navigate between different parts of a lengthy report– this HMP consolidates disparate relevant information around broad
areas of management concern. These are presented as ‘Overarching
Policy Areas’ which comprise the following:•

Outstanding Universal Value•

Aboriginal cultural heritage•archaeology•

community engagement•

governance and finance•keeping a record•

movable heritage•

new development•

physical conservation•

setting•‘telling the story’ (heritage interpretation)

With the exception of the Overarching Policy on Outstanding Universal
Value, the overarching policy areas are presented in alphabetical order.
Extent Heritage / Lovell Chen // 6

The order does not denote different levels of importance or priority(except for the Overarching Policy on Outstanding Universal Value),
because the appropriate management of Fremantle Prison demands aholistic approach to conservation.
For each overarching policy area clear and concise guidance is provided
with respect to:•

management objectives•

risks to assessed heritage values•

the statutory obligations•

non-statutory obligations•

constraints arising from significance•opportunities arising from significance•

Guidelines based on physical locations (termed herein‘structures and spaces’). It is envisaged that the ‘Structures
and Spaces Conservation Principles and Actions’ will be
particularly useful in future masterplanning, especiallyin identifying locations suitable for new development andadaptive re-use. They include both guiding principles andmore detailed actions for each ‘structure and space’.

The content and format of the report, as described above, meets therequirements of the EPBC Regulations.
It also lends itself to the digital delivery of the data, which is an objectiveof Fremantle Prison.

Each overarching policy area is then provided with:•

relevant policies to guide decision-making•

specific actions necessary to the implementation of thosepolicies

It is envisaged that when managers of Fremantle Prison are required
to carry out an action they will consult the text within the relevant
overarching policy area/s and act as follows:•form a view about the objectives that their decision should
assist to attain•proceed with a clear understanding of the risks to be
avoided and the opportunities that are available•

be equipped to satisfy statutory and non-statutory
requirements

Further, users will have ready to hand the policies that will govern theirdecision-making in relation to those overarching areas.
The HMP in this form provides the managers of Fremantle Prison with aclear set of guidelines designed to:•underpin heritage impact assessments for proposed works•

assist with proactive heritage conservation

Each ‘Overarching Policy’ concludes with a series of recommended‘Actions’. Fremantle Prison is subject to competing demands on its
limited resources; the specific actions identified for each policy area
are usually intended to be read as desirable actions to be implemented
when resources allow and having regard to the full range of conservation
imperatives. Where essential and/or urgent specific actions have been
identified (as opposed to ‘desirable’ ones), this is explicitly noted in the
HMP.
In addition to the overarching policy-based division of text describedabove, this HMP also includes:•

Guidelines with respect to a range of more specific activities,
particularly the kind that are undertaken during physicalconservation works and the day-to-day maintenance of theplace. It is envisaged that this more specific policy guidance
will be of particular use to personnel engaged in building
maintenance and landscape management. Importantly,
each of the specific policy areas refers the user back to therelevant overarching policies.

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1.4 Outstanding Universal Value
This HMP recognises that Fremantle Prison’s heritage values requirea holistic and inclusive approach to its conservation. Fremantle Prison
is part of the ‘Australian Convict Sites World Heritage Property’ andtherefore management decisions that adversely impact its heritage
values may impact the OUV of the Australian Convict Sites as a whole.
As a reflection of the importance of managing the OUV of Fremantle
Prison relative to the other co-existing values at the place, a separate‘Overarching Policy’ on OUV has been prepared. The policy is placed
first in Section 5, in a list of Overarching Policies that are otherwise inalphabetical order.

Anne Arnold

Chair, Heritage Council of Western Australia.

Bill Bowker

Property Manager, Fremantle Prison.

Olimpia Cullity

Head Curator, Fremantle Prison.

Maia Frewer

Visitor Services Manager, Fremantle Prison.

Graeme Gammie

Assistant Director General, Heritage

That Overarching Policy emphasises the importance of the AustralianConvict Sites Steering Committee’s Strategic Plan 2017–2020 which
includes the following objectives:

Karen Jackson•

to collaboratively manage the Property’s OUV•

to conserve and protect the Property’s OUV for current andfuture generations•

to present and interpret the Property’s OUV, emphasisingeach site’s contribution to the whole•

to give the Property a function in the life of the community

Services, WA Department of Planning,Lands and Heritage.
Principal Heritage Officer, Heritage
Services, WA Department of Planning,Lands and Heritage.
Alan Kelsall

Heritage Coordinator, City of Fremantle.

Paula Nelson

Director, Fremantle Prison.

Penny O’Connor

Director, Heritage Assessment &Registration, Heritage Services, WA
Department of Planning, Lands and Heritage.

1.5 Authorship

Dr Brad Pettitt

Mayor, City of Fremantle.

This HMP was prepared by Extent Heritage Pty Ltd and Lovell Chen for
the Western Australian Department of Planning, Lands and Heritage.

Adelyn Siew

Director Heritage Development – Heritage

The following personnel co-authored the text:

Services, WA Department of Planning,Lands and Heritage.

Andrew Sneddon

Associate Director, Extent Heritage

Anita Brady

Principal – Heritage, Lovell Chen

Tristan Bergin

Heritage Advisor, Extent Heritage

Felicia Widjaja

Graphic Designer, Extent Heritage

Dan Blake

Principal – Conservation, Lovell Chen

Services, WA Department of Planning,

Libby Blamey

Senior Associate, Lovell Chen

Lands and Heritage.

1.6 Acknowledgements
Luke Donegan – Manager, Heritage Conservation, Fremantle Prison –worked with the Extent Heritage / Lovell Chen team in the preparationof this HMP. The HMP also benefited greatly from Workshops involving
Fremantle Prison personnel and ‘external’ stakeholders including (inalphabetical order):Paul Trotman

Senior Planning Project Officer, City ofFremantle.

Harriet Wyatt

Director Heritage Practice, Heritage

This HMP was preceded by several earlier management documents.
The following have been particularly useful to the preparation of thisreport:•‘Fremantle Prison. A Policy for its Conservation’ (1998),
report prepared for the WA Department of Contract &Management Services and the Fremantle Prison Trust
Advisory Committee, by James Semple Kerr, revised edition.

•‘Fremantle Prison Conservation Management Plan’(February 2010), report prepared for the WA Department ofTreasury and Finance by Palassis Architects with Godden
Mackay Logan.

•‘Fremantle Prison Heritage Management Plan’ (March2013), report prepared by Luke Donegan for the Heritage
Conservation Branch of Fremantle Prison.

The content of this document both synthesises and augments thisearlier high-quality work.
The following images courtesy of Fremantle Prison: cover photograph;section divider photographs for Sections 5.0 and 6.0; bannerphotographs (Section 7.0) for ‘Gatehouse and Entry Complex’, ‘Main
Cell Block’ and ‘Watch Towers and Elevated Walkways’.
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1.7 Rankings

1.8 Terminology: The BURRA CHARTER

The rankings used in this report observe the following hierarchy ofsignificance:

The terminology in this report follows definitions presented in the Burra
Charter, Article 1, that provides the following definitions:

•

•

•

•

Exceptional – Buildings, fabric, spaces and elements ofexceptional significance are predominantly associated withthe convict-era construction, use and operation of Fremantle
Prison. This era, which is highly valued, extended from
1851–53, when the earliest convict-related prison works
commenced; through to 1886 when the Prison ceased to
be a Convict Establishment. This period encompassed theopening of the Prison in 1855 and the cessation of convict
transportation to the colony of Western Australia in 1868.
Most of the elements of exceptional significance also have
OUV, as recognised in their inclusion in the World Heritage
Listing.

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

Considerable – Buildings, fabric, spaces and elements ofconsiderable significance are predominantly associatedwith the post-convict era of colonial and early stateadministration, of the period 1886 to 1918. Several majorbuilding programmes and developments occurred at the
Prison in this period. Physical changes were also madeto accommodate innovations in prisoner recreation,
management and security, including the introduction of new
systems of prisoner classification.

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

Some – Buildings, fabric, spaces and elements of somesignificance include some pre–World War II elements,
albeit modified or of more limited distinction than earlier
elements of the Prison; and post–World War II elements.
They also include items associated with the prisoner
experience; recon­structed elements; and elements added
throughout the twentieth century which demonstrateongoing developments in prisoner recreation, management
and security.
Little or No – Buildings, fabric, spaces and elements of little
or no significance are mostly modern elements. While they
may provide evidence of later prison works and activities,
they typically date from the latest period of prison operations,are elements of utility, and are constructed of commonplace
fabric and materials. These elements are typically of little
or no heritage distinction, and in some cases are intrusive.

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 orgroups.

Conservation means all the processes of looking after a place so to
retain its cultural significance.
Maintenance means the continuous protective care of a place, and its
setting. Maintenance is to be distinguished from repair which involves
restoration or reconstruction.
Preservation means maintaining a place in its existing state andretarding deterioration.
Restoration means returning a place to a known earlier state byremoving accretions or by reassembling existing elements without the
introduction of new material.
Reconstruction means returning a place to a known earlier state andis distinguished from restoration by the introduction of new material.
Adaptation means changing a place to suit the existing use or a
proposed use.
Use means the functions of a place, including the activities andtraditional and customary practices that may occur at the place or are
dependent on the place.
Compatible use means a use that respects the cultural significanceof a place. Such a use involves no, or minimal, impact on cultural
significance.
Setting means the immediate and extended environment of a placethat is part of or contributes to its cultural significance and distinctive
character.
Related place means a place that contributes to the cultural significanceof another place.

2.

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site identification

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02

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2. Site identification
2.1 Location
Fremantle Prison is located at 1 The Terrace, Fremantle, Western
Australia (Figure 1). It comprises Crown Land Reserve 24042. The
Prison site extends for approximately six hectares, and is bounded by
Hampton Road to the east, Fothergill Street to the south, The Terrace tothe west and Knutsford Street to the north (Figures 2 and 3).

Northern Territory

Queensland

Norfolk Island
1

Western Australia

South Australia

New South Wales
10

11

Legend
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.

Kingston and Arthur’s Vale Historic Area (KAVHA) (1788–1814 and 1824–55)
Old Government House and Domain (1788–1856)
Hyde Park Barracks (1819–48)
Cockatoo Island Convict Site (1839–69)
Brickendon-Woolmers Estates (1820–50s)
Darlington Probation Station (1825–32, 1842–50)
Port Arthur Historic Site (1830–77)
Coal Mines Historic Site (1833–48)
Cascades Female Factory (1828–56)
Old Great North Road (1828–35)
Fremantle Prison (1852–86)

2Australian
Capital Territory

4
3

Victoria

5

Tasmania

79

6
8

Figure 1. Map of Australia showing the eleven convict sites comprising the serial sites inscription on the World Heritage List. Fremantle Prison is number 11.
(Source: ‘Australia Convict Sites World Heritage Nomination, 2008’).

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Figure 2. Aerial image of Fremantle showing Fremantle Prison highlighted. North is to the top of the image.

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Figure 3. Map showing Fremantle Prison within the City of Fremantle (Source: http://whc.unesco.org/en/list/1306). The area inscribed on the World Heritage List is
shaded green and a ‘buffer zone’ around it is indicated with an orange shading.

2.2 Description of area
Plans of Fremantle Prison are presented in Figures 4, 5, and 6, showing
the place divided according to those zones that have historically beenused for management purposes, and with individual buildings identified.
This HMP adopts slightly different divisions in the Structures andSpaces Conservation Principles and Actions in Section 7. For example,
it separates the Exercise Yards from the Main Cell Block and the West
Workshops from the Female Division for management purposes.
Fremantle Prison (originally the ‘Fremantle Convict Establishment’) wasestablished as a convict depot by the British government following adecision to transport convicts to Western Australia. It was designed by
the first Comptroller-General, Edmund Henderson, and built in the period
1852 to 1859. When the convict system officially ended in Western
Australia in 1868, the Prison was taken over by the colonial governmentand continued to operate as a state prison until its closure in 1991.
The Prison occupies high ground to the east of old Fremantle. Whilestill elevated, the land was substantially levelled to build the Prison, withthe works resulting in terrace formations on the west and east sides(respectively the Terrace outside the Prison, and the East Bank within
the Prison). Stone quarried from the excavation was used in the Prison’sconstruction, with the complex comprising mostly limestone buildings
within the confines of the limestone perimeter wall. Outside the wall on
the west side, Prison-related buildings are set out to either side of the
Prison’s main entry which in turn is centrally located on the Terrace. A
FREMANTLE PRISON // Heritage Management Planconvict constructed Ramp, known as the Fairbairn Street Ramp, leads
up from lower ground to the west to the Prison’s entry.
During 136 years of the continuous operations numerous adaptations
and extensions were made to the existing buildings, and new structures
were built.
An understanding of the sequence of the development of Fremantle
Prison is essential to the management of its co-existing heritage
values. Fremantle Prison has been included on the WHL for its OUVrelating to the convict era. The conservation of the OUV is a preeminentconsideration in the management of Fremantle Prison.
The convict-built structures are as follows (Figure 6):•

A limestone perimeter wall, generally 6 m high, which bounds
the Prison on all four sides.

•

The Main Cell Block which is the dominant building locatedcentrally within the complex, being 150 m long and fourstories high. Seven separate exercise yards are located tothe east side (rear) of the block. The single storey Refractory
Block is centrally sited to the east side of the Main Cell Block,with the Chapel (also known as the Anglican or ProtestantChapel) also centrally sited in a prominent projecting wingon the west side of the block.

•

The Parade Ground, which acts as a forecourt to the Main
Cell Block.
Extent Heritage / Lovell Chen // 13

•The Entry Complex set out around the main entrance tothe Prison, with the Gatehouse being central and prominent
within this group. The Entry Complex also includes military
and warders’ guardhouses.

•

The Hospital located in the north-east corner of the Prison,on elevated ground on the upper East Bank.

•

A group of workshops, known as the East Workshops andincorporating carpenters and blacksmiths workshops, sitedin the south-east of the Prison.

•

Service buildings including the historic bakehouse andwash house (later incorporated into the Female Division).

•

Residences abutting the west perimeter wall on the Terrace,and sited north and south of the Gatehouse and Main Entry.
These historically accommodated Prison officers and staff:››

convict warder’s guardroom (at 2 The Terrace,
although the subject building is not the original
building)››

chaplain’s residence (8 The Terrace)››

superintendent’s residence (10 The Terrace)››

gatekeeper’s residence (12 The Terrace)››

deputy superintendent’s residence (14 The Terrace)››

magistrate’s residence (16 The Terrace)››

surgeon’s residence (18 The Terrace) and stables•

The Fairbairn Street Ramp, which extends westerly fromThe Terrace down to Henderson Street.

•

Three groups of Warders’ Cottages in Henderson Street.

•

The Knowle, a former residence of the Comptroller-Generalof convicts, located 150 m to the south-west of Fremantle
Prison.

•special handling unit (Main Cell Block)•

exercise yard adaptations including shelters•

Watch Towers (guard towers) and associated elevatedWalkways (catwalks)

In addition to the Exercise Yards, there are various open but walled
spaces, some of which are known as ‘sterile zones’. These include
spaces between buildings, and adjacent to the perimeter wall.

3.

Those Prison buildings and structures that post-date the convict era
include:•the Female Division in the north-west corner, which was
expanded from the original convict service buildings, andassociated exercise yard•

the ‘New Division’ to the north of the Main Cell Block, andassociated exercise yard•West Workshops north of the Entry Complex•

East Workshops extensions•

East Reservoir•

Pump House•

gallows (east side of Main Cell Block)•

kitchen extensions to Main Cell Block and associated boiler
room with chimney stack•

Entry Complex additions:››prisoner reception››

armoury (now Convict Café)•

4 and 6 The Terrace•

helmets, cement industries and shower block (Prison
Industries)

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R

Figure 4. Aerial image of Fremantle Prison illustrating its division by zones for management purposes.
A. East Bank
B. East Workshops
C. Exercise Yards
D. Female Division
E. Gatehouse and Entry Complex

F. Hampton Road Reserve
G. Hospital
H. Main Cell Block
I. Refractory Block
J. New Division

K. Parade Ground
L. Perimeter Walls*
M. South Knoll
N. Sterile Zones*
O. The Terrace

P. Watchtowers and ElevatedWalkways*
Q. West Workshops
R. Gallows*See detailed plans in Section 7

Figure 5. Fremantle Prison showing main features.
1.
2.
3.
4.
5.
6.
7.
8.

Gatehouse
Entry Complex
2 The Terrace
4 & 6 The Terrace
8 The Terrace
10 The Terrace
12 The Terrace
14 The Terrace

FREMANTLE PRISON // Heritage Management Plan

9. 16 The Terrace
10. 18 The Terrace
11. 18 The Terrace – Stables
12. Contact Visits
13. Non-contact Visits
14. Main Cell Block Forecourt
15. Chapel
16. Main Cell Block

17. Refractory Cell Block
18. 1 Division Yard
19. 2 Division Yard
20. 3 Division Yard
21. 4 Division Yard
22. Female Division
23. New Division
24. Hospital

25. Eastern Reservoir
26. Pump House and Tunnels
27. East Workshops
28. Showers
29. Southern Reservoir
30. Old Canteen (Toilets)
31. West Workshops

Extent Heritage / Lovell Chen // 15

Figure 6. Plan showing the main convict-built elements at Fremantle Prison. This plan is presented at a broad scale only. Note that some of these strcutures also include
alterations and additions that date to after the convict era. Also, discrete pieces of convict-era fabric may exist in other places.

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HERITAGE STATUS

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03

Extent Heritage / Lovell Chen // 17

3. Heritage status
3.1 Listings
The following table summarises the heritage listings relevant toFremantle Prison.

Register/Listing

Item
Listed(Y/N)

Item
NumberItem Name

Statutory Register
World Heritage List

Yes

Australian Convict Sites Serial Listing-

National Heritage List

Yes

Fremantle Prison (Former), including Fairbairn Street
Ramp and Warders’ Cottages

105762

Commonwealth Heritage List

No

-

-

WA State Register of Heritage Places

Yes

Fremantle Prison (but not including Ramp); Warder’s
Cottages; The Knowle.

1014; 24674;
3226.

WA Register of Places and Objects for
Aboriginal Heritage

No

-

-

Local Planning Provisions

Yes

Regional Reserve, includes the Prison and The Knowle.
Part of West End Conservation Area (Note: the WestEnd Conservation Area Policy does not reference State
Heritage Office document ‘P25225 West End, Fremantle’).
Approvals through WA Planning Commission.

Non-Statutory Register
Classified by the National Trust (WA)Yes

Plans showing those parts of Fremantle Prison that are listed on
the World Heritage List, National Heritage List and State Register of
Heritage Places.

Figure 7. Detail of Figure 3 above showing the boundaries of the Fremantle Prison World Heritage Listed area (shaded green) and the WHL buffer zone (shaded orange).
FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 18

Figure 8. Plan showing the boundaries of the Fremantle Prison listed area on the National Heritage List (green hatched area). Note that it captures the Fairbairn Street
Ramp and Henderson Street Warders’ Cottages (Source: http://www.environment.gov.au/heritage/places/national/fremantle-Prison).

Figure 9. Plan showing the boundaries of the Fremantle Prison listed area on the WA State Register of Heritage Places. The Henderson Street Warders’ Cottages and
The Knowle (not indicated here) are also listed on the SRHP, but not the Fairbairn Street Ramp. (Source: http://inherit.stateheritage.wa.gov.au/Public/Inventory/
Details/ca161bd9-4671-41ea-96a0-82ef1918b077).

3.2 Assessed heritage values and statementof significance3.2.1 Statement of Authenticity and Integrity
Fremantle Prison must be managed having regard to its ‘authenticity’.
The Operational Guidelines for the Implementation of the World
Heritage Convention (2017) defines ‘authenticity’ by reference to how‘credible or truthful’ the different sources of information about a place’s
heritage values are (Article 80). The Operational Guidelines states that
(Article 82):
properties may be understood to meet the conditions of authenticity
if their cultural values … are truthfully and credibly expressed
FREMANTLE PRISON // Heritage Management Plan

through a variety of attributes including:•form and design•materials and substance•use and function•

traditions, techniques and management systems•

location and setting•

language, and other forms of intangible heritage•

spirit and feeling•other internal and external factors

Extent Heritage / Lovell Chen // 19

Relatedly, the Operational Guidelines defines ‘integrity’ as a ‘measureof the wholeness and intactness’ of a place’s cultural heritage and its
attributes (Article 88).

3.2.4 Significance as the determinant of management
responses

Fremantle Prison was used continuously as a prison from the convict
era through to 1991. Since 1991, Fremantle Prison has been carefully
conserved to ensure that its fabric is maintained in good condition andinappropriate changes to its form, fabric, setting and evocative characterare avoided.

Article 6.1 of the Burra Charter describes ‘The Burra Charter Process’.
It states:

As a result, Fremantle Prison has exceptional integrity and is highly
authentic. This is reflected in its inscription on the World Heritage Listfor its convict era values. To maintain it in this state, the close nexus
between the physical condition of its form and fabric, and its heritage
values, must be understood and respected. These considerations haveinformed the policies, principles and actions provided in this HMP.

3.2.2 Co-existing cultural values
This HMP is responsive to Article 13 of the Burra Charter, which states:
Co-existence of cultural values should always be recognised,
respected and encouraged. This is especially important in cases
where they conflict.
In other words, this HMP recognises that Fremantle Prison embodies
a range of heritage values at different levels of significance. It
envisages that these can usually co-exist, and that it will ordinarily bepossible to conserve Fremantle Prison’s OUV without adverse impact
on its National Heritage values and state significance. However, in
those circumstances where there is a clear conflict of conservation
requirements, the conservation of Fremantle Prison’s OUV will prevail.

The cultural significance of a place and other issues affecting
its future are best understood by a sequence of collecting andanalysing information before making decisions. Understanding
cultural significance comes first, then development of policy andfinally management of the place in accordance with the policy. Thisis the Burra Charter Process.
Article 6.2 of the Burra Charter states:
Policy for managing a place must be based on an understanding of
its cultural significance.
In other words, the heritage values of a place determine the appropriate
management response. Therefore, it is essential that the reasons for aplace’s heritage listing are understood.
The policies and actions presented in this HMP derive directly from its
assessed levels of significance and its identified heritage values.
Fremantle Prison is inscribed on the WHL for satisfying Criteria (iv) and(vi). Specifically (quoting the WHL Statement of Outstanding Universal
Value):•

Criterion (iv): The Australian convict sites constitute an
outstanding example of the way in which conventional forced
labour and national prison systems were transformed, inmajor European nations in the 18th and 19th centuries, intoa system of deportation and forced labour forming part ofthe British Empire’s vast colonial project. They illustrate thevariety of the creation of penal colonies to serve the many
material needs created by the development of a new territory.
They bear witness to a penitentiary system which had many
objectives, ranging from severe punishment used as adeterrent to forced labour for men, women and children, andthe rehabilitation of the convicts through labour and discipline.

•

Criterion (vi): The transportation of criminals, delinquents,
and political prisoners to colonial lands by the great nation
states between the 18th and 20th centuries is an important
aspect of human history, especially with regard to its penal,
political and colonial dimensions. The Australian convict
settlements provide a particularly complete example of thishistory and the associated symbolic values derived fromdiscussions in modern and contemporary European society.
They illustrate an active phase in the occupation of colonial
lands to the detriment of the Aboriginal peoples, and theprocess of creating a colonial population of European origin
through the dialectic of punishment and transportation
followed by forced labour and social rehabilitation to theeventual social integration of convicts as settlers.

3.2.3 Fremantle Prison as part of a cultural landscapeThis HMP adopts a holistic approach to understanding and managing‘Fremantle Prison’. It regards the Prison as part of a wider cultural landscapethat includes physically disparate but historically and functionally related
locations, including the following places from the convict era:•

Fremantle Prison•

The Knowle•

the Warders’ Cottages on Henderson Street•

the Fairbairn Street Ramp•

the former Fremantle Lunatic Asylum•

the Rottnest Island Prison•

the other convict sites included on the WHL AustralianConvict Sites listing

Similarly, Fremantle Prison is located on the eastern edge of the highly
significant Fremantle CBD. The Prison and the City of Fremantle
comprise two parts of a broader nineteenth and early twentiethcentury cultural landscape that requires a collaborative approach to
management and conservation. Given the Prison’s status on the WHL
the management of its OUV will be a preeminent consideration in sucha collaborative management approach.

FREMANTLE PRISON // Heritage Management Plan

In developing management responses to Fremantle Prison’s OUV this
HMP has had regard to the following elements of the Statement of
Outstanding Universal Value:•

Although Fremantle Prison embodies a range of heritage
values, it has been inscribed on the WHL for its convict-era
heritage values not those from later periods of use.

•Those elements of Fremantle Prison that illustrate convictera coercion, austerity, isolation and labour are particularly
important, as are elements that illustrate the adaptive
responses of the convicts.

Extent Heritage / Lovell Chen // 20•Fremantle Prison was part of a global movement and should
be managed having regard to the other Australian convict
places included in the serial listing on the WHL.

•

Fremantle Prison played an important role in providing thematerial needs of the fledgling settlements of Perth andFremantle. It comprises part of a broader cultural landscapethat demands a holistic approach to its management.

•

Fremantle Prison has symbolic value.

•

Managers must be alert to the ways in which form andfabric demonstrate the former convict-era functions.

Section 5 of this HMP includes an Overarching Policy on the Prison’s OUVthat responds directly to these matters. However, all of the Overarching
Policies ultimately derive from and respond to the Prison’s OUV.
A lengthy Statement of Heritage Values for Fremantle Prison was
prepared for its inclusion on the NHL. It is reproduced in full inAppendix A. The Statement of Heritage Values prepared for the NHL
has many similarities with the Statement of Outstanding Universal Value
presented above.
Fremantle Prison is also listed on the WA Register of Heritage Places,
and the full Statement of Significance is included at Appendix A. The
Statement of OUV, Statement of Heritage Values from the NHL, andthe Statement of Significance from the WA State Register of Heritage
Places are mutually supporting and share many features. The state
heritage citation also emphasises the historical and social significanceof Fremantle Prison and expands on its aesthetic significance withparticular implications for new development at or near the Prison.
In the following two tables, selected extracts have been reproduced
from the NHL Statement of Heritage Values and the SRHP Statementof Significance. They have been presented in a ‘chain of reasoning’ thatlinks those extracts with the management implications that they gave riseto and the policy responses in this HMP. Key words and phrases thathave impacted policy development have been highlighted.
Where the Statement of Significance repeats certain aspects ofFremantle Prison’s significance, they are deliberately repeated below
as a way of emphasising these crucial matters in management terms.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 21Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Fremantle Prison (1852–1859)

Those parts of Fremantle Prison•

OUV

is of heritage value to the nationthat embody its convict history•

Aboriginal cultural heritage

as an outstanding example ofare exceptionally important to its•

Archaeology

a nineteenth century convict

heritage values. This principle will

establishment which continued to•

Movable heritage

guide the prioritisation of heritage

be used as a prison until 1991.

•

Physical conservation

management actions. However,•

Telling the story

Fremantle Prison is multi-layered
and post-convict elements of its
history are also important.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The system is an example of a

For many Australians Fremantle•

OUV

nineteenth century European

Prison is symbolic of our history.

•colonial strategy of exporting

However, it also has social

Community & stakeholder
engagement

prisoners and using their labour

significance. Where possible•

Telling the story

to establish a colonial economy.

Fremantle Prison should be

In Australia, this strategy had amanaged in a participatory

significant impact on early colonial

manner. Its social and historicaldevelopment and on the overallsignificance impacts the nature

Australian psyche.

of public engagement, heritage
interpretation and the prioritisationof conservation works.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Fremantle Prison, in conjunction

Fremantle Prison should be•

OUVwith other Australian convict

managed in liaison with the•sites,  exemplifies a worldwide

Australian Convict Sites Steering

Community & stakeholder
engagement

process of colonial settlement.

Committee and having regard to the•Governance and finance

Australian Convict Sites Strategic
Plan 2017–2020.

The NHL States:

This means that:

Therefore, consider these
Overarching Policies:

Its history reflects the changes

Fremantle Prison was not a static•

OUV

in Australian and British views

environment. Those parts that•

Archaeology

about the use of forced labour as aillustrate the evolution of the prison•

Keeping a record

basis for empire.

system are important.

•

Movable heritage•

Telling the story

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 22

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Fremantle Prison with its highDetailed records of changes made•

OUV

degree of integrity clearly

to the Prison must be maintained.

•

Keeping a record

demonstrates in its fabric many

There are significant constraints•

New development

aspects of penal design andon the removal of existing fabric•Physical conservation

reform that developed in Britain in

and introduction of new built form•

Setting

the nineteenth century.

at the Prison. This is especiallythe case where change would
impact the sense of the Prison’s‘completeness’. The site’s‘integrity’ and ‘authenticity’ must be
respected. Significant constraints
will apply to new development(including demolition) inside andwithin the vicinity of the Prison interms of bulk, scale, height, fabricand colour.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The fabric of Main Cell Block,New development within the•

OUVPerimeter Walls, the Henderson

Parade Ground will need to be•Street Warders’ Cottages andsympathetic to the Main Cell

Community & stakeholder
engagement

three of the cottages on the

Block’s façade.

•New development

Fremantle Prison should be•

Physical conservation

managed as part of a cultural•

Setting

Terrace are little altered from theimperial convict era.

landscape.
It is critical to manage the Prison’s
setting appropriately. In particular,significant views and vistas willneed to be respected – both interior
and exterior.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 23

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The National Heritage values are

It is critical to manage the Prison’s•

OUV

expressed through the elements

setting appropriately. In particular,•

Keeping a record

comprising the Fremantle Prison

significant views and vistas will•

New development

convict era complex including

need to be respected – both interior•

Physical conservation

the 1859 Main Cell Block, chapeland exterior.

•

Setting

and wards, yards and refractory
cells; perimeter walls, gatehouse complex and prison officer
residences on The Terrace; service
buildings and hospital; southeastern Workshops; Fairbairn
Street Ramp access tramway, andConvict-era fabric needs to be
managed with a high level ofcare and based on expert advice.
Consider the removal of later
intrusive additions that impede areading of the convict era featuresat the place.

the three terraces built as Warders’
Cottages, at 7–17 Henderson
Street, 19–29 Henderson Street
and 31–41 Henderson Street.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Other elements which express

The place is multi-layered and post-•

OUV

the National Heritage values

convict elements of its history are•include the Western Workshops

also an important part of its heritage

Community & stakeholder
engagement(1900); New Division (1907); andvalues. This will require a balancing•

Keeping a record

conversion of a service buildingof conservation needs.

•

New development

to the Female Division and the•

Physical conservation

Eastern Range (1889–1909).

•

Setting•

Telling the story

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The Prison has outstanding

Detailed records of changes made•OUV

heritage value to the nation as anto the Prison must be maintained.

•

exceptionally intact architectural

The place is multi-layered and post-

Community & stakeholder
engagement•

Keeping a record

also an important part of its heritage•

New development

values. This will require a balancing•

Physical conservationof conservation needs.

•

Setting•

Telling the story

ensemble due to 133 years ofcontinuous use as a prison.

FREMANTLE PRISON // Heritage Management Planconvict elements of its history are

Extent Heritage / Lovell Chen // 24Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The form and location of

The originally symmetrical•

OUVelements at Fremantle Prisonpresentation of the Terrace should•

New development

display deliberate design and

be enhanced.

arrangement, reflecting the order•

Physical conservation

New development within the•

Settingand hierarchy of the place’s history
and function as a prison.

walls of the Prison will need tobe sympathetic to the convict-era
layout of the Prison.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The design of the Main Cell Block

New development within the•

OUVat Fremantle Prison was adapted

Parade Ground will need to be•

New developmentfrom Jebb’s design at Pentonville.

sympathetic to the Main Cell•

Setting

Block’s façade.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Fremantle Prison has extensive

Fremantle Prison has research•

OUV

research potential because of thepotential embedded in its fabric,•

Archaeology

place’s high degree of integrity andform, archaeology and movable•

Keeping a record

authenticity and the ability of theheritage. This potential relates tomaterial culture present to provide•

Movable heritage

convict and post-convict periods.

unique insight into the convict•

Physical conservation

Fremantle Prison should be used•

Telling the story

experience throughout the imperial,colonial and state periods.

to communicate the importantstories embedded within it. This
will impact decisions in relation toresearch priorities, interpretationand community engagement.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

In combination, the oral tradition,

Fremantle Prison is an excellent•

OUV

documentary evidence, collections,vehicle for telling an important•

Telling the story

structures, engineering relics

historical story.

and archaeological Features at
Fremantle Prison have unparalleledpotential for community
education.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 25

The NHL States:

This means that:

Therefore, consider these
Overarching Policies:

Fremantle Prison’s buildings,

Fremantle Prison’s fabric is•

OUVengineering relics and otherimportant for the scientific values•

Telling the story

structures contain, within theirit embodies: potential to yield

fabric, evidence of construction

information.

technology, available materials
and adaptation to suit local
conditions.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

Fremantle Prison, its artefacts,

Managing Fremantle Prison is not•

OUVfurnishings and fittings, written

just about conserving fabric. That•

Aboriginal cultural heritageand painted graffiti and records,

fabric ‘tells a story’ about ideas and•Archaeology

including published material,

philosophies. Fremantle Prison

photographs, historical,

embodies scientific, historical and•Community & stakeholder
engagement

archaeological and architecturalsocial heritage values. These things•

Keeping a record

records, and databases, provide

will often overlap but sometimes
the different values will require•

Movable heritage

an extensive resource for a broad
range of historical and social•

New development

balancing needs and resources.

•

Physical conservation•

Setting•

Telling the story

research.

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

It presents important aspects ofFremantle Prison was not a static•

OUV

Australia’s convict system including

environment. Those parts that•

Archaeology

changing attitudes to punishment,

illustrate the evolution of the Prison•

Keeping a record

reform, education and welfare.

system are important.

•

Movable heritage•

Telling the story

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The Prison in its present form

Fremantle Prison should be publicly•

OUV

demonstrates with some precisionaccessible. It should be managed•

the facilities, conditions andso that it is an active part of theCommunity & stakeholder
engagement

attitudes prevailing in a major

community.

•

Telling the story

Western Australian prison – anexperience rarely available to the
public.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 26

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:[The prison experience is] madeSeemingly unimportant elements•

OUV

more immediate by the retentionof the site that ‘tell the story’ of the•

Keeping a recordof graffiti, murals, signs, notices

Prison may actually be of heritage•

Movable heritage

and recent evidence of use.

significance.

•

Physical conservation•

Telling the story

Therefore, consider these
Overarching Policies:

The NHL States:

This means that:

The built environment at Fremantle

New built form will need to be•

OUVPrison displays a large, surviving

complementary in terms of form,•

Keeping a record

concentration of nineteenth andfabric, and colours and from•

New development

early twentieth century structures

a limited palette. There will becharacterised by a homogeneity of•Physical conservationconsiderable constraints on newform, materials, textures and colour.

•

Settingdevelopment.

The NHL States:

This means that:

Substantial parts of the site

Care will need to be taken in•

OUVinclude archaeological deposits

circumstances where activities•

Archaeology

of material culture, which can bewill cause ground disturbance.

•

Movable heritage

analysed to yield in-formation

The place has high archaeological•

Aboriginal cultural heritage

about the site unavailable frompotential that needs to be managed

documentary sources alone.

appropriately.

The NHL States:

This means that:

Fremantle Prison has played aFremantle Prison was an•

OUVsignificant role in the social fabricoperational institution until•

Aboriginal cultural heritageof Western Australia over many

recent times. It has strong•

generations through its continued

social significance to former

Community & stakeholder
engagement

use as a place of incarceration

prisoners, employees and their•

Telling the story

until 1991. The site is strongly

families. This impacts the natureassociated with particularof public engagement, heritage

communities in Western Australiainterpretation and the prioritisationand for Australians more generally.

of conservation works.

FREMANTLE PRISON // Heritage Management Plan

Therefore, consider these
Overarching Policies:

Therefore, consider these
Overarching Policies:

Extent Heritage / Lovell Chen // 27

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

The austere and monumental

The setting of the Prison should•

OUV

quality of the longest and tallest

not be unduly ‘softened’ with new•

New development

cell range in Australia set inplantings or development.

•

Physical conservation

It is critical to manage the Prison’s•

Settinga precinct characterised by ahomogeneity of form, materials,
texture and colour make it alandmark feature of Fremantle.

setting appropriately. In particular,significant views and vistas willneed to be respected.
Significant constraints will apply to
new development within the vicinityof the Prison in terms of bulk, scale,height, fabric and colour.
New development within the
Parade Ground will need to be
sympathetic to the Main Cell
Block’s façade.
New built form will need to be incomplementary colours and fabrics
from a limited palette.
Consider the removal of later
intrusive additions that adversely
impact the internal and externalsetting of the Prison.
The physical and visual relationshipbetween the Prison and adjacent
car parks could be improved.

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

It is a memorial to the design and

The originally symmetrical•

OUV

supervision of the royal engineerspresentation of the Terrace should•

New development… and to the work of the sappers

be enhanced.

•

Setting

and miners, artisan pensioners and,not least, the prisoners.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 28Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

Fremantle Prison’s townscape

It is critical to manage the Prison’s•

OUV

presence is strongly felt in its

setting appropriately. In particular,•

walls and the public face on thesignificant views and vistas will

Community & stakeholder
engagement

Terrace; and, from the Terrace,need to be respected.

•

Governance and financeSignificant constraints will apply to•

New development

new development within the vicinity•

Physical conservationof the Prison in terms of bulk, scale,•Setting

sweeping views from the Prison
encompass the town, RoundHouse, Rottnest Island and otherplaces with which Fremantle Prisonhas strong historic links.

height, fabric and colour.
The Prison forms part of awider cultural landscape thatrecommends a collaborative
management approach, including
ongoing liaison with the City ofFremantle.

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

It contains major evidence ofFremantle Prison has research•

OUV

the physical apparatus of an

potential embedded in its fabric,•

Archaeology

imperial convict public works

form, archaeology and movableestablishment and of its adaptation•

Keeping a record

heritage.

•

Movable heritage•

Telling the story

for subsequent colonial use.

The site’s convict heritage is an
important aspect of its significance.
The site is multi-layered and postconvict elements of its history arealso significant.

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

Together with the associatedFremantle Prison should be•

OUVhousing and other remnants

managed as part of a cultural•

New developmentof the Convict Establishment,

landscape that includes The•

Physical conservation

Fremantle Prison is without

Knowle, the Fairbairn Street Ramp

exception the most intact such•

Setting

and the Warders’ Cottages oncomplex in Australia.

•

Telling the story

Henderson Street.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 29Therefore, consider these
Overarching Policies:

The SRHP States

This means that:Technical innovation andFremantle Prison has research•

OUV

achievement are evident in thepotential embedded in its fabric,•

Archaeology

adaptation of construction methods

form, archaeology and movable•

Keeping a record

to deal with local materials, theheritage.

•

Movable heritage•

Telling the story

ventilation system, the wells andtunnels and the method of liquid
waste disposal. Research into these
aspects of the place has scarcelycommenced.

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:The Establishment is the most

There are significant constraints•

OUV

intact such complex in Australia.

on the removal of existing•

Keeping a record

fabric and introduction of new•

New development•

Physical conservation•

Setting

built form at the Prison. Thisis especially the case wherechange would impact the senseof the Prison’s ‘completeness’.
The site’s ‘integrity’ and‘authenticity’ must be respected.
Detailed records of changes
made to the Prison must be
maintained.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 30

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

Fremantle Prison touches the

The convict heritage of the•

OUVlives of thousands of Westernsite is of historical and social•

Aboriginal cultural heritage

Australians through links withsignificance. This should guideconvict ancestors, connections•

public engagement, heritage

Community & stakeholder
engagementwith wartime prisoners from theinterpretation and the prioritisation•

Keeping a record

armed forces and wartime ethnicof conservation works.

•

Movable heritage

internees, and the immediate

Fremantle Prison is a multi-layered•

Telling the story

past prisoners and their relatives,
particularly the large numbers ofAboriginal men imprisoned in thetwentieth century ... Fremantle
Prison has also a strong connection
for the relatives and families of
those in positions of authority at
the Prison.

site. Its significance includes earlyand mid-twentieth century activities.
Fremantle Prison was an
operational institution until
recent times. It has strong social
significance to former prisoners,
guards, administrators and theirfamilies. This impacts the natureof public engagement, heritage
interpretation and the prioritisationof conservation works.
Fremantle Prison should bemanaged having regard to the viewsof relevant Traditional Owners andassessed levels of significance.

Therefore, consider these
Overarching Policies:

The SRHP States

This means that:

The Prison in its present form

Fremantle Prison is an excellent•

OUV

also demonstrates with somevehicle for telling an important•

Aboriginal cultural heritage

precision the facilities, conditions

historical story.

•

Archaeology

Fremantle Prison should be•

Community and stakeholder
engagement

managed so that it is an active•

Keeping a record

part of the community.

•

Movable heritage•

New development

and attitudes prevailing in a
major Western Australian prison– an experience rarely available
to the public and made more

publicly accessible. It should be

immediate by the retention ofgraffiti, murals, signs, notices

Seemingly unimportant elements

and recent evidence of use.

of the site that ‘tell the story’ of•Physical conservation

the Prison may actually be of•

Setting

heritage significance.

•

Telling the story

Fremantle Prison was an
operational institution until
recent times. It has strongsocial significance to former
prisoners, employees andtheir families. This impacts thenature of public engagement,
heritage interpretation and theprioritisation of conservation
works.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 31

HISTORIC CONTEXTFREMANTLE PRISON // Heritage Management Plan

04

Extent Heritage / Lovell Chen // 32

4. Historic context
This historical overview of Fremantle Prison has been drawn fromprevious reports and historical sources including images and maps.

4.1 The convict period (1850–1886)
Some key dates for this period include:•1849 – Colony of Western Australia is declared a penalcolony.

•1850 – First ship, carrying seventy-five male convicts andfifty pensioner guards and families, arrives in Fremantle.
Elevated site for permanent Convict Establishment isselected.

•

1851–53 – Construction of the southern wing of the Main
Cell Block, Terrace houses and the Warders’ Cottages
begins. East Workshops are constructed.

•

1854–55 – The Entry Complex – including the Gatehouse,entry court, military and civil guard houses flanking theinner gate – is constructed. Southern wing of Main Cell
Block is constructed and the first convicts are transferred tosite. Perimeter walls are completed.

•

1857–59 – Guard room, Hospital and carpenter shop areconstructed. Northern wing of Main Cell Block is completed.

•1859 – Fremantle Convict Establishment is officially opened
on 31 December.

•1867 – Fremantle Convict Establishment is renamed
Fremantle Prison.

•

1868 – Transportation of convicts to Western Australia
officially ceases. Nearly 10,000 convicts were transported
to the colony.i

The Fremantle Convict Establishment operated as a depot for theaccommodation of convicts, who were housed in the complex andworked outside the Prison during the day. The convicts were variously
employed in the construction of public infrastructure including roads,
bridges and public buildings, as well as in agriculture and mining for freesettlers.v The approach of the Western Australian government towards
convicts in this period is considered to have been more enlightened thanother colonies. There was a strong emphasis on instilling good habits
and a focus on religious instruction, with convicts earning ‘marks’ forbehaviour, access to the library and ‘gymnasium’, and the opportunity
to earn their ticket-of-leave.vi The Refractory Cell Block, however, was acruel form of accommodation and punishment for the most problematicand troublesome convicts, including some confinement in windowless(dark) cells.
The convict transportation system ended in 1868, and the numbers ofconvicts housed at the Prison subsequently declined.

The transportation of convicts to Western Australia was commenced
to address severe labour shortages in the struggling twenty-year oldcolony. Convicts were initially accommodated at the extended premisesof the harbourmaster.ii In August 1850, a permanent site (Figure 9)
for the Convict Establishment was selected, ‘at the hill at the back of
the church … the locality is well adapted for securing the health of theprisoners’.iii Work began on the Convict Establishment in 1852 andwas completed in 1859.iv The southern part of the Main Cell Block, with
Association Ward, was completed by 1855 (Figure 10); with the northern
block completed between 1855 and 1857. The Terrace, to the north andsouth of the Gatehouse, incorporated residences which accommodated
Prison officials. These buildings can be seen in images of the 1850s(Figure 11) and 1860s (Figure 12).

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Extent Heritage / Lovell Chen // 33

Figure 10. Survey Plan of 1844, updated to show convict depot reserve (Source: Item 126, Fremantle 19R, Chauncy Fieldbook 8, State
Records Office, Western Australia).

Figure 11. Undated early plan of Fremantle Prison, showing construction to c1855, including southern wing of Main Cell Block and
Gatehouse complex. North is to the right of plan (Source: Fremantle Prison).

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Extent Heritage / Lovell Chen // 34

Figure 12. Watercolour of complete Convict Establishment, 1859 by Henry Wray (Source: National Library of Victoria).

Figure 13. Illustration of the Convict Establishment Fremantle, 1866 by T H J Browne (Source: State Library of New South Wales).

Figure 14. View of The Terrace, including residences and Gatehouse, c1860s (Source: State Library of Western Australia).

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Extent Heritage / Lovell Chen // 35

Figure 15. Convict working party returning to Fremantle Prison, c1870 (Source: Fremantle Prison Collection, as reproduced in
World Heritage Nomination).

Figure 16. Detail of ‘Plan showing the more populous portion of the Town of Fremantle’, by Surveyor General’s Office, 1885,
showing the development of the Convict Establishment just prior to its transfer to Colonial Government (Source: State
Library of Western Australia).

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Extent Heritage / Lovell Chen // 36

4.2 Colonial/early state period (1886–1918)
Some key dates for this period include:•1886 – Control of Fremantle Prison is transferred to Western
Australian Colonial Government.

•

1888 – Prisoners are relocated from Perth Gaol to Fremantle
Prison. Gallows are built at the Prison, which is by now the
only legal place of execution in the colony. A tunnels system
for water supply is constructed.

•

1889 – Female Division (Women’s Prison) is constructed at
north-west of site.

•

1898 – A Royal Commission is undertaken into the operationof the penal system.

•

1900s – West Workshops is constructed in 1900–1901;
alterations are made to Main Cell Block and Exercise Yards.
The New Division with radial exercise yards is constructedat north-east of site.

•

1911 – A Royal Commission into Fremantle Prison sees theimplementation of additional reforms.

By 1886 only fifty convicts were imprisoned at Fremantle, in a prison
designed to accommodate 1,000 people. That year, the British
authorities transferred Fremantle Prison to the Western Australiancolonial administration, marking the end of the convict system.vii
Fremantle Prison became the colony’s main prison for men, women andchildren.viii The gold rush period of the 1890s also saw an increase in
the prison population. Separate facilities for the incarceration of women
were established in the north-west corner of the site.
In 1898, a Royal Commission was established to investigate thesystems of punishment at the Prison including the classification ofprisoners, sanitary conditions and the administration of the Prison. ix
The report noted that the ‘structural arrangement of Fremantle

FREMANTLE PRISON // Heritage Management Plan

Gaol [is] in no way adapted to meet the very varied purposes which
it is now required to serve.’x One of the key recommendations was
the abolition of dark cells (in the Refractory Cell Block) and thata proper system of prisoner classification be introduced. These
recommendations resulted in the division of the Main Cell Block andassociated yards into four sections, and the increase in cell size.xi
Employment for prisoners was also created within the Prison, ending
the system of external work. As a result, the West Workshops
were constructed, providing prisoners with experience in tailoring,bookbinding, shoe making, mat making and sign painting.
The Prison population again increased in the early 1900s, following theclosure of the Rottnest Island Prison and relocation of its inmates. In
this period, Fremantle Prison also began to be locally referred to as ‘thehouse on the hill’, and its inmates as ‘compulsory residents’, often in
conjunction with reports on prison conditions.xii A new cell division (theNew Division), for the separate accommodation of early stage prisoners
and first time offenders, including a distinctive radial exercise yard, wasconstructed to the east of the Female Division, increasing the site’s
overall capacity.
A Royal Commission in 1911 resulted in the system of ‘marks’ being
reintroduced, which earned prisoners’ shorter sentences for good
behaviour. Other changes introduced in this period relating to prisoner
welfare and reform included leisure activities, prisoner-run vegetablegardens and increased educational opportunities.xiii Superintendent
Hann, who had been appointed in 1911, was responsible for much of
the reform in the 1910s, including the demolition of the radial exercise
yards of the New Division, after only five years of use. Hann retired in
1919, following injuries received breaking up an altercation between aprisoner and a warden.xiv

Extent Heritage / Lovell Chen // 37

Figure 17. View of rear (east) boundary of Prison, c1897.

Figure 18. Plan of Fremantle Prison, 1888 with updates c1910 to show Workshops (top right) and New Division with radial Exercise
Yards (top left). North is to the left of plan (Source: Fremantle Prison Collection, as reproduced in Fremantle Prison: Heritage
Management Plan, 2013, p. 89).

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Figure 19. Cultivated gardens at south end of site, part of the reforms during the early 1900s, c1910 (Source: Fremantle Prison Collection).

Figure 20. The radial Exercise Yards of the New Division, c1907–1911, prior to demolition (Source: The Western Mail, 14 August 1909;
https://trove.nla.gov.au/newspaper/article/37591551/3450285).

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4.3 Post–World War I (1918–present)
Some key dates for this period include:•

1920 – A portion of the Prison is set aside as a reformatory
prison.

•1940–45 – A part of the Prison is occupied by the
Department of Defence during World War II, and is returned
to civil use after the war.

•

Post-1945 – A variety of structures is constructed on andbelow Knoll terraces.

•

1964 – Eric Edgar Cooke is the last man hanged in Western
Australia.

•

1968 – Prisoners riot over conditions.

•1970 – Inmates of Female Prison and staff are transferredto Bandyup Women’s Training Centre, and Female Prison
buildings become part of the male prison.

•

1979 – Fremantle Prison Museum is established.

•1988 – A fire occurs during a riot at the Prison.

•

1991 – Inmates are transferred and Fremantle Prison isclosed as a penal institution.

•

1992 – Fremantle Prison opens to the public as a museum
and cultural attraction.

Although Fremantle Prison operated until 1991, there was little in theway of major physical change at the site during this period, aside fromthe introduction of a new Prison reception and the introduction of sheltersin the Exercise Yards. The absence of major change can be seen in
the aerial photographs of 1935, 1947 and 1977 below (Figures 20-22).
Generally, however, the twentieth century saw an overall deteriorationin the buildings at the site, until the conclusion of prison operations andheritage protection in the 1990s.

FREMANTLE PRISON // Heritage Management Plan

A portion of the Prison was set aside as a reformatory prison, to separate
first time offenders from reoffenders. The New Division was used by the
Department of Defence in World War II for military prisoners, including
enemy ‘combatants’ and ‘illegals’.xv The demographics of the Prisonchanged through this period, particularly in the second half of thetwentieth century. Aboriginal prisoners were segregated from the rest of
the Prison population until 1965. Female prisoners were relocated to a
new facility in 1970.
A riot by prisoners in 1968 brought attention to the conditions inwhich inmates were accommodated. As noted in a newspaper article
following the riot, ‘Prisoners still have a sanitary bucket in their cellat night … there are two or three prisoners crammed in many of the‘single’ cells.’xvi In 1988, a riot involving 130 prisoners broke out overprison conditions and the mistreatment of a prisoner, with five officers
taken hostage. The riot had been preceded by a sit-in protest of 120
prisoners in the previous weeks. Parts of the Prison were set alightand approximately $2 million of damage was caused to the Main Cell
Block.xvii Although new security measures were put in place following
the riot, it was this incident that ultimately brought about the Prison’s
closure in 1991. The Prison was officially disestablished on 30
November 1991.xviii
During this period the heritage significance of the site was recognised,
first by the National Trust (1960s-1980s), and then by its inclusion on
the Register of the National Estate (1978) and the State Register of
Heritage Places (1992). The first Conservation Analysis for the site
was produced by James Semple Kerr in 1992. Fremantle Prison was
included on the National Heritage List in 2005. In 2010, as part of aserial listing of 11 convict sites in Australia, it was inscribed on the World
Heritage List. Fremantle Prison was opened as a museum and tourist
attraction in 1992.

Extent Heritage / Lovell Chen // 40

Figure 21. Aerial view of Fremantle Prison, 1935. Note clearly separated Female Division (Source: State Library of Western Australia).

Figure 22. Aerial photograph of Fremantle Prison, 1947 (Source: Landgate, Western Australia).

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Figure 23. Aerial photograph of Fremantle Prison, 1977 (Source: Landgate, Western Australia).

Figure 24. Fire in Main Cell Block during 1988 riot (Source: Reproduced in West Australian, 13 February 2018).
ENDNOTESi.

Timeline drawn from chronology in Palassis, Fremantle Prison Conservation Management Plan, 2008, pp. 11–12.

ii.

James Semple Kerr, Fremantle Prison Conservation Management Plan, revised, 1998, p. 3.

iii.

The Perth Gazette and Independent Journal of Politics and News, 5 July 1850, p. 2 and 30 August 1850, p. 2.

iv.

James Semple Kerr, Fremantle Prison Conservation Management Plan, revised, 1998, p. 4.

v.

Government of Australia, Australian Convict Sites, World Heritage Nomination, 2008, p. 46.

vi.

Government of Australia, Australian Convict Sites, World Heritage Nomination, 2008, p. 59.

vii.

Government of Australia, Australian Convict Sites, World Heritage Nomination, 2008, p. 46.

viii.

Fremantle Prison, Fremantle Prison: Heritage Management Plan, 2013, p. 42.

ix.

Fremantle Prison, Fremantle Prison: Heritage Management Plan, 2013, p. 43.

x.

West Australian, 24 December 1898, p. 3.

xi.

Fremantle Prison, Fremantle Prison: Heritage Management Plan, 2013, p. 44.

xii.

See for example, Truth, 6 March 1909, p.3, Daily News; 29 January 1917, p. 6; Sunday Times, 25 May 1924, p. 10.

xiii.

Fremantle Prison, Fremantle Prison: Heritage Management Plan, 2013, p. 45.

xiv.

Daily News, 26 December 1911, p. 2 and West Australian, 8 November 1919, p. 7.

xv.

Fremantle Prison, Fremantle Prison: Heritage Management Plan, 2013, p. 46.

xvi.

Tribune, 19 June 1968, p. 4.

xvii.

West Australian, 19 February 2018, accessed via https://thewest.com.au/news/wa/how-a-riot-brought-the-demise-of-fremantle-Prison-30-years-ago-and-how-its-incorporatedin-new-tours-ng-b88744427z, 24 April 2018 and Canberra Times, 5 January 1988, p. 1.

xviii.

James Semple Kerr, Fremantle Prison Conservation Management Plan, revised, 1998, p. 5.

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Extent Heritage / Lovell Chen // 42

5. Overarching policies

Overarching policies

05

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Outstanding universal
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Objectives
Our objectives are as follows:•••

to conserve the OUV of Fremantle Prison in accordance with
Australia’s obligations under the Convention Concerning theProtection of the World Cultural and Natural Heritage (‘theWorld Heritage Convention’) and the EPBC Act
to conserve Fremantle Prison in a manner that recognises
its importance as a component of the World Heritage
Convention’s Australian Convict Sites serial listing, which isto recognise that actions that adversely impact the heritage
values of Fremantle Prison may adversely impact the OUV of
the Australian Convict Sites listing as a whole•

Adverse impacts occur to significant convict-era elements
because of conservation measures undertaken on elementsfrom a later period and of lesser significance.

•

Adverse impacts occur to post-convict era elements due tocon­servation of convict-era elements in circumstances where
careful planning could have conserved the elements of both
periods.

statutory framework
Article 4 of the World Heritage Convention states:
Each State Party to this Convention recognizes that the
duty of ensuring the identification, protection, conservation,
presentation and transmission to future generations of [World
Heritage places] situated on its territory, belongs primarily tothat State. It will do all it can to this end, to the utmost of its
own resources and, where appropriate, with any international
assistance and co-operation, in particular, financial, artistic,scientific and technical, which it may be able to obtain.

to manage Fremantle Prison in a manner that meets the ‘core
aims’ expressed in the Australian Convict Sites Strategic Plan
2017–2020 (and its successors):›› to collaboratively manage the Property’s OUV›› to conserve and protect the Property’s OUV for current
and future generations›› to present and interpret the Property’s OUV,
emphasising each site’s contribution to the whole›› to give the Property a function in the life of thecommunity••

to conserve the co-existing heritage values embodied byFremantle Prison by balancing the primary need to conserve
its OUV against the secondary need to conserve its National
Heritage values and the tertiary need to conserve its statesignificanceto manage the OUV of Fremantle Prison having regard to the
Prison itself and to the buffer zone established around it by
the World Heritage inscription

risks to avoid
We have identified the following risks to be avoided:•

The managers of Fremantle Prison fail to meet their legal
obligations, causing embarrassment to relevant government
authorities and/or damage to the OUV of Fremantle Prison
and the Australian Convict Sites.

•

Fremantle Prison carries out an action without coordinatingwith the Australian Convict Sites Steering Committee
resulting in the overall OUV of the Australian Convict Sites
being adversely impacted.

•

Actions are undertaken that adversely impact the ‘integrity’and ‘authenticity’ of Fremantle Prison.

•

Actions are undertaken in the Fremantle Prison ‘buffer zone’that cause adverse impacts on the Prison’s OUV.

FREMANTLE PRISON // Overarching Policy Areas

The Australian Government ensures that its obligations under
the World Heritage Convention are met through the EPBC
Act. Schedule 5 (Reg. 10.01) of the Environment Protection
and Biodiversity Conservation Regulations 2000 includes the
management principles that apply to places on the WHL. Theseemphasise that the primary purpose of management of the cultural
heritage of a World Heritage property must include protecting andconserving the World Heritage Values of the place.
The EPBC Act governs ‘actions’ that have, or are likely to have, asignificant impact on a matter of ‘national environmental significance’.
Places on the WHL (such as Fremantle Prison) are matters ofnational environmental significance. An ‘action’ may include a project,a development, an undertaking, an activity or a series of activities.
Before taking an action that could have a significant impact on theheritage values of Fremantle Prison, the action must be ‘referred’
to the Australian Minister for the Environment and Energy. The
Minister will determine whether or not further and more formal
assessment and approval is required, i.e. a ‘controlled action’.

Non-Statutory Framework‘Outstanding Universal Value’ is defined by the Operational
Guidelines for the Implementation of the World Heritage Convention(Paragraph 49) to mean ‘cultural and/or natural significance which
is so exceptional as to transcend national boundaries and to beof common importance for present and future generations of all
humanity’. The Australian Convict Sites are inscribed on the WHL
for satisfying (through their convict-era function, form and fabric)
the following assessment criteria:•

Criterion (iv) – be an outstanding example of a type of building,architectural or technological ensemble or landscape which
illustrates (a) significant stage(s) in human history

Extent Heritage / Lovell Chen // 44Article 96 of the Operational Guidelines for the Implementationof the World Heritage Convention emphasises the importance ofprotecting, managing, sustaining or enhancing the OUV, including
the integrity and authenticity of the place. ‘Authenticity’ refers to
the ability of people to understand the value attributed to a place
having regard to its ‘credibility’ and ‘truthfulness’. Certain actions(e.g. inappropriate development or intrusive conservation) canadversely impact Fremantle Prison’s authenticity, as well as theauthenticity of the Australian Convict Sites as a whole.
Article 103 of the Operational Guidelines for the Implementationof the World Heritage Convention allows for the establishmentof a ‘buffer zone’ around a place inscribed on the WHL where‘necessary for the proper protection of the property’. Fremantle
Prison has a buffer zone around it that captures most of the originalConvict Grant. Actions undertaken within the buffer zone may be‘controlled actions’ where, for example, they impact significant
views to or from the Prison or where they obscure significant
functional relationships (Article 104).
Fremantle Prison forms part of a ‘serial listing’ on the WHL. Thisis a recognition of the ‘cultural, social or functional links over time’
between the component parts of that serial listing (Article 138).
The management of Fremantle Prison must avoid ‘an excessive
fragmentation of component parts’ of the Australian Convict Sites
serial listing.
Article 5 of the Burra Charter states that: ‘Conservation of aplace should identify and take into consideration all aspects ofcultural and natural significance without unwarranted emphasison any one value at the expense of others’. Similarly, Article 13of the Burra Charter states: ‘Co-existence of cultural values
should always be recognised, respected and encouraged. Thisis especially important in cases where they conflict.’ However,the Australian Government’s legal obligations under the World
Heritage Convention make the place’s OUV the primary concern
in its conservation, and its National Heritage values and statesignificance secondary and tertiary concerns respectively.

FREMANTLE PRISON // Overarching Policy Areas

PA
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Article 87 of the Operational Guidelines for the Implementation of
the World Heritage Convention states that the integrity of places
nominated to the WHL must be of a high level. Integrity is a‘measure of the wholeness and intactness’ of the place’s heritage
values. The Operational Guidelines states that this can suffer as aresult of ‘neglect’ or inappropriate ‘development’. The managers ofFremantle Prison must remain responsive to the place’s integrity,
as well as to the integrity of the Australian Convict Sites as a whole.

N D I AL •
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These values are what are being conserved when Fremantle
Prison is appropriately managed.

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Criterion (vi) – be directly or tangibly associated with eventsor living traditions, with ideas, or with beliefs, with artistic andliterary works of outstanding universal significanceN IO MUN

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Constraints
The imperative to protect and conserve the OUV of Fremantle
Prison will place significant constraints on new development at andnear Fremantle Prison.
Notwithstanding the cost, in order to meet its statutory obligations
Fremantle Prison must act as follows:•

Maintain appropriate records, implement interpretation
measures and engage in appropriate stakeholder consultation.

•

Conserve both its built form and movable heritage.

•

Maintain an up-to-date and effective HMP.

Opportunities
Fremantle Prison’s status as a World Heritage place presents
the Australian and Western Australian Governments, and theCity of Fremantle, with opportunities to raise the profile ofAustralia’s cultural heritage generally, and that of Fremantle Prison
specifically. Together, they can give the place a function in the lifeof the community.
Fremantle Prison’s status as a World Heritage place presents theAustralian and Western Australian Governments, and the City ofFremantle, with a range of commercial opportunities, e.g. throughtourism development.

Overarching Policy Framework
POLICY 1
Fremantle Prison will observe the policies and procedures outlinedin this HMP in order to meet its statutory obligations in relation to
the Prison’s OUV.
POLICY 2
In policy development and application, Fremantle Prison will be
guided by the ‘core aims’ expressed in the Australian Convict Sites
Strategic Plan 2017–2020 (and its successors):•

to collaboratively manage the Property’s OUV•

to conserve and protect the Property’s OUV for current andfuture generations•

to present and interpret the Property’s OUV, emphasisingeach site’s contribution to the whole•

to give the Property a function in the life of the community

This will involve ongoing coordination with the Australian Convict
Sites Steering Committee.

Extent Heritage / Lovell Chen // 45

N IO MUN

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POLICY 3
In conserving Fremantle Prison’s co-existing heritage values,
Fremantle Prison will assess actions and impacts on a case-bycase basis. However, the primary concern will be the conservationof the place’s OUV, the secondary concern will be the conservationof its National Heritage values, and the tertiary concern will be theconservation of the Prison’s state significance.
POLICY 4
Fremantle Prison will be managed having regard to its World
Heritage buffer zone.

Proposed Actions
ACTION 1
Maintain the existing collaborative relationship with the AustralianConvict Sites Steering Committee.
ACTION 2
Consult this HMP when assessing proposed actions at Fremantle
Prison.
ACTION 3
Review and (if necessary) update this HMP within five years of its
adoption.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 46

aboriginal cultural heritage

Objectives
Our objectives are as follows:•

to identify, record and communicate the story of Aboriginal
connection with Fremantle Prison and the place where it islocated•to consult and engage with Aboriginal stakeholders in a timely
and culturally appropriate manner, and be consistent withlegislative requirements•

to manage Aboriginal heritage values embodied by the site
consistent with assessed levels of significance.

Risks to Avoid
We have identified the following risks to be avoided:•

inadvertent breach of legal obligations•

inappropriate privileging of non-Aboriginal heritage overAboriginal heritage•

inadvertent or deliberate failure to engage with Aboriginal
stakeholders on relevant matters•

inadvertent damage to Aboriginal cultural heritage due to lackof knowledge, consultation or research•tokenism and stereotyping in the identification, assessment,
management and interpretation of Aboriginal heritage.

Statutory Framework
The EPBC Act governs the management of places on the WHL.
Their OUV must be conserved. Fremantle Prison’s OUV relates
principally to convictism as part of a global historical movement,
but the WHL citation for Fremantle Prison includes the observationthat convict sites ‘illustrate an active phase in the occupationof colonial lands to the detriment of the Aboriginal peoples’. In
other words, the Aboriginal experience of Fremantle Prison is adimension of its significance. The EPBC Act establishes a NHLfor places of outstanding value to the nation. Fremantle Prison islisted on the NHL but not for Indigenous heritage values.

Any Aboriginal Heritage Surveys within the South West Settlement
Indigenous Land Use Agreement (ILUA) area requires the
Department of Planning, Lands and Heritage to enter into a
Noongar Standard Heritage Agreement (NSHA) unless there is anexisting agreement. This includes the Fremantle Prison area.

Non-Statutory Framework
The Australian government advises the managers of places that
may embody Aboriginal heritage values to consult with Indigenous
peoples in making relevant decisions (See online: Ask First – A
Guide to Respecting Indigenous Heritage Places and Values).
The Australian government has prepared a guideline document
entitled Engage Early – Guidance for Proponents on Best PracticeIndigenous Engagement for Environmental Assessments under
the EPBC Act 1999. It considers that best practice Indigenous
consultation includes identifying and acknowledging appropriate
Indigenous peoples, a commitment to early consultation,
the building of trust through ongoing communication, setting
appropriate time frames, and demonstrated cultural awareness.
Article 31 of the UN Declaration on the Rights of Indigenous
Peoples states (among other things): Indigenous peoples havethe right to maintain, control, protect and develop their cultural
heritage.
The UN Permanent Forum on Indigenous Peoples advocates for
Indigenous peoples to be informed and involved in matters that
may impact their cultural heritage so that they have the opportunity
to give free prior and informed consent.
Article 13 of the Burra Charter states: ‘Co-existence of culturalvalues should always be recognised, respected and encouraged.
This is especially important in cases where they conflict.’ Ways ofachieving this are presented in the ICOMOS Practice Note entitled‘The Burra Charter and Indigenous Cultural Heritage’.

The Heritage of Western Australia Act 1990 establishes a ‘Registerof Heritage Places’ (Section 46) for places of state significance.
Fremantle Prison is included on the Register but not for its
significance to Aboriginal people.
Under Section 17 of the Aboriginal Heritage Act 1972 (WA) it
is an offence to excavate, destroy, damage, conceal or alter an
Aboriginal site. Consent to do so can only be obtained throughSection 18 of the Act, through the Minister, following a statutory
process that includes an assessment of the significance of the
Aboriginal site.
Pursuant to Section 38 of the Aboriginal Heritage Act 1972 (WA)the Western Australian government maintains a Register of Places
and Objects for Aboriginal Heritage. No part of Fremantle Prison is
included on the Register.
FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 47

aboriginal cultural heritage

constraints

Overarching Policy FrameworkWorks that require ground disturbance will require prior assessment
by an archaeologist of the potential for Aboriginal archaeology toexist at the impacted location. Where a location contains known
or potential Aboriginal archaeological material that satisfies thedefinition of an ‘Aboriginal site’ under the Aboriginal Heritage Act
1972 (WA), ground disturbance works should only proceed after
consent has been obtained from the Minister pursuant to Section
18 of the Act.

POLICY 5

Where unanticipated Aboriginal archaeology is encounteredduring ground disturbance works, those works must cease andthe advice of an archaeologist should be sought before works
recommence. This may also necessitate the making of an
application for consent under Section 18 of the Aboriginal Heritage
Act 1972 (WA).
Where art, graffiti or other evidence of Aboriginal connection
to Fremantle Prison is made a feature of interpretation, thisshould only occur after consultation with appropriate Aboriginal
stakeholders. This is particularly relevant to matters relating to
Aboriginal deaths in custody which demands a highly sensitive
approach.

Opportunities
Although Fremantle Prison was the site of Aboriginal suffering andhurt for much of its life, it may also be an important and effective
tool for healing and reconciliation.
The Aboriginal part in the Fremantle Prison story is presently
being communicated through engaging art exhibitions, oral history
programs and other interpretation measures. There is scope forthese activities to be enhanced and expanded through a range ofcollaborative ventures, some of which might be undertaken on amutually advantageous commercial basis (e.g. through tours andthe gift shop).
A broad range of skills is required for the conservation of Fremantle
Prison, including traditional trades. There are opportunities
for Fremantle Prison to ‘upskill’ interested Aboriginal people inheritage practice through internships and training programs.
There are opportunities for Fremantle Prison to explore linkages
with Rottnest Island, a place that also embodies Aboriginal
heritage values.

FREMANTLE PRISON // Overarching Policy Areas

Fremantle Prison will continue to develop processes that ensure
effective and meaningful engagement with relevant Aboriginal
stakeholders insofar as the site embodies Aboriginal heritage values.
POLICY 6
Fremantle Prison will seek to realise the potential of the site as an
instrument for reconciliation.
POLICY 7
Fremantle Prison will be managed having regard to all thedimensions of its heritage significance, including any Aboriginal
heritage values that it may embody. This will be done consistent
with assessed levels of significance, prioritising the OUV for which
the site is inscribed on the WHL.

proposed actions
ACTION 4
Fremantle Prison will prepare a Reconciliation Action Plan (RAP)
in consultation with relevant Aboriginal persons. Consultation will
include Noongar people (the traditional owners of the country inwhich Fremantle Prison is situated) in addition to other Aboriginal
groups with a demonstrated connection with Fremantle Prison. The
RAP will conform with the ‘Reflect – Innovate – Stretch – Elevate’
pathway encouraged by Reconciliation Australia.
ACTION 5
Engage a heritage practitioner to (a) consult with relevant Aboriginal
parties and (b) assess Fremantle Prison for its Aboriginal heritage
values. Depending on the results of this assessment it may benecessary to seek a modification of the site’s reasons for listingon the NHL and the WA Register of Heritage Places (the SHR)
to include Aboriginal heritage. It may also be necessary to seek
to include the site on the WA Register of Places and Objects for
Aboriginal heritage.
ACTION 6
Investigate the requirement for a Noongar Standard Heritage
Agreement (NSHA) prior to any re-assessment of the Aboriginal
heritage values.

Extent Heritage / Lovell Chen // 48

archaeology

Objectives
Our objectives are as follows:•

to minimise disturbance of the archaeological resource at
Fremantle Prison•

to retain the archaeological resource at Fremantle Prison insitu unless this is precluded by overwhelming research, safety
or conservation considerations•

within the parameters of the above objectives, to maximise
the research potential of the archaeological resource at
Fremantle Prison•

to balance the conservation needs of the layered heritage
values at Fremantle Prison, including where those values areembodied by archaeological material from different periods•

to investigate the archaeological resource at Fremantle
Prison using ‘best practice’ archaeological methodologies andexperienced practitioners•

to harness the potential of archaeology to engage the public’s
interest in Fremantle Prison

risks to avoid
We have identified the following risks to be avoided:•

disturbance or destruction of highly significant built form orarchaeological features in order to expose archaeologicalfeatures of lower significance•inadvertent disturbance or destruction of the archaeologicalresource due to lack of prior research or inadequate impacts
assessment•

damage to the archaeological resource because investigations
were undertaken by inexperienced or inexpert practitioners•

failure to make the data generated by archaeologicalinvestigation publicly accessible•

disturbance or destruction of Aboriginal archaeology without
appropriate consultation taking place because its significanceis not recognised relative to the site’s non-Aboriginal heritage
values•loss/damage due to an under-resourced collection area andlack of post-excavation analysis

statutory framework
The EPBC Act governs ‘actions’ that have, or are likely to have,a significant impact on a matter of ‘national environmental
significance’. Places on the WHL and NHL (such as Fremantle
Prison) are matters of national environmental significance. An‘action’ may include a project, a development, an undertaking, anactivity or a series of activities. It can include ground disturbanceworks that might impact the archaeological resource. Before taking
an action that could have a significant impact on the heritage
values of Fremantle Prison, the action must be ‘referred’ to the
FREMANTLE PRISON // Overarching Policy Areas

Australian Minister for the Environment and Energy. The Minister
will determine whether or not further and more formal assessment
and approval is required, i.e. a ‘controlled action’.
The Department of Planning, Lands and Heritage has prepared adocument entitled ‘Section 79(2) Permit Archaeological Excavation
Form’ for applications to excavate places on the State Heritage
Register.
Section 79 of the Heritage of Western Australia Act 1990 makes
it an offence to ‘damage or despoil’ or ‘remove any thing from’ aplace on the SRHP, which can include damage or despoliation of
the archaeological resource. However, an application can be madeto the Heritage Council for a permit to carry out archaeologicalworks under Section 79(2) of the Act.
The Western Australian Aboriginal Heritage Act 1972 governs
Aboriginal ‘places’, which includes archaeological sites (Section
5). If Fremantle Prison encounters Aboriginal archaeology it
must notify the WA Registrar of Aboriginal Sites (Department ofPlanning, Lands and Heritage)(Section 15). It is an offence to
excavate an Aboriginal archaeological site without the approvalof the Registrar of Aboriginal Sites (Section 16). Such consent
will only be given after an assessment is made of the nature andsignificance of the site (Section 18).
Schedule A, Clause 13B of the City of Fremantle’s Local Planning
Scheme No. 4 states that where planning approval is granted in
respect of a place on the Fremantle Heritage List, the Council
may impose a condition on that planning approval which requires
an archaeological investigation of the place. The same condition
may be imposed where the Council has reasonable evidence
to indicate that the place may include ‘contents, materials or
objects’ (which would include archaeological remains) that haveaesthetic, historic, scientific, or social significance (see also Cityof Fremantle Local Planning Policy 2.7). However, the City ofFremantle Local Planning Scheme No. 4 zones Fremantle Prison
as a Regional Reserve. By Section 2.2 of Local Planning Scheme
No. 4 Council approval is not required for the commencement or
carrying out of any use or development on a Regional Reserve.
Approval is required from the Western Australian Planning
Commission (which will include input from the Heritage Councilof Western Australia).

Non-Statutory Framework
A Practice Note supplementing the Burra Charter entitled ‘The
Burra Charter and Archaeological Practice’ states that thefundamental principles contained in the Burra Charter apply toarchaeological sites.
Article 13 of the Burra Charter states: ‘Co-existence of culturalvalues should always be recognised, respected and encouraged.
This is especially important in cases where they conflict.’ This will
be relevant (a) where archaeological features from the convictera underlie post-convict archaeological features of national,
state or local significance, and (b) where they overlie Aboriginalarchaeological remains.
The Department of Planning, Lands and Heritage has prepared
Extent Heritage / Lovell Chen // 49archaeology

a document entitled ‘Heritage Impact Statement – A Guide’. It
includes reference to the assessment of archaeological impacts.

Overarching Policy Framework

State governments around Australia have produced guideline
documents on how to assess the significance of historicarchaeological sites. They usually emphasise the researchpotential of such places assessed having regard to (a) researchpotential relative to other sites, (b) research potential relative toother sources, and (c) the ability to otherwise address substantive
questions about human behaviour (see: A. Bickford and S. Sullivan[1984], ‘Assessing the Research Significance of Historic Sites’, in
S. Sullivan and S. Bowdler (eds), Site Surveys and Significance
Assessment in Australian Archaeology, Proceedings of the 1981
Springwood Conference on Australian Prehistory, Canberra,
pp. 23–24).

POLICY 8

constraints
Works requiring ground disturbance at Fremantle Prison will
require an assessment of potential archaeological impacts. In
some cases, this may require re-location of proposed ground
disturbance works.

opportunities
Where archaeological investigation is necessary at Fremantle
Prison this may present an opportunity to involve the community ina program of ‘public archaeology’ – a form of interpretation.
The archaeological resource at Fremantle Prison comprises a
valuable teaching and learning resource. Fremantle Prison may
pursue opportunities to collaborate with students and teachers ofarchaeology from tertiary education institutions.
Archaeological investigation can augment the collection of movable
heritage currently curated by Fremantle Prison.

The known and potential archaeological resource at Fremantle
Prison will be managed according to its significance. Usually thiswill comprise its ‘scientific significance’ (i.e. its ability to address
substantive research questions). However, the archaeologicalresource at Fremantle Prison may also embody other heritage
values (e.g. social significance).
POLICY 9
Archaeological excavation at Fremantle Prison will be underpinned
by substantive research questions expressed in an ArchaeologicalResearch Design prepared by an experienced historicalarchaeologist prior to works commencing.
POLICY 10
Significant archaeological features will not be damaged or
disturbed unless this is necessary for overwhelming research,safety or conservation reasons. Fremantle Prison will seek toretain significant archaeology in situ.
POLICY 11
Where the investigation of archaeological features from anearlier period would require the disturbance or destruction ofarchaeological material from a later period, the decision to proceed
will be based on an assessment of the significance of each culturallayer. In some circumstances, the significance of archaeologicalmaterial from later periods will be higher than that from earlier
periods.
POLICY 12
Fremantle Prison will seek to involve the public in programs ofarchaeological investigation where this can be achieved withoutcompromising the archaeological resource.
POLICY 13
Only historical archaeologists with a demonstrated high levelof knowledge and experience will be engaged to investigate
Fremantle Prison’s archaeological resource (either as part of
impact assessment processes or through field work). Thesearchaeologists will also have sufficient training to identify Aboriginalarchaeological deposits and artefacts.
POLICY 14
The data generated by archaeological investigation at Fremantle
Prison will be made publicly accessible, ideally through publication
in a peer-reviewed academic journal but at least as a quality
synthesis of the results as requested.
POLICY 15
Once artefacts recovered through archaeological excavation havebeen documented and analysed such that their research potential
has been met, they should from that time be managed according tothe ‘Moveable Heritage Overarching Policy’ contained in this HMP.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 50

archaeology

proposed actions
ACTION 7
Prepare an updated Archaeological Management Plan.
ACTION 8
Engage an experienced archaeologist to review for quality anddigitise the results of previous archaeological investigations at
Fremantle Prison, and make them publicly accessible.
ACTION 9
Maintain and enhance existing links with students and teachersof archaeology at tertiary education institutions involving them in
research projects where appropriate.
ACTION 10
Should large-scale ground disturbance works be proposed within
the Parade Ground (or elsewhere at Fremantle Prison) consider
involving members of the public in any archaeological excavations
as part of a ‘public archaeology’ program.
ACTION 11
Engage an experienced archaeologist to assess the significanceof those artefacts in the Fremantle Prison Collection that wererecovered through archaeological excavation. This should bedone having regard to their research potential, in addition to otherdimensions of heritage significance. Consider disposing of those
artefacts that have little or no research potential or which do not
otherwise embody significant heritage values.
ACTION 12
Include a consideration of the potential Aboriginal archaeologicalresource at Fremantle Prison in the consultation underpinning theFremantle Prison Reconciliation Action Plan.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 51

COMMUNITY ANDSTAKEHOLDER ENGAGEMENT

Objectives
Our objectives are as follows:•

to raise awareness of the heritage values of Fremantle Prison
within the local community, across the state, nationally andinternationally•to involve interested, knowledgeable and engaged communitymembers in the life of Fremantle Prison•

to manage Fremantle Prison in a participatory manner, but
without compromising efficiency and clarity in decision-making•

to hear and appropriately respond to the views and aspirationsof community members, while also having due regard to theopinions of experts•

to forge mutually beneficial relationships with corporate
citizens in the private sector and with other public institutions•

to maintain the strong relationship that Fremantle Prisonpresently has with WA Department of Justice personnel andsome former prisoners

risks to avoid
We have identified the following risks to be avoided:•

An interested, knowledgeable and engaged community groupor member is excluded from consultation processes with theresult that the value of their enthusiasm and knowledge is not
fully realised.

•

The views and aspirations of one community group isinappropriately given greater weight than those of another,creating ill-feeling or perceptions of bias.

•

A failure to engage appropriately with the community resultsin heritage values being unrecognised, under-assessed or
badly conserved.

•

The desire for a participatory approach to management creates
unnecessary delays or lack of clarity in decision-making.

•The opinions of laypersons are inappropriately given greater
weight in decision making than the opinions of informedexperts.

statutory framework
Article 5 of the World Heritage Convention stipulates that stateparties should endeavour to give World Heritage places ‘a functionin the life of the community’. This requires appropriate engagementwith the local, state and national ‘communities’.
Schedule 5 (Reg. 10.01) of the Environment Protection andBiodiversity Conservation Regulations 2000 includes the
management principles that apply at places on the WHL. These
include: ‘The management should provide for public consultation
on decisions and actions that may have a significant impact on theproperty’. The Regulations state that this is especially the case in
FREMANTLE PRISON // Overarching Policy Areas

relation to people who have a particular interest in the property andwho may be affected by management of the property.
Schedules 5, 5A, and 5B of the Environment Protection andBiodiversity Conservation Regulations 2000 require thatappropriate community consultation inform the management
decisions made at heritage places, including consultation withany particular groups having a special interest in a place, or likely
to be especially affected by a management plan for a place. This
may include the release of a draft of a management plan for publiccomment.

Non-Statutory Framework
The UNESCO Resource Manual entitled Managing Cultural World
Heritage (p. 125) encourages processes at World Heritage places
that ‘manage collaboration among different interest groups in the
public and private sectors’. It encourages a ‘participatory approach’to the development of management processes (p 131).
The Australian Convict Sites Strategic Plan 2017–2020 includes
the objective ‘To give the Property a function in the life of thecommunity’. The Strategic Plan includes recommended strategies
to ‘Foster community engagement’ with the Australian Convict
Sites and to ‘Understand and promote the social and economic
value’ of those places.
The WA State Cultural Heritage Policy includes among its strategic
objectives: ‘Improve public awareness and appreciation of thestate’s heritage through the development of a comprehensive
heritage education and learning strategy’.
The WA State Cultural Heritage Policy includes among its strategic
objectives: ‘Promote and celebrate the value and diversity ofWestern Australia’s heritage through partnerships that will enhancecommunity appreciation’.
The WA State Cultural Heritage Policy includes among its strategic
objectives: ‘investigate innovative ways, including corporate
sponsorship and entrepreneurial activity, of increasing the levelof conservation of heritage places so as to retain their cultural
significance’.
Article 4.1 of the Burra Charter states that: ‘Conservation shouldmake use of all the knowledge, skills and disciplines which cancontribute to the study and care of the place’. This knowledge may
derive from experts or laypersons. In relation to ‘social significance’
the views of the relevant community are particularly important.
Article 12 of the Burra Charter stipulates: ‘Conservation,interpretation and management of a place should provide forthe participation of people for whom the place has significant
associations and meanings, or who have social, spiritual or othercultural responsibilities for the place’.
Article 24.1 of the Burra Charter states: ‘Significant associations
between people and a place should be respected, retained and not
obscured’. These associations are best identified and understood
through effective community engagement.

Extent Heritage / Lovell Chen // 52

COMMUNITY ANDSTAKEHOLDER ENGAGEMENT

constraints

Proposed Actions

Although community consultation may sometimes slow down adecision-making process, where such consultation is necessary it
must be undertaken (unless precluded by an overwhelming safety
or conservation consideration).

ACTION 13

opportunities

Make this HMP publicly accessible online.
ACTION 14
Invite public submissions on future masterplans relating toFremantle Prison.

A participatory management approach presents opportunities
for relationship-building, which assists with the objective of theAustralian Convict Sites Strategic Plan 2017–2020 ‘To give theProperty a function in the life of the community’.

overarching policy framework
POLICY 16
Fremantle Prison will involve interested, knowledgeable andengaged community-members in the life of the place by adopting aparticipatory approach to its management. This will be undertaken
without inappropriately compromising efficiency and clarity indecision making.
POLICY 17
While acknowledging the opinions of laypersons, Fremantle Prison
will ultimately rely on the advice of experts in making conservation
decisions especially in relation to the form, function and locationof new development and the conservation of fabric (buildings andobjects).
POLICY 18
Fremantle Prison will engage in community consultation consistent
with Schedules 5, 5A and 5B of the Environment Protection andBiodiversity Conservation Regulations 2000, which state (atSchedule 5, 1.02): ‘The management should provide for public
consultation on decisions and actions that may have a significant
impact on the property’.
POLICY 19
Fremantle Prison will actively seek out mutually beneficial
relationships with corporate citizens in the private sector and withother public institutions.
POLICY 20
Fremantle Prison will maintain a strong relationship with WA
Department of Justice personnel and its former Prison population
through ongoing engagement and interpretation, while meeting theimperative of conserving the place’s OUV.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 53

Governance and financeObjectives

Statutory Framework

Our objectives are as follows:

Section 47 of the EPBC Act allows for the creation of a ‘bilateralagreement’ between the Commonwealth and a state where this will
ensure ‘an efficient, timely and effective process for environmental
assessment and approval of actions’. Such a bilateral agreement
was entered into in 2014 for a specifically defined range of actions.
Where an action may trigger the EPBC Act referral process,Fremantle Prison should consult with the Australian Department ofEnvironment and Energy to ascertain whether or not the referral
process may be governed by the 2014 bilateral agreement.

•

to manage Fremantle Prison in a commercially sustainable
manner that maximises revenues that can be used forongoing conservation actions•

decision-making and reporting that is based on accurate
information and expert advice•

decision-making and reporting that is effective, timely,transparent, and robust in the face of public scrutiny•

decision-making that is collaborative and inclusive, and which
is appropriately responsive to the views of the AustralianConvict Sites Steering Committee, the Department ofPlanning, Lands and Heritage, the Heritage Council ofWestern Australia and the Department of Environment andEnergy•streamlined assessment and approvals processes that
integrate local, state and national requirements•

an efficient organisational structure that makes best use ofskills and experiencerisks to avoid
We have identified the following risks to be avoided:•

The heritage values at Fremantle Prison are compromised
due to poor decision-making processes.

•

Conservation actions at Fremantle Prison are not implemented
in a timely manner because the decision-making process
is cumbersome or because roles and responsibilities are
misunderstood.

•

There is a failure to manage strategic and organisational risks.

•

Decisions are made that create public perceptions of
mismanagement.

•

Insufficient revenues are generated (through private or public
sources) to appropriately conserve the place’s heritage
values.

•Resources are deployed inefficiently with regard to the (attimes) competing needs of assessed heritage values.

•

There is a failure to secure conservation funding to address
current backlog.

FREMANTLE PRISON // Overarching Policy Areas

Relatedly, Schedule 5 (Reg. 10.01) of the Environment Protection
and Biodiversity Conservation Regulations 2000 states that a HMP
for a World Heritage property should: ‘promote the integrationof Commonwealth, state or territory and local government
responsibilities for the property’.
Schedule 5 (Reg. 10.01) of the Environment Protection andBiodiversity Conservation Regulations 2000 includes the manage­
ment principles that apply at places on the WHL. These include: ‘The
management should provide for public consultation on decisions
and actions that may have a significant impact on the property’.
Schedule 5 (Reg. 10.01) of the Environment Protection andBiodiversity Conservation Regulations 2000 includes the manage­
ment principles that apply at places on the WHL. These include:‘[Management planning must] provide for continuing monitoring andreporting on the state of the World Heritage values of the property’.
Fremantle Prison must provide periodic reporting to UNESCO in
partnership with the other Australian Convict Sites, every five years.
Schedule 5B (Reg 10.01E) of the Environment Protection
and Biodiversity Conservation Regulations 2000 includes the
management principles that apply at places on the NHL. These
include: ‘The management of National Heritage places should
use the best available knowledge, skills and standards for thoseplaces, and include ongoing technical and community input todecisions and actions that may have a significant impact on their
National Heritage values’.
Fremantle Prison is bound by the provisions of the Western
Australian Freedom of Information Act 1992. The Act provides
Australians with a legally enforceable right of access to government
documents, including those kept by agencies like Fremantle
Prison. This right is based on the premise that it enhances thetransparency of policy making, administrative decision-making
and government service delivery. Decisions made in relation to
the Prison’s heritage management will generally be accessible tomembers of the public upon the making of a FOI application.
Fremantle Prison must maintain records in a manner that is consistent
with the Western Australian State Records Act 2000. Section 16 of
the Act requires Fremantle Prison to have a ‘record keeping plan’that will ‘ensure that the government organization properly andadequately records the performance of the organization’s functions’.
The ‘principles and standards’ expected of this record keeping by theState Records Commission are presented on ‘SRC 1 – Government
Record Keeping’ (February 2002).

Extent Heritage / Lovell Chen // 54Governance and finance

Non-Statutory Framework

overarching policy framework

The UNESCO Resource Manual entitled Managing Cultural World
Heritage (p. 124) requires management plans for World Heritage
places to provide ‘a transparent description of how the existing
system functions and how it can be improved’. This includes theestablishment of a framework for making informed decisions.

POLICY 21

The UNESCO Resource Manual entitled Managing Cultural World
Heritage (p. 125) encourages decision-making that helps ‘torationalize existing resources and facilitate funding’.
The UNESCO Resource Manual entitled Managing Cultural World
Heritage encourages participatory decision-making.
Article 4.1 of the Burra Charter states that: ‘Conservation shouldmake use of all the knowledge, skills and disciplines which cancontribute to the study and care of the place’. These should inform
decision-making at Fremantle Prison.
Article 6.1 of the Burra Charter states that: ‘The cultural significanceof a place and other issues affecting its future are best understoodby a sequence of collecting and analysing information before
making decisions. Understanding cultural significance comes first,
then development of policy and finally management of the placein accordance with the policy. This is the Burra Charter Process’.

constraints
Actions at Fremantle Prison that may appear obvious to thelayperson may sometimes need to be delayed while the advice ofan expert is sought. This will sometimes be the case even where
the expert advice is costly.

opportunities
Participatory decision-making presents opportunities for
relationship-building, which assists with the objective of theAustralian Convict Sites Strategic Plan 2017–2020 ‘To give theProperty a function in the life of the community’.

FREMANTLE PRISON // Overarching Policy Areas

This HMP will occupy the uppermost tier in the hierarchy ofmanagement documents at Fremantle Prison. Where there isinconsistency between the HMP and another document, the HMP
will prevail to the extent of the inconsistency.
POLICY 22
All decisions at Fremantle Prison will be made having regard to
this HMP. The paramount consideration in any decision-making
process will be the conservation of Fremantle Prison’s heritage
values, especially its OUV.
POLICY 23
Ownership of Fremantle Prison should continue to vest in thestate of Western Australia. The Western Australian Department ofPlanning, Lands and Heritage (and its successors) should haveongoing care and control of the place. Upon future changes tomachinery of Government, Fremantle Prison should remain with the
Department responsible for maintaining the WA State Register of
Heritage Places, under the purview of the Heritage Council of WA.
POLICY 24
Fremantle Prison should continue to be run as a public asset, withrevenues derived from its operation being re-invested in the place.
At the same time, Fremantle Prison will actively seek out mutuallyadvantageous commercial collaborations with individuals andprivate corporations.
POLICY 25
Fremantle Prison will continually seek to improve decision-making
processes, including regulatory processes imposed by different
tiers of government.
POLICY 26
Fremantle Prison should maintain a secure funding stream being
a combination of admission fees, merchandising revenues,
donations and government allocations and subsidies. This should
include ongoing and project funding from the state and Australian
governments.

Extent Heritage / Lovell Chen // 55Governance and finance

POLICY 27
Fremantle Prison will continue to liaise with the Heritage Council ofWestern Australia to ensure an effective and appropriate balanceis met between the conservation of the place’s OUV and its state
heritage significance.
POLICY 28
Heritage management decisions that must go through State andlocal planning approvals processes must be referred to, andapproved by, the Heritage Council of Western Australia.
POLICY 29
Heritage management decisions are to be made by Fremantle
Prison’s Heritage Conservation Manager in consultation with
relevant internal office holders and, where appropriate, external
consultants.
POLICY 30
Fremantle Prison should observe a ‘good neighbour’ policy
with respect to the City of Fremantle, including in relation to theWest End Conservation Area and its successors. It should share
information, consult with council representatives, and comply with
the City of Fremantle’s Local Planning Scheme No. 4 so far as ispossible having regard to the overriding obligation to conserve theplace’s OUV, National Heritage values and state significance.
POLICY 31
Fremantle Prison will be managed to meet its statutory obligations,
including those imposed by the EPBC Act, the Heritage of Western
Australia Act 1990, the Western Australian Aboriginal Heritage Act
1972, and the City of Fremantle’s Local Planning Scheme No. 4.

Proposed Actions
ACTION 15
Prepare a Masterplan for Fremantle Prison that is consistent withthis HMP and which gives clear direction with respect to possible
future capital works projects. Use this as the basis for forward
planning, including resource allocation.
ACTION 16
Continue to prepare specific conservation management strategies
that are consistent with this HMP and which identify short-termand long-term capital works projects. Use these as the basis forforward planning, including resource allocation.
ACTION 17
Give consideration to the development of a Fremantle Prison
Conservation Fund or other philanthropic funding mechanisms fororganisations and individuals to make financial contributions to theconservation of the place.
ACTION 18
Where an action may trigger the EPBC Act referral process, initiate
consultation with the Australian Department of Environment andEnergy to ascertain whether or not the referral process may be
governed by the 2014 bilateral agreement. In any event, observe
the referrals provisions of the EPBC Act.
ACTION 19
Continue to maintain the Risk Management Framework, Risk
Register and associated controls.

POLICY 32
Decision-making at Fremantle Prison will be based on accurate
information and expert advice. Decisions will be transparent androbust in the face of public scrutiny.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 56keeping a record

Objectives
Our objectives are as follows:•

to maintain an ongoing record of Fremantle Prison employing
a range of media. This record will serve as a tool to (a)document the place’s heritage values and (b) inform andillustrate decision-making•

to document continuity and change at Fremantle Prison•

to realise the potential of Fremantle Prison as a teaching andlearning resource for present and future generations•

to maintain a record of decision-making at Fremantle Prison
to ensure transparency and efficiency

risks to avoid

In assessing impacts of ‘controlled actions’ under the EPBC Act the
Minister will have regard to whether or not ‘the person proposing
to take the action has a satisfactory record of responsible
environmental management and compliance with environmental
laws’ (Reg. 5.03A (1)). Efficient ongoing record-keeping will assist
to demonstrate Fremantle Prison’s excellent record in this regard.
Fremantle Prison is bound by the provisions of the Western
Australian Freedom of Information Act 1992. The Act provides
Australians with a legally enforceable right of access to government
documents, including those kept by agencies like Fremantle
Prison. This right is based on the premise that it enhances thetransparency of policy making, administrative decision-making
and government service delivery. Decisions made in relation to
the Prison’s heritage management will generally be accessible tomembers of the public upon the making of a FOI application.

•

Significant changes to the form, function or fabric of Fremantle
Prison are not appropriately recorded.

•

Conservation decisions at Fremantle Prison are based onimperfect information due to poor record-keeping.

Fremantle Prison must maintain records in a manner that is
consistent with the Western Australian State Records Act 2000.
Section 16 of the Act requires Fremantle Prison to have a ‘record
keeping plan’ that will ‘ensure that the government organization
properly and adequately records the performance of theorganization’s functions’. The ‘principles and standards’ expected ofthis record keeping by the State Records Commission are presented
on ‘SRC 1 – Government Record Keeping’ (February 2002).

•

Knowledge about any part of the Prison and its heritage values
is lost due to a failure to appropriately record and document.

Non-Statutory Framework•

There is a lack of clarity concerning the decision-making
process, regarding, for example, when certain decisions were
made, why they were made, and by whom.

Article 6.1 of the Burra Charter states that: ‘The cultural significanceof a place and other issues affecting its future are best understoodby a sequence of collecting and analysing information before
making decisions …’•Records are lost because of inadequate protection against
preventable risks, e.g. theft, fire, flood and pests.

•

Fremantle Prison engages in ongoing research as part of its
programs of interpretation and physical conservation. This
research may be undertaken by external consultants, interested
volunteers, as well as Fremantle Prison staff. The result is thatlarge quantities of research data are generated. There is therisk that costly historical research is unnecessarily duplicated,
important data are lost, or factual errors creep into relevant
documents leading to poor physical conservation outcomes.

We have identified the following risks to be avoided:

statutory framework
The Environment Protection and Biodiversity Conservation
Regulations 2000 (Schedule 5, 2.02[e]) states that management
plans for places on the WHL should include mechanisms ‘todeal with the impacts of actions that individually or cumulatively
degrade’ World Heritage values. An effective and comprehensive
system of recording and documentation assists in identifying
cumulative impacts on heritage places.
The Environment Protection and Biodiversity Conservation
Regulations 2000 (Schedule 5, 2.02[g]) state that the management
regimes at a place on the WHL ‘must provide for continuingmonitoring and reporting on the state of the relevant World
Heritage values’. Similar provisions apply for National Heritage
values (Reg. 10.01C [ix]).
FREMANTLE PRISON // Overarching Policy Areas

Article 27.2 of the Burra Charter states: ‘Existing fabric, use,
associations and meanings should be adequately recorded before
and after any changes are made to the place.’
Article 31 of the Burra Charter states: ‘New evidence may come tolight while implementing policy or a plan for a place. Other factors
may arise and require new decisions. A log of new evidence andadditional decisions should be kept.’
Article 32 of the Burra Charter states: ‘The records associatedwith the conservation of a place should be placed in a permanentarchive and made publicly available, subject to requirements of
security and privacy, and where this is culturally appropriate.’
Article 33 of the Burra Charter states: ‘Significant fabric which
has been removed from a place including contents, fixtures andobjects, should be catalogued, and protected in accordance with
its cultural significance.’
The UNESCO Resource Manual entitled Managing Cultural
World Heritage (pp 124–5) encourages managers of World
Heritage places to monitor the implementation of conservation
policies against baseline data established through adequate
documentation.
A number of state governments have prepared guideline documents
on how to maintain an archival record of a heritage place. The
Heritage Council of Western Australia has prepared a guideline
document entitled Guide to Preparing an Archival Record. Moredetail on how a photographic archival record of a heritage place
Extent Heritage / Lovell Chen // 57keeping a record

may be conducted is presented in the NSW guideline documents
entitled How to Prepare Archival Records of Heritage Items(Heritage Office 1998) and Photographic Recording of Heritage
Items Using Film or Digital Capture (Heritage Office 2006).

constraints
Although the goal should be to make all archival records concerning
Fremantle Prison publicly accessible, in some circumstances thiswill not be desirable or appropriate, e.g. due to security or privacy
imperatives, commercial considerations, environmental sensitivity,or where this would be culturally inappropriate.

opportunities
Detailed archival records of conservation issues and responses at
Fremantle Prison will comprise an excellent teaching and learning
resource with potential for use in training local and national heritage
professionals. This is consistent with one of the objectives of the
WA ‘State Cultural Heritage Policy’, i.e. ‘Promote sound practice inthe conservation, management and adaptation of heritage places’.
Ongoing archival recording at Fremantle Prison will yield, as aby-product, materials that will be useful for interpretation andmarketing, e.g. high-quality photographs and drawings, oral
histories. Fremantle Prison’s Intellectual Property in any records
produced may also present opportunities for generating resources
for the ongoing conservation of the place.

Overarching Policy Framework
POLICY 33

POLICY 36
Fremantle Prison will continue to support and encourage broadranging research into the history of the Prison, as a means ofenhancing Prison management and interpretation. This will include
the collection of data from other sources such as volunteers.
POLICY 37
Fremantle Prison will continue to maintain a transparent record ofits decision-making processes so that the rationale for conservation
decisions, their outcomes, and the identity of decision-makers
themselves, is recoverable. These records will be managed inaccordance with the Department’s Record Keeping Plan.
POLICY 38
All records relating to Fremantle Prison will be stored in an
appropriate repository safeguarded against risks such as flood,theft, fire and pests. Digital storage of records is appropriate
provided digital data are appropriately safeguarded against
corruption or loss and are future-proofed.
POLICY 39
Fremantle Prison’s documentation and recording program will takea holistic view of the place and will include maintaining a recordof ‘lived experiences’ and ‘stories’, not just fabric and form, e.g.
through its ongoing oral history program using text, audio andvideo (see also ‘Telling the Story’ overarching policy).
POLICY 40
Fremantle Prison will monitor all initiatives that have the potential to
adversely impact the place’s heritage values, e.g. visitor impacts,fabric conservation, adaptive reuse.

Fremantle Prison will maintain an ongoing record of the place,
employing a range of media, and capturing continuity and change.
This will integrate with data management systems within the
Department of Planning, Lands and Heritage.
POLICY 34
Where adverse impacts on the heritage values of Fremantle
Prison would result from proposed works, it will be a conditionof the works proceeding that an archival record of the impacted
location be produced beforehand. This may include photographic
archival recording or measured drawings, or both. This policy
will be particularly relevant where significant fabric would be lost
through physical intervention and where a modification of the
Prison’s setting might occur. The level of documentation achieved
will be sufficient to (a) record the condition and appearance of theplace prior to the change and after it, (b) indicate the reason for thechange, and (c) monitor the impacts of the change into the future.
POLICY 35
Fremantle Prison will make its records publicly accessible insofar
as legislation, Department policy, security, commercial and privacy
considerations, and cultural sensitivities allow.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 58keeping a record

Proposed Actions
ACTION 20
Maintain a program to digitise historic archival material from
Fremantle Prison and make this data publicly accessible online(see also ‘Telling the Story’ overarching policy and ‘Movable
Heritage’ overarching policy).
ACTION 21
Establish a future-proofed, digital repository for historical data
generated by Fremantle Prison personnel, external consultants andnon-professional sources. Establish protocols to ensure that thedata (e.g. words, pictures, recordings) are appropriately sourced
and referenced. This may include data collected ‘piecemeal’ aspart of ongoing works at the Prison. It should form a constantly
evolving resource.
ACTION 22
Modify the existing Disaster Preparedness Plan (April 2016) to,at a minimum, identify: (a) appropriate means of storing hardcopy
and digital data at Fremantle Prison and (b) measures to be
implemented to ensure that hard copy material is not damaged
through fire, flood, pests or natural deterioration, and are futureproofed.
ACTION 23
Continue to maintain Building Condition Assessments,
Maintenance Schedules and Schedules of Conservation Works forworks at Fremantle Prison, and retain those records indefinitely.
ACTION 24
Continue to monitor visitors and visitor numbers at Fremantle
Prison to ensure that adverse heritage impacts are identified early
and appropriately responded to.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 59

movable heritage

Objectives•

to conserve the heritage values of Fremantle Prison insofar
as those values are expressed in its movable heritage –especially, but not exclusively, its OUVloss of or damage to objects in the Fremantle Prison Collection
due to poor risk preparedness•

the acquisition or disposal of objects in breach of the law or
ethical obligations•

to tell the story of Fremantle Prison through its movable
heritage – especially, but not exclusively, its OUV••

to adhere to a collections policy that is determined in the first
instance by Fremantle Prison’s assessed heritage values

a collection of objects at Fremantle Prison that fails to reachits potential as a teaching and learning resource because it
is unrepresentative of the place’s heritage values or because
access to it is unnecessarily restricted•

to acquire objects in an ethical manner and in compliance withall legal requirements•

to acquire objects in a sustainable manner (having regard
to budgetary, conservation and storage considerations),
including through purchase, donation, gift or archaeologicalinvestigation•

to maintain a collection of objects at Fremantle Prison that is
a valuable teaching and learning resource about the place’s
heritage values•

to manage Fremantle Prison’s movable heritage using
high quality and appropriately resourced storage, physicalconservation and exhibition facilities•

to manage the collection of objects at Fremantle Prison,
showing regard for the themes identified in the ‘Fremantle
Prison Collection Policy’ (March 2016), prioritised to reflect
those historical themes expressed in (i) the WHL’s Statementof Outstanding Universal Value, (ii) the assessment of heritage
values presented on the NHL, (iii) the SRHP’s Statementof Significance and (iv) the Fremantle Prison Collection
Significance Assessment 2017

Our objectives are as follows:••

to conserve Fremantle Prison’s movable heritage with anappropriate appreciation of the risks to its condition, and to bein an appropriate state of risk prevention preparedness•

to keep appropriate records in relation to Fremantle Prison’s
movable heritage

risks to avoid
We have identified the following risks to be avoided:•a collection of objects that is not representative of the range ofassessed heritage values at Fremantle Prison, which spans
multiple periods•

a collection that fails to balance the imperative to conserve
Fremantle Prison’s OUV and the importance of representing
the post-convict era heritage values of the place•loss of or damage to objects in the Fremantle Prison Collection
due to under-resourced or below-standard storage, physicalconservation or exhibition facilities

FREMANTLE PRISON // Overarching Policy Areas

statutory framework
The World Heritage Convention defines ‘cultural heritage’ for the
purposes of listing to be ‘monuments’, ‘groups of buildings’ and‘sites’ rather than movable heritage (such as the Fremantle Prison
collection). However, the Australian Environment Protection andBiodiversity Conservation Regulations 2000 (Reg. 10.01) include
a requirement to ‘present and transmit to future generations’ theheritage values of places on the WHL. The Fremantle Prison
Collection is an excellent and crucial resource for presenting andtransmitting Fremantle Prison’s OUV.
The Statement of Significance for Fremantle Prison on the
NHL states that the place’s heritage values are embodied by
the buildings ‘including its underground engineering heritage,archaeological subsurface remains, records and collections’(italics added). Also, the Australian Environment Protection andBiodiversity Conservation Regulations 2000 (Reg. 10.01E) include
a requirement to ‘present and transmit’ the heritage values ofplaces on the NHL. The Fremantle Prison Collection is an excellent
and crucial resource for presenting and transmitting Fremantle
Prison’s National Heritage values.
The Australian Protection of Moveable Cultural Heritage Act 1986
governs the sale of ‘objects that are of importance to Australia, orto a particular part of Australia, for ethnological, archaeological,
historical, literary, artistic, scientific or technological reasons’(Section 7). Many of the objects in the Fremantle Prison Collection
are likely to satisfy this definition and would be subject to strict
export controls.
Section 3 of the Heritage of Western Australia Act 1990 defines‘place’ to include any buildings on the identified area of land and‘their contents relevant to the purposes of’ the Act (being theconservation of heritage places).
The Heritage of Western Australia Act 1990 and Aboriginal Heritage
Act 1972 govern the management of archaeological artefacts
recovered at Fremantle Prison (see the overarching policies inrelation to Archaeology).

Non-Statutory Framework
The Burra Charter advocates for the management of heritage
places having regard to ‘objects’ at the place that contribute to
the place’s cultural significance (see Explanatory Note to Article

Extent Heritage / Lovell Chen // 60

movable heritage

1.14). Managers of heritage places must also seek to retain thecontribution that ‘related objects’ make to the place (Article 11).
Related objects contribute to the cultural significance of a place
but are not at the place.

management and adaptation of heritage places’. There areopportunities to utilise the Fremantle Prison collection for training
and skills development for students and early career professionals
in museums practice and archaeology.

Article 10 of the Burra Charter states: ‘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 atemporary basis for treatment or exhibition; for cultural reasons; forhealth and safety; or to protect the place. Such contents, fixturesand objects should be returned where circumstances permit and it
is culturally appropriate’.

Fremantle Prison currently collaborates with other WA museums
and galleries. There are opportunities for Fremantle Prison tocontinue and expand these collaborations. This might include
collaborations with the other Australian Convict Sites.

The Australian Collections Council defines significance in relation
to objects in collections as ‘the values and meanings that items andcollections have for people and communities’ (see R. Russell and K.
Winkworth, Significance 2.0: a guide to assessing the significanceof collections, South Australia, 2009, p. 10). This definition must beread subject to the assessed OUV, National Heritage values andstate heritage significance of Fremantle Prison.

Fremantle Prison will manage its collection of objects consistent
with the ‘Fremantle Prison Collection Policy’ (March 2016) andthe ‘Fremantle Prison Collection Significance Assessment’(October 2017) read with, and subject to, the WHL’s Statement of
Outstanding Universal Value, the assessment of heritage values
presented on the NHL, and the WA State Heritage Register’sStatement of Significance.

Fremantle Prison is a member of Museums Australia andrecognises ‘The National Standards for Australian Museums andGalleries’ (2014) and the ‘Museums Australia Incorporated Code of
Ethics’ (1999) as guiding principles.

POLICY 42

Fremantle Prison manages its collection according to the‘Fremantle Prison Collection Policy’ (March 2016). That policy
document must be read subject to this HMP.

constraints
Notwithstanding the shortage of storage space at Fremantle
Prison, and competing demands on the budget, it will be necessary
to maintain high-standard storage, physical conservation anddisplay facilities for the movable heritage there.

OPPORTUNITIESThe existing curatorial facilities in Building 31 (the West
Workshops) can be improved with minimal physical intervention
and no significant adverse impact on the place’s heritage values.
This would have positive heritage outcomes with respect to ahighly significant element of the place (its movable heritage).
There are opportunities to consolidate the Fremantle Prison
collection into a high-quality storage space that meets industry
standards within the Prison grounds while providing for different
environmental requirements. The present storage facilities, indisparate locations across the site, pose a risk to the heritage
values of the place (in terms of damage, loss and deterioration ofits movable heritage). This HMP identifies locations at Fremantle
Prison that present development opportunities.

overarching policy framework
POLICY 41

Fremantle Prison will balance the imperative to conserve the OUVof the place against the need to conserve the more recent layers of
the place’s history and heritage, insofar as that is possible throughits movable heritage.
POLICY 43
Fremantle Prison will utilise its movable heritage to meet theaims expressed in the Australian Convict Sites Strategic Plan
2017–2020 which include: Present and interpret the Property’s
OUV, emphasising each site’s contribution to the whole (i.e. of theConvict Site World Heritage listing).
POLICY 44
Where there are competing demands on Fremantle Prison’s
resources such that it must choose between two or more objects(in terms of acquisition, conservation priorities, de-accession,storage or display) Fremantle Prison will have regard to the ways
in which that object embodies and expresses the place’s OUV(in the first instance), its National Heritage values (in the second
instance) and the site’s state significance (in the third instance).
This will be done on a case-by-case basis. In some circumstances
it will be appropriate to (for example) acquire an object that does
not embody the place’s OUV instead of one that does, where thatOUV is adequately embodied and expressed through other objects
or means.
POLICY 45
Fremantle Prison should conserve its collection of objects utilisinghigh-standard conservation facilities, ideally onsite.
POLICY 46

As a response to the critical shortage of suitable storage space at
Fremantle Prison, there is an opportunity to rationalise the existingcollection. This may include the disposal of objects of lesser
significance or which are not necessary to the communication of
its heritage values.

Fremantle Prison should consolidate its collection within highquality storage facilities.

The WA State Cultural Heritage Policy includes among its
strategic objectives: ‘Promote sound practice in the conservation,

Fremantle Prison will continue to observe its regular review andupdate of its Disaster Preparedness Plan dated April 2016.

FREMANTLE PRISON // Overarching Policy Areas

POLICY 47

Extent Heritage / Lovell Chen // 61

movable heritage

POLICY 48
Fremantle Prison will make its collection of objects available to bonafide researchers and teachers insofar as the physical well-being of
the objects allows and having regard to cultural sensitivities.
POLICY 49
In the conservation of its objects, Fremantle Prison should observean active program of collaboration with the other Australian Convict
Sites and with other museums and galleries.

Proposed Actions
ACTION 25
Review the ‘Fremantle Prison Collection Plan’ (March 2016)
to ensure consistency with this HMP. In particular, the March
2016 document must reflect that the collection will be managed
according to assessed levels of significance (OUV, then National
Heritage values, then state significance), then the provenanceand research value of individual objects, and then to their rarity,
representativeness, condition/completeness and interpretative
capacity.
ACTION 26
Engage appropriately qualified professionals to determine thestorage requirements (especially in terms of floor space) of theFremantle Prison Collection. Initiate discussions with an architect
to explore options in relation to the location and design of a new
onsite storage facility.
ACTION 27
Initiate discussions with an architect to explore design options
for improved conservation facilities in Building 31 (the West
Workshops) that are sympathetic to the building’s heritage values
in addition to other potential suitable buildings.
ACTION 28
Manage objects within the Fremantle Prison Collection subject
to this HMP, and having regard to the criteria presented in the‘Fremantle Prison Collection Policy’ (March 2016), and the‘Fremantle Prison Collection Significance Assessment’ (October
2017). It is appropriate to de-accession/dispose of those objects
that do not meet the threshold for inclusion in the Collection(although some may be retained as a ‘Secondary Collection’ forteaching and other purposes). In particular, this might include soil
samples recovered from past archaeological excavations and theold building resources (bricks and other elements) stockpiled fromprevious conservation works.
ACTION 29
Create a Secondary Collection of objects used for the purpose ofinterpretation, education, loans and research.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 62new development

Objectives
Our objectives are as follows:•

to ensure that new development at Fremantle Prison does not
impact on its heritage values (especially, but not exclusively,
its OUV)•to ensure that new development at Fremantle Prison supports
the ongoing management and viable use of the place as apublicly accessible World Heritage listed Australian Convict
Site•

to ensure that decision-making on development at Fremantle
Prison is robust, informed, balanced and expert•

to preference conservation of significant fabric and compatible
use of existing buildings over new development•

to ensure new development is respectful of the Prison’s
unique character and physical attributes, including its
historical planning and layout, and the visual and functional
relationships between buildings and spaces•

to ensure new development is sympathetic to and in keepingwith the character of the historic Prison buildings•

to ensure that decision-makers at Fremantle Prison are
fully informed and aware of the different tolerances andsensitivities of buildings and spaces at the Prison, in terms ofpotential for new development••

to obtain expert heritage advice and input into the earlyplanning stages of new development, to ensure impacts are
avoided or mitigatedto engage and consult with the various statutory heritage
authorities, in the early planning stages of development, andthroughout the statutory approvals processes

Please note that ‘new development’ may include new or
replacement buildings, structures or minor works, also known as‘interventions’risks to avoid
We have identified the following risks to be avoided:•

new development or works that adversely impact Fremantle
Prison’s heritage values (especially, but not exclusively, its
OUV)•

the introduction of new buildings or other forms of development
which are not necessary to support the management and useof the place as an Australian Convict Site•opting for new development when existing buildings areunderutilised and offer opportunities for adaptation (other thanwhere the proposed use is demonstrably not compatible withan existing building)

FREMANTLE PRISON // Overarching Policy Areas•

new development that is physically or visually impactful suchthat it adversely impacts the heritage values of Fremantle
Prison, especially having regard to the character and physicalattributes of the Prison•

inadequate or ill-informed expert advice, resulting in poor
planning and execution of new development, and avoidable
heritage impacts•

inadequate ordevelopment•

inadequate consultation with the statutory heritage authorities,
before or during the statutory approvals processes, resulting
in drawn-out and inefficient processes

poor

documentation

of

the

proposed

Statutory Framework
Schedule 5 (Reg. 10.01) of the Environment Protection andBiodiversity Conservation Regulations 2000 includes the
management principles that apply to places on the WHL. Theseemphasise that the primary purpose of management of the cultural
heritage of a World Heritage property must include protecting andconserving the World Heritage values of the place.
Schedule 5B (Reg 10.01E) of the Environment Protection
and Biodiversity Conservation Regulations 2000 includes the
management principles that apply at places on the NHL. Theseemphasise that the objective in managing National Heritage places
includes to protect and conserve their National Heritage values.
The EPBC Act governs ‘actions’ that have, or are likely to have,a significant impact on a matter of ‘national environmental
significance’. Places on the WHL and NHL (such as Fremantle
Prison) are matters of national environmental significance. An‘action’ may include a project, a development, an undertaking,an activity or a series of activities. It will include the constructionof new built form and demolition works in and near Fremantle
Prison.
Before taking an action that could have a significant impact on theheritage values of Fremantle Prison, the action must be ‘referred’
to the Australian Minister for the Environment and Energy. The
Minister will determine whether or not further and more formal
assessment and approval is required, i.e. a ‘controlled action’.
The Heritage of Western Australia Act 1990 protects places
included on the SRHP, including Fremantle Prison. The Statementof Significance for Fremantle Prison makes the following
observations that are relevant to the design of sympathetic
new development in it and in the vicinity: it has an ‘austere andmonumental quality’ and is ‘set in a precinct characterised by ahomogeneity of form, materials, texture and colour’ and these‘make it a landmark feature of Fremantle’.
The City of Fremantle Local Planning Scheme No. 4 zones
Fremantle Prison (not including the Fairbairn Street Ramp) as a

Extent Heritage / Lovell Chen // 63new development

Regional Reserve. By Section 2.2 of Local Planning Scheme No. 4
Council approval is not required for the commencement or carryingout of any use or development on a Regional Reserve. However,approval is required from the Western Australian Planning
Commission. New development, including demolition, within theFremantle Prison Regional Reserve will need to be referred to
the Western Australian Planning Commission for approval. The
Heritage Council of Western Australia will be consulted (pursuant
to Section 11 of the Act). Works to the Fairbairn Street Ramp will
require City of Fremantle approval.

Non-Statutory Framework
Article 87 of the Operational Guidelines for the Implementation of
the World Heritage Convention states that the integrity of places
nominated to the WHL must be of a high level. Integrity is a‘measure of the wholeness and intactness’ of the place’s heritage
values. It states that these can suffer as a result of the ‘adverse
effects of development …’
Article 96 of the Operational Guidelines for the Implementationof the World Heritage Convention emphasises the importance ofprotecting, managing, sustaining or enhancing the OUV, including
the integrity and authenticity of the place.
The UNESCO Resource Manual entitled Managing Cultural
World Heritage (p. 124) requires management plans for World
Heritage places to include a range of policies and/or objectives
for the subject World Heritage place; and (p. 125) to provide
a framework for making informed decisions and to managechange. Interventions should also be ‘thoughtfully designed’ toprotect the OUV.
Article 3.2 of the Burra Charter states that: ‘Changes to a placeshould not distort the physical or other evidence it provides, nor bebased on conjecture’.
Article 15.1 of the Burra Charter states that: ‘Change may benecessary to retain cultural significance, but is undesirable where
it reduces cultural significance. The amount of change to a placeand its use should be guided by the cultural significance of theplace and its appropriate interpretation.’
Article 22.1 of the Burra Charter states that: ‘New work such asadditions or other changes to the place may be acceptable where
it respects and does not distort or obscure the cultural significanceof the place, or detract from its interpretation and appreciation.’
Article 22.2 of the Burra Charter states that: ‘New work should bereadily identifiable as such, but must respect and have minimal
impact on the cultural significance of the place.’
Article 27.1 of the Burra Charter states that: ‘The impact ofproposed changes, including incremental changes, on the cultural
significance of a place should be assessed with reference to thestatement of significance and the policy for managing the place.
It may be necessary to modify proposed changes to better retain
cultural significance.’

FREMANTLE PRISON // Overarching Policy Areas

constraints
The imperative to protect and conserve the World Heritage andNational Heritage values will place significant constraints on new
development at Fremantle Prison.
Where an extended period of time is taken for building approvals
this often places considerable pressure on the management ofFremantle Prison’s heritage values. This problem is particularly
acute where development approval is required for urgent
conservation works or where delays in gaining development
approval shorten the time period in which a grant may be acquitted.
A lack of clarity concerning the difference between ‘maintenance’and ‘development’ as defined by the Planning and Development
Act 2005 and the Heritage Act of Western Australia 1990 can
add delays to approvals processes that may impact essential
conservation works.

opportunities
Opportunities for development (new or replacement buildings,
structures, minor works and other ‘interventions’) is generally
restricted at Fremantle Prison. However, some spaces within the
Prison complex offer limited opportunities. The replacement ofexisting buildings or building components of little or no significancemay also offer opportunities for new works.

Overarching Policy Framework
POLICY 50
New development and works at Fremantle Prison should not impact
on or detract from the place’s heritage values. Such works should
respond to and be respectful of the Prison’s unique character andphysical attributes, historical planning and layout, and the visualand functional relationships between buildings and spaces. New
development should also be sympathetic to and in keeping withthe historic Prison buildings.
POLICY 51
New development and works at Fremantle Prison should support
the ongoing management and use of the place. In all instances itshould serve a necessary operational need.
POLICY 52
Conservation of significant fabric and structures, and whererequired compatible use of existing buildings, is preferred overnew development, including the introduction of new buildings.
POLICY 53
Decisions on new development at Fremantle Prison should be
informed and guided by an awareness of the different tolerancesand sensitivities of buildings and spaces at the Prison; and by
expert heritage advice and input including in the early planningstages of a development.

Extent Heritage / Lovell Chen // 64new development

POLICY 54

ACTION 31

Some of the spaces at Fremantle Prison are stark and open
and not suited to new development. These largely include theParade Ground and the sterile zones associated with the external
perimeter walls and internal yard and division walls.

In planning for new development the following steps should be
performed:

POLICY 55
The current character of the site, the sensitive visual issues, andthe desire to maintain the prominence of the Prison buildings,
particularly those of the convict-era and subsequent colonial Prison
period, place considerable constraints on the siting, visibility, scaleand height, and form and materials of new development.
POLICY 56•

Identify and justify the need for the development.

•

Explore and document all options for use of an existingbuilding or structure.

•

Ensure that the new building supports an operational
requirement.

•

Identify the resources and funding.

•Obtain heritage advice to address the following questions:

New buildings or works should adopt a consistent materials
palette and architectural language, which distinguishes them ascontemporary and avoids the proliferation of different building
styles and materials. New materials should not compete with, ordetract from, the primacy of the limestone.

›› Will the proposed development or works impact on theheritage values?

POLICY 57›› What conservation actions can be taken to compensate
for the impacts, and reveal/enhance significance?

For any new works or development, ensure that adequate
documentation is prepared in support of the proposal, for lodgementwith the development approval application. This includes detailedarchitectural drawings and a Heritage Impacts Statement (HIS
report); the latter to be prepared by a qualified heritage practitioner.

›› What actions can be taken to avoid or minimise theimpacts?

•

Identify if the works require statutory approval under the
Commonwealth, state and local statutes, including an EPBC
Act referral.

•

Identify if the proposal is a controlled action (this may havea considerable impact on the timeframe for EPBC Act
approval).

ACTION 30•

Consult with the relevant statutory heritage authority.

In determining the location and form of new development, sensitivity
must be shown with regard to different areas and spaces within the
Prison, their tolerance for change and their parameters for change.
Generally, in relation to siting, visibility, height and scale, form andmaterials always ask:•

Consult with stakeholders.

Proposed Actions

•

•

•

•

•

Will the new development be sited in a location which is
intrusive, impacts on a primary view of a significant building,or diminishes an understanding of the visual and functional
relationships between significant buildings and spaces?
Will the new development be visible from outside the Prison,
potentially forming a backdrop to the perimeter walls andimpacting on their external reading and legibility?
Will the height and scale of new development result in it being
overly dominant, and competing with the prominence andstatus of the significant buildings?
Will the form of the new building result in it being overly jarringor intrusive, and detracting from the austere character of thehistoric buildings and place overall?
Will the materials of the new building compete with thehistorically prevalent limestone, and diminish the aesthetic
impact of the stone buildings?

FREMANTLE PRISON // Overarching Policy Areas

ACTION 32
Consider the demolition of buildings and structures of little or no
significance in order to create opportunities for new or replacementbuildings. In determining the appropriateness of replacing ademolished building, ask:•

Has the demolition of the building enhanced the significanceof the Prison, through revealing or enhancing the presentationof significant buildings or spaces?

If the answer is yes, then constructing a new building in thislocation is not preferred.
If the answer is no, ask:•

Will the replacement building support an operational
requirement?

•

Is there no suitable existing building which can meet thisneed?

The replacement building should be designed with regard to theparameters set out here.

Extent Heritage / Lovell Chen // 65new development

ACTION 33
For all development approval applications, prepare supporting
documentation including:•detailed architectural drawings incorporating, where relevant
and as required:›› clear and precise demolition drawings including plans,elevations, roof and spatial elements›› plans, elevations and roof drawings of the new building(s)or structure•materials board•

photomontages•

views analysis

Always prepare a Heritage Impact Statement, to inform andsupport new development. It should contain:•

detailed description of the proposed development•

description of the affected area of the Prison•

photographs and graphics (where helpful)•an overview of the significance and sensitivity of the affectedarea•

explanation of/justification for the proposed development•

an overview of the impacts:›› how the proposed development will have a detrimental
impact on the heritage significance›› actions taken to avoid or minimise the impacts›› actions proposed to help compensate for the impacts›› other options explored and not pursued, with an
explanation/justification•reference to, and assessment against, the policies of this
HMP•

where relevant, an overview of the consultation undertaken
including with stakeholders

Where conservation works are proposed as part of a development,
detailed conservation documentation is also required, including
schedules of works. All decisions should be well documented.
ACTION 34
In determining the location and form of proposed new development,
have regard to the other policies and principles contained in this
HMP.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 66physical conservation
THIS OVERARCHING POLICY REFERS TO THE PHYSICAL CONSERVATION OF BUILDINGS AND THEIR FABRIC. THE CONSERVATION OF THE
FREMANTLE PRISON COLLECTION IS DEALT WITH UNDER ‘MOVABLE HERITAGE’.

Objectives

statutory framework

Our objectives are as follows:

Schedule 5 (Reg. 10.01) of the Environment Protection andBiodiversity Conservation Regulations 2000 includes the
management principles that apply to places on the WHL. Theseemphasise that the primary purpose of management of the cultural
heritage of a World Heritage property must include protecting andconserving the World Heritage values of the place.

•to conserve the heritage values of Fremantle Prison insofar
as those values are expressed in the fabric of its built form –especially, but not exclusively, its OUV•in prioritising conservation actions, to balance the imperative
to conserve fabric that embodies the place’s OUV against thedesirability of conserving fabric from the post-convict periodsof the Prison’s operations•

to conserve Fremantle Prison’s heritage buildings with
an appropriate appreciation of the risks to their physicalcondition, and to be in an appropriate state of risk prevention
preparedness•

to maintain a proactive system of monitoring and maintenanceso that conservation issues can be anticipated and guarded
against or identified at an early stage•

to keep appropriate records in relation to the conservation ofFremantle Prison’s built heritage, especially changes to its
fabric and condition•

to conserve the fabric of Fremantle Prison’s buildings inaccordance with the highest professional standards•

to make best use of both internal and external expertiserisks to avoid
We have identified the following risks to be avoided:•

inadequate or ill-informed expert advice resulting in poor
conservation outcomes and avoidable heritage impacts•

unqualified practitioners being engaged to carry out
conservation works resulting in adverse heritage impacts•

inadequate or poor documentation of conservation work•

adverse impacts to significant convict-era fabric in order toconserve fabric of lesser significance from a later period•

adverse impacts to post-convict era fabric due to conservationof convict-era fabric in circumstances where careful planning
could have conserved the fabric of both periods•

damage to the fabric of Fremantle Prison caused byenvironmental factors that could have been avoided throughan ongoing program of monitoring and maintenance or
thorough risk preparedness (e.g. fire, flood, rising damp)•

use of inappropriate or low-quality materials in undertaking
conservation works to the fabric of Fremantle Prison

Schedule 5B (Reg 10.01E) of the Environment Protection
and Biodiversity Conservation Regulations 2000 includes the
management principles that apply at places on the NHL. Theseemphasise that the objective in managing National Heritage places
includes to protect and conserve their National Heritage values.
The EPBC Act governs ‘actions’ that have, or are likely to have, asignificant impact on a matter of ‘national environmental significance’.
Places on the WHL and NHL (such as Fremantle Prison) arematters of national environmental significance. An ‘action’ may
include a project, a development, an undertaking, an activity or aseries of activities. It may include conservation works to buildings
at Fremantle Prison, especially where such works would requiresignificant intervention in original or historic fabric. Minor repairs andconservation works are unlikely to be ‘controlled actions’.
Before taking an action that could have a significant impact on theheritage values of Fremantle Prison, the action must be ‘referred’
to the Australian Minister for the Environment and Energy. The
Minister will determine whether or not further and more formal
assessment and approval is required, i.e. a ‘controlled action’.
The Heritage of Western Australia Act 1990 protects places
included on the SRHP, including Fremantle Prison. Certain works
to places on the SRHP require a ‘development referral’ including
some ‘conservation and remedial works’. However, minor works(such as maintenance and some like-for-like repairs) do notneed to be referred. It will be necessary to assess the need for adevelopment referral for proposed physical conservation works ona case-by-case basis.

Non-Statutory Framework
Article 87 of the Operational Guidelines for the Implementation of
the World Heritage Convention states that the integrity of places
nominated to the WHL must be of a high level. Integrity is a‘measure of the wholeness and intactness’ of the place’s heritage
values. It states that this can suffer as a result of ‘neglect’, e.g.
failure to implement physical conservation in a timely manner.
Article 96 of the Operational Guidelines for the Implementationof the World Heritage Convention emphasises the importance ofprotecting, managing, sustaining or enhancing the OUV, including
the integrity and authenticity of the place. ‘Authenticity’ refers to
the ability of people to understand the value attributed to a place
having regard to its ‘credibility’ and ‘truthfulness’. Highly invasive
conservation works can adversely impact Fremantle Prison’s
authenticity.
Article 3.2 of the Burra Charter states that: ‘Changes to a placeshould not distort the physical or other evidence it provides, nor bebased on conjecture’.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 67physical conservation

Article 15.1 of the Burra Charter states that: ‘Change may benecessary to retain cultural significance, but is undesirable where
it reduces cultural significance. The amount of change to a placeand its use should be guided by the cultural significance of theplace and its appropriate interpretation.’
Article 22.1 of the Burra Charter states that: ‘New work such asadditions or other changes to the place may be acceptable where
it respects and does not distort or obscure the cultural significanceof the place, or detract from its interpretation and appreciation.’
Article 22.2 of the Burra Charter states that: ‘New work should bereadily identifiable as such, but must respect and have minimal
impact on the cultural significance of the place.’
Article 27.1 of the Burra Charter states that: ‘The impact ofproposed changes, including incremental changes, on the cultural
significance of a place should be assessed with reference to thestatement of significance and the policy for managing the place.
It may be necessary to modify proposed changes to better retain
cultural significance.’

Constraints
Fremantle Prison is located in a marine environment which makes
it susceptible to a range of unavoidable environmental factors, e.g.
salt attack.
The limestone historically used at Fremantle Prison is generally
highly porous and susceptible to the following kinds of decay:•

detachment (disintegration)•

clumping/granular disintegration/powdering.

•detachment (scaling) – spalling.

•alveolization (erosion) – loss of matrix/differential erosion/
erosion•alveolization (mechanical damage) – impact/abrasion•

microkarst (perforation) – pitting•

discolouration/deposit – efflorescence.

•

biological colonization – lichen/moss/plantFremantle Prison is a popular tourist attraction that hosts large
numbers of people making its fabric susceptible to cumulative
adverse impacts through ‘mechanical damage’ (e.g. bumps andabrasion).

Opportunities
The WA State Cultural Heritage Policy includes among its
strategic objectives: ‘Promote sound practice in the conservation,
management and adaptation of heritage places’. There areopportunities to utilise Fremantle Prison for training and skills
development for students and early career professionals inmaterials conservation and traditional crafts.

Overarching Policy Framework
POLICY 58
Where there are competing demands on Fremantle Prison’s
resources, Fremantle Prison will have regard to the ways in whichthose elements embody and express the place’s OUV (in the first
instance), its National Heritage values (in the second instance)
and the site’s state significance (in the third instance). This will
be done on a case-by-case basis. In some circumstances it will
be appropriate to (for example) conserve fabric that does notembody the place’s OUV instead of fabric that does, where thatOUV is adequately embodied and expressed through other fabricor means.
POLICY 59
The maintenance and/or reinstatement of aesthetic treatments(i.e. paintwork, renders, pointing etc) at Fremantle Prison will be
informed by historical research, expert knowledge and physicalinvestigation.
POLICY 60
The removal of later fabric should be considered in preference toits repair, especially where the later fabric obscures earlier andmore significant fabric.
POLICY 61
Fremantle Prison should continue its approach of repairing doors
and other elements (such as joinery and carpentry) by salvaging
components from a stock of original doors and windows, bolts,
screws, nuts etc. This solution provides a consistent aesthetic
outcome ensuring all components appear visually consistent.
However, this cannot be a long-term approach to conservation
due to limited supply/sources. Where the Prison’s stock of original
elements is insufficient, it would be appropriate to replace failed
elements from other sources observing the like-for-like principle.
POLICY 62

Sometimes, even where inexpensive repair is possible, a morecostly conservation approach will be required by the place’s
heritage values.

Fremantle Prison should continue its policy of reinstating/
maintaining original pointing treatments and the scribing of ashlarlines in mortars to assist viewers to understand the architecturalpresentation of the buildings.

There is a diminishing number of tradespeople with the traditional
skills required for the conservation of Fremantle Prison’s fabric.

POLICY 63

Development approval is sometimes required for urgent conser­vation
works that are slightly more than simple ‘maintenance’ and therefore
meet the definition of ‘development’ under relevant legislation. Thiscan cause delays that are a risk to the place’s heritage values.

Fremantle Prison will continue to maintain a comprehensive
record of conservation and change, observing the ‘Keeping a
Record’ Overarching Policy. Record-keeping will inform ongoingconservation works and will be used to assess the performance ofworks and will be used in future decision-making.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 68

physical conservation

POLICY 64
Decision-making at Fremantle Prison in relation to fabricconservation will be transparent and robust in the face of public
scrutiny.
POLICY 65
Fremantle Prison will continue to maintain a cyclical and regularmonitoring and maintenance program. The physical conditionof the site will be assessed at least every three years through a
Building Condition Assessment prepared by Building MaintenanceWorks (WA Department of Finance). Based on the results of the
Building Condition Assessment, the Schedule of Conservation
Works maintained by Fremantle Prison will be regularly updated
and the relevant data will inform existing and future zone-by-zone
Conservation Management Strategies.

Proposed Actions
ACTION 35
The following is a list of desirable physical conservation projects
that Fremantle Prison may consider in forward planning:•

Once the current corrugated sheet roofing reaches the endof its life and requires replacement, the Prison will have theopportunity to reinstate original roofing treatments (likely tohave been riven slate or shingles).

•Restore the Main Cell Block floor – remove concrete andpatch the flagstones.

•Complete the internal treatment of 1 Division as aninterpretation of the original architectural aesthetic. This hascommenced, but it lacks clarity and retains fragments of muchlater, somewhat intrusive fabric, such as signage.

•

Remove bars and grilles from the Anglican Chapel and repair
termite damage, plaster loss and conserve wall murals.

•

Reinstate the roof to the Refractory building based on
documentary evidence.

•

Repair and conserve the section of wall and stairs at thecorner of Holdsworth and Knutsford Streets.

•

Address the condition of the front verandahs and introduced
concrete slabs on the Terrace houses.

•

Address salt attack in the administration buildings.

•

Repair areas of the inside face of the wall between theWestern Workshop and the Female Prison.

POLICY 66
To ensure the timely and cyclical implementation of necessaryconservation work, Fremantle Prison’s Schedule of Conservation
Works and its zone-by-zone Conservation Management Strategies
will include Implementation Plans. These will provide clear
timeframes for the completion of specific conservation works.
POLICY 67
Fremantle Prison will review and, where necessary, update theDisaster Preparedness Plan dated April 2016 every three years
POLICY 68
Where Fremantle Prison leases parts of the site to tenants, thelease agreements will make allowance for the mechanics ofmaintenance, upgrade and upkeep by tenants. This will include
clearly identified responsibilities for individual parties.

ACTION 36
Continue to maintain and develop the general maintenance cycle
plan for general tasks, such as cleaning gutters, painting joinery,
metal work and other previously painted items, repair of roof andother items.
ACTION 37
Remove previous cement-based repairs and mortar systems (see‘Specific Policy Areas and Actions – Masonry and Cement’).
ACTION 38
Prepare Conservation Management Strategies for each area
identified in Section 7 of this HMP.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 69

setting

Objectives
original convict grant. These highly significant related places
should be managed as components of a complex inter-linked
cultural landscape

Our objectives are as follows:•

to maintain a setting for Fremantle Prison that allows its
heritage values to be read and understood (especially, but not
exclusively, its OUV)•

to maintain Fremantle Prison’s landmark status and toenhance its monumental presence in the landscape•to enhance the integrity of the setting of Fremantle Prison,
especially having regard to its setting at the close of theconvict era•

to manage the setting of the structures and spaces ofFremantle Prison that are located within its walls•

to conserve the heritage values of Fremantle Prison insofar as
they are expressed through its setting without unnecessarily
preventing sympathetic development in its vicinity•

to manage Fremantle Prison, The Knowle, the Warders’
Cottages and the Fairbairn Street Ramp as elements withina cultural landscape, by enhancing their inter-relationships
through interpretation•

to enhance the physical, social, historical and visual linkages
between Fremantle Prison and the City of Fremantle’s WestEnd Conservation Area•

to enhance the physical, social and historical linkages
between Fremantle Prison and the original Convict Grant

risks to avoid
We have identified the following risks to be avoided:•

any modification of Fremantle Prison’s setting that diminishes
its landmark status and monumental presence in thelandscape•the introduction of new built form or plantings that interrupt
significant views to Fremantle Prison•

the introduction of new development outside the Prison thatis visible from significant vantage points within the Parade
Ground such that the sense of confinement within the Prison
grounds is adversely impacted•

built form or plantings within the walls of Fremantle Prison,
especially the Parade Ground, that impact views to and along
the Main Cell Block’s western façade and the South Knoll•

the introduction of new built form or plantings immediately
outside the boundaries of Fremantle Prison that are
unsympathetic to the heritage values of the place in termsof (for example) height, bulk, scale, colour, materials or use•

works to, including development of, The Knowle, Fairbairn
Street Ramp or the Warders’ Cottages in isolation from
Fremantle Prison, and in a manner which diminishes theirheritage character or relationship to the Prison and the

FREMANTLE PRISON // Overarching Policy Areas•

conservation and management of the West End Conservation
Area in isolation from Fremantle Prison, or in a manner which
does not have regard to the historical relationship with the
Prison. These two highly significant areas should be managed
as components of a complex inter-linked cultural landscapewhich includes a significant portion relating to the Convict Grant

Statutory Framework
The EPBC Act governs ‘actions’ that have, or are likely to have,a significant impact on a matter of ‘national environmental
significance’. Places on the WHL and NHL (such as Fremantle
Prison) are matters of national environmental significance. An‘action’ may include a project, a development, an undertaking, anactivity or a series of activities. It includes actions that may impact
the setting of Fremantle Prison insofar as it embodies its OUV andNational Heritage value. Before taking an action that could havea significant impact on the heritage values of Fremantle Prison,
the action must be ‘referred’ to the Australian Minister for theEnvironment and Energy. The Minister will determine whether or
not further and more formal assessment and approval is required,
i.e. a ‘controlled action’. The Minister will have particular regard
to (a) works within the listed area and (b) works within the World
Heritage buffer zone.
The World Heritage listed area of Fremantle Prison (that area
assessed to embody the place’s OUV) does not include theWarders’ Cottages, The Knowle or the Fairbairn Street Ramp.
However, these locations are included in a ‘buffer zone’ for the listedarea. Their conservation should be treated as an important part ofthe management of Fremantle Prison itself, including its setting.
The management of activities within the buffer zone established by
the World Heritage listing is critical to the conservation of Fremantle
Prison’s OUV. This is especially the case in relation to activities inthe buffer zone that may impact ‘setting’.
The EPBC Act affords protections to places included on the NHL.
The Fremantle Prison NHL boundaries capture the Fairbairn Street
Ramp and the Warders’ Cottages but do not include The Knowle.
It is possible that this is an error that may be corrected throughfurther assessment. In any event, the conservation of the settingof Fremantle Prison requires that The Knowle is also appropriately
managed as part of the wider cultural landscape, along with
the Ramp and Warders’ Cottages. This is consistent with the‘precautionary principle’.
The NHL Statement of Significance for Fremantle Prison makes
the observation that the place’s heritage values are expressed in(among other things): the Main Cell Block, the perimeter walls,
the Gatehouse complex, the prison officers’ residences on the
Terrace, the Fairbairn Street Ramp and the Henderson Street
Warders’ Cottages. Maintaining and enhancing views of theseplaces is directly relevant to the management of Fremantle
Prison’s setting.
Extent Heritage / Lovell Chen // 70

setting

The NHL Statement of Significance does not assess Fremantle
Prison as having met criterion (e) of the National Heritage values
assessment criteria. Criterion (e) states that a place is significant
where: ‘the place has outstanding heritage value to the nation
because of the place’s importance in exhibiting particular aesthetic
characteristics valued by a community or cultural group’. Thismay be an error in the Statement of Significance that requires
correction. It is closely related to the management of the Prison’s
setting.
The Heritage of Western Australia Act 1990 protects places
included on the State Heritage Register. The boundaries ofFremantle Prison as they are on the WA State Heritage Register
do not include the Fairbairn Street Ramp. This is an error that
requires correction. The Warders’ Cottages and The Knowle areincluded on the WA Register of Heritage Places as separate items.
The Statement of Significance for Fremantle Prison on the WA
Register of Heritage Places makes the following observations
that are relevant to the conservation of the place’s setting: it has
an ‘austere and monumental quality’ and is ‘set in a precinct
characterised by a homogeneity of form, materials, texture andcolour’ and these ‘make it a landmark feature of Fremantle’.
Section 3 of the Heritage of Western Australia Act 1990 defines‘conservation’ to include ‘the provision of an appropriate visualsetting’.
The City of Fremantle Local Planning Scheme No. 4 zones
Fremantle Prison as a Regional Reserve. By Section 2.2 of Local
Planning Scheme No. 4 Council approval is not required for thecommencement or carrying out of any use or development on a
Regional Reserve. However, approval is required from the Western
Australian Planning Commission (which will include input from the
Heritage Council of Western Australia). That part of Fremantle
Prison zoned as a Regional Reserve includes The Knowle but
does not include the Fairbairn Street Ramp. It does not include
the Warders’ Cottages on Henderson Street because they are inprivate ownership and hence subject to the City of Fremantle Local
Planning Scheme 4.
A tree on the Fairbairn Street Ramp is listed as an item of
local significance by the City of Fremantle (Place No. 20638).
Modifications to the tree to improve the Prison’s setting will require
City of Fremantle council approval.

Non-Statutory Framework
The Operational Guidelines for the Implementation of the World
Heritage Convention (Article 99) emphasises the importance ofthe ‘delineation of boundaries’ that will give ‘effective protection’ toplaces nominated to the WHL.

‘measure of the wholeness and intactness’ of the place’s heritage
values. It states that these can suffer as a result of the ‘adverse
effects of development and/or neglect’.
The Burra Charter requires that heritage places be managed within
an appropriate setting. Article 1.12 of the Burra Charter defines‘setting’ to mean ‘the immediate and extended environment ofa place that is part of or contributes to its cultural significanceand distinctive character’. An Explanatory Note for Article 1.12
states: ‘Setting may include structures, spaces, land, water andsky; the visual setting including views to and from the place, andalong a cultural route; and other sensory aspects of the setting
such as smells and sounds. Setting may also include historicaland contemporary relationships, such as use and activities, socialand spiritual practices, and relationships with other places, bothtangible and intangible’.

constraints
The imperative to retain the landmark status of Fremantle Prison,and to enhance its monumental presence in the landscape, willplace significant constraints on new built form and plantings that
may be proposed within the WHL buffer zone.
The imperative to manage views of the Main Cell Block’s western
façade, and of the South Knoll, from within the Parade Ground willplace significant constraints on new built form and plantings that
may be proposed for this area.

opportunities
The visual, historical and physical linkages between Fremantle
Prison and The Knowle and the Henderson Street Warders’
Cottages that historically formed part of the original Convict
Grant are presently difficult to ‘read’. There is an opportunity tomore fully document these linkages and strengthen them throughinterpretation. The removal of intrusively placed non-significant
elements (plants and structures) should be encouraged. Design
guidelines, or guidance on designing with care in this sensitive
area, should also be prepared to help direct future development.
There is an opportunity to regularise the surface of the Parade
Ground to enhance the setting of the Main Cell Block (which
embodies OUV). Any proposal needs to consider the historicaldevelopment of this area, and should not be at the expense of this.
The area of the South Knoll and the spaces to its east presently
read as a confused collection of structures and features that makeit difficult to understand the place’s OUV. There is an opportunity torationalise this space to enhance its appearance.

Article 103 of the Operational Guidelines for the Implementation of
the World Heritage Convention states that ‘Wherever necessary
for the proper conservation of [a World Heritage listed place] anadequate buffer zone should be provided’. The Fremantle Prison
listing includes a sizable buffer zone that captures The Knowle, theWarders’ Cottages and Fairbairn Street Ramp.

The Statements of Significance for Fremantle Prison for the NHL
and State Heritage Register are inconsistent and arguably fail to
include significant elements, or to assess the site against all of
the relevant criteria. These possible oversights have a bearing on
the conservation of the Prison’s setting. There is an opportunity
to re-visit the previous assessments and have the Statements of
Significance modified.

Article 87 of the Operational Guidelines for the Implementationof the World Heritage Convention states that the ‘integrity’ ofplaces nominated to the WHL must be of a high level. Integrity is a

The provisions of the City of Fremantle Local Planning Scheme
No. 4 have been overtaken by subsequent heritage listings andconservation planning documents. There is an opportunity for

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 71

setting

the City of Fremantle to update those provisions, in consultation
with Fremantle Prison, to reflect current heritage listings andconservation planning documentation.
Fremantle Prison is in the vicinity of, or part of, a number ofconservation areas established by the City of Fremantle. There isan opportunity to further refine the management of the precincts,
and their relevant policy frameworks, to ensure that Fremantle
Prison is a focal point within the broader and integrated heritage
conservation regime.
The carparks located below The Terrace (north and south of the
Fairbairn Street Ramp, and known to Council as Carparks 29 and 1
respectively), and south of Fothergill Street, present opportunities
for sympathetic new development, including public open spaceor improved and sympathetically designed carparking facilities.
Their appearance presently detracts from the landmark status of
Fremantle Prison.

OVERARCHING POLICY FRAMEWORKPOLICY 69
Fremantle Prison will be managed to ensure that its landmark
status is retained and its monumental presence in the landscapeis enhanced. This will include encouraging the removal of intrusive
built form and plantings that obstruct significant views and vistas orthat otherwise prevent an understanding of the place’s history as a
Prison (especially its OUV).
POLICY 70
The setting of Fremantle Prison will be managed having regard
to the contributory views and vistas presented in Appendix B,
augmented by additional research as appropriate.
POLICY 71
New development in the World Heritage buffer zone should not
be permitted where this would impact the setting of Fremantle
Prison. This will require rigorous assessment of new development
proposals, especially in relation to the height, bulk, scale, siting,colour and materials of proposed new development. This will beassessed on a case-by-case basis.

Main Cell Block’s western façade. This may include the regularisingof the present ground surface.
POLICY 75
The Parade Ground will be managed to retain, and where possible
enhance, views to the South Knoll, especially those parts thatrecall the form of the original hill (Church Hill).
POLICY 76
Visual connections between Fremantle Prison and The Knowle
should be enhanced. Where feasible, this may include the removalof intrusive plantings and built form that presently impede views.
Other connections with The Knowle should be reinforced throughinterpretation measures.
POLICY 77
The Fairbairn Street Ramp will be retained as the principal entry
into Fremantle Prison from the public domain, and its historicfunction and physical relationship with the Prison, including the
Terrace and Gatehouse, should be enhanced by improving theexisting visual linkages.
POLICY 78
The adverse heritage impacts on the Fairbairn Street Ramp
(and therefore the setting of Fremantle Prison) caused by
the construction of Parry Street should be mitigated throughinterpretation measures that assist visitors to read andunderstand the Ramp’s function and appearance during theconvict-era.
POLICY 79
The setting of Fremantle Prison should be enhanced, where
possible, by the removal of intrusive built form, and the removal or
pruning of intrusive plantings, on and beside the Fairbairn Street
Ramp and Hampton Road Reserve.
POLICY 80

The exterior of Fremantle Prison will be managed to retain its
austere institutional appearance.

The wider historical setting of Fremantle Prison should beenhanced through interpretation measures designed to illustrate
the historical connections between the Prison, the Henderson
Street Warders’ Cottages and the original Convict Grant. Where
possible, visual connections between the Warders’ Cottages andFremantle Prison should be enhanced by removing intrusive built
form and plantings.

POLICY 73

POLICY 81

The Parade Ground is to be managed having regard to thesense of confinement created by its high Prison walls, especiallywhen viewed from significant vantage points (in particular, withinapproximately a 20 m radius of the front gate into the Parade
Ground). There should be no new development, plantings orother structures outside the Prison walls that are visible fromwithin the Parade Ground when viewed from those significant
vantage points.

The setting of Fremantle Prison should be enhanced by making
the appearance of the carparks presently located below The
Terrace (north and south of the Fairbairn Street Ramp), and southof Fothergill Street, subservient and sympathetic to Fremantle
Prison.

POLICY 72

POLICY 74
The ground surface of the Parade Ground will be managed toenhance the landmark status and monumental appearance of the
FREMANTLE PRISON // Overarching Policy Areas

POLICY 82
Fremantle Prison will seek to accommodate the City of Fremantle’s
policies in relation to the introduction of trees in parts of thecity insofar as this can be achieved without compromising thevisibility of the Prison, and the enhanced setting as encouraged
in this policy.
Extent Heritage / Lovell Chen // 72

setting

Proposed Actions
ACTION 39
Engage an appropriately qualified heritage practitioner to assess
Fremantle Prison against criterion (e) of the Environment Protection
and Biodiversity Conservation Regulations 2000 (10.01A): ‘theplace has outstanding heritage value to the nation because of theplace’s importance in exhibiting particular aesthetic characteristics
valued by a community or cultural group’. This assessment should
consider the austere, monumental and deliberately ‘institutional’
aesthetic achieved by the Prison’s designers who clearly selecteda prominent highpoint for the complex and a particular form
to express function and socio-political messages. Dependingon the outcome of this reassessment, make a submission to
the Department of Environment and Energy to modify the NHL
Statement of Significance. This will provide additional guidancewith respect to the conservation of Fremantle Prison’s setting.
ACTION 40
Engage an appropriately qualified heritage practitioner to assess
the contribution that The Knowle makes to the National Heritage
values of Fremantle Prison. Depending on the outcome, makea submission to the Australian Department of Environment andEnergy to modify the NHL Statement of Significance (and listed
boundaries) to include The Knowle.
ACTION 41
Engage an appropriately qualified heritage practitioner to assess
the significance of the Fairbairn Street Ramp. Depending on theoutcome, make representations to the Heritage Council of Western
Australia to modify the existing SRHP listing (and boundaries) toinclude the Ramp.

ACTION 46
Liaise with the City of Fremantle and consult an arborist in relation
to the Moreton Bay fig trees located on the south side of the
Fairbairn Street Ramp. If the trees’ health would not be impacted,
prune the trees to open up views to Fremantle Prison along theRamp.
ACTION 47
Undertake further research to clarify the date of the wall on thesouth side of the Fairbairn Street Ramp. If demonstrated to bepost–World War II consider making representations to the Cityof Fremantle to have the wall removed in order to reinstate theoriginal form of the Ramp.
ACTION 48
Liaise with the Department of Planning, Lands and Heritage andthe City of Fremantle in relation to the carparks below The Terrace(north and south of the Fairbairn Street Ramp), and south of
Fothergill Street, to ensure that planning controls for these locations
will facilitate the best outcome for Fremantle Prison’s heritage
values into the future. Similarly, liaise with their owners/lessees
to encourage a redesign or re-working so that their appearance ismore sympathetic to the setting of Fremantle Prison.
ACTION 49
Continue to research, design and implement interpretation
measures to illustrate the form of the Fairbairn Street Ramp at
the end of the convict era where it has been impacted by theconstruction of Parry Street.

ACTION 42
Liaise with the City of Fremantle regarding updating Planning
Policy D.G.F 14 (‘West End Conservation Area Policy’).
ACTION 43
Liaise with the relevant government authorities to modify thepresent zoning of Fremantle Prison as a ‘Regional Reserve’ toinclude the Fairbairn Street Ramp.
ACTION 44
Review and (where appropriate) make submissions in relation to
all new development proposals within and near the World Heritage
buffer zone to ensure that the setting of Fremantle Prison is notcompromised.
ACTION 45
Continue to research, design and implement interpretation
measures to illustrate the historical connections between Fremantle
Prison and The Knowle. This will include a consideration of ways toimprove inter-visibility between the sites (for example, by pruningor removing intrusive trees and buildings).

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 73

telling the story

Objectives
Our objectives are as follows:•

to tell the Fremantle Prison story in an informative andengaging manner that makes the place a living part of thelocal and national community•

to communicate the story of Fremantle Prison in a mannerthat assists to make the Australian convict story universally
understood and valued•

to enhance linkages with the other places comprising theAustralian Convict Sites World Heritage Property•

to harness the potential of the Fremantle Prison story
to generate resources that can be used for the ongoingconservation of the place•

to enhance community understanding of the functional,social and historical connections between Fremantle Prison,
The Knowle, the Henderson Street Warders’ Cottages, theFairbairn Street Ramp, the Fremantle Arts Centre (the former
Fremantle Lunatic Asylum and Invalid Depot), the Rottnest
Island Prison, the Warders’ Terrace on Holdsworth Street andother convict sites further afield, such as the convict depots

risks to avoid
We have identified the following risks to be avoided:•

the implementation of interpretation measures about a postconvict period of Fremantle Prison that adversely impacts theplace’s OUV•

an overly narrow focus on the convict story of Fremantle
Prison (its OUV) that results in other important post-convict
stories being forgotten or lost•

inadvertently causing offence or distress by telling the story
of Fremantle Prison in a culturally insensitive or exploitative
manner, e.g. inappropriate communication of the Aboriginal
deaths-in-custody story or of individuals who may still be aliveor whose immediate descendants may still be alive•

the creation of an alienating experience for visitors because
the audience for the Fremantle Prison story has not been
appropriately identified and responded to•the presentation of factual errors in telling the story ofFremantle Prison

statutory framework
The Australian Environment Protection and Biodiversity
Conservation Regulations 2000 (Reg. 10.01) include a requirement
to ‘present and transmit to future generations’ the heritage valuesof places on the WHL. There are similar requirements for placeson the NHL (Reg. 10.01C).

FREMANTLE PRISON // Overarching Policy Areas

The EPBC Act governs ‘actions’ that have, or are likely to have,a significant impact on a matter of ‘national environmental
significance’. Places on the WHL and NHL (such as Fremantle
Prison) are matters of national environmental significance. An‘action’ may include a project, a development, an undertaking,an activity or a series of activities and might include someinterpretation measures. Before taking an action that could havea significant impact on the heritage values of Fremantle Prison,
the action must be ‘referred’ to the Australian Minister for theEnvironment and Energy. The Minister will determine whether or
not further and more formal assessment and approval is required,
i.e. a ‘controlled action’.
One of the objects of the Heritage of Western Australia Act 1990
(Section 4) is ‘to promote public awareness as to the cultural
heritage’ of its state significant places (including Fremantle Prison).
This includes dimensions of heritage significance at Fremantle
Prison that do not derive from the convict story (OUV).
The Heritage of Western Australia Act 1990 establishes the State
Heritage Register, and Fremantle Prison is on that register. Any‘development’ of a place on the State Heritage Register will
require the approval of the Western Australian State Planning
Commission, which acts on advice from the Heritage Council.
‘Development’ is widely defined by the Planning and Development
Act 2005 (Section 4) to include ‘any development or use’ of land
and may capture some kinds of heritage interpretation, e.g. amaterial change of use, construction of new buildings, or alterationof original structures.
Fremantle Prison is located within the West End Conservation Area
(Zone 4), which is administered by the City of Fremantle throughthe City of Fremantle Planning Scheme No. 4. The ‘Fremantle
West End Conservation Area Policy 1992’ establishes a range ofpolicies in relation to such things as streetscape management,
approved colour schemes, and new development that may impact
the conservation area. Some interpretation measures may becovered by these policy areas.

Non-Statutory Framework
The UNESCO Resource Manual entitled Managing Cultural World
Heritage (p. 138) encourages site managers to utilise effective
interpretation to raise tourism revenue that can be used for theongoing conservation of the place (although this must be monitored
for adverse physical and other impacts on OUV).
The UNESCO Resource Manual entitled Managing Cultural World
Heritage (p. 125) notes that managers of world heritage places
must focus on their OUV while also ‘responding to management
issues of local relevance’. In the case of Fremantle Prison thiswill include the communication of non-convict era stories throughinterpretation.
Fremantle Prison must be managed with regard to the sharedvision and responsibilities of all the convict sites on the WHL.
The Australian Convict Sites Strategic Plan 2017–2020 includes
amongst its ‘core aims’: (a) To present and interpret the Property’s
OUV, emphasising each site’s contribution to the whole; and (b) To
give the Property a function in the life of the community.

Extent Heritage / Lovell Chen // 74

telling the story

Article 13 of the Burra Charter states: ‘Co-existence of culturalvalues should always be recognised, respected and encouraged.
This is especially important in cases where they conflict.’ This willbe especially relevant where the OUV and post-convict heritage
values at Fremantle Prison may ‘compete’ for resources in termsof heritage interpretation.
Article 24 of the Burra Charter states: ‘Significant associations
between people and a place should be respected, retained andnot obscured. Opportunities for the interpretation, commemorationand celebration of these associations should be investigated andimplemented.’
Article 25 of the Burra Charter states: ‘The cultural significance ofmany places is not readily apparent, and should be explained byinterpretation. Interpretation should enhance understanding andengagement, and be culturally appropriate.’
The ICOMOS Ename Charter for the Interpretation of Cultural
Heritage Sites includes the following relevant principles (among
others): ‘The interpretation and presentation of cultural heritage
sites should relate to their wider social, cultural, historical, andnatural contexts and settings’ (Principle 3); ‘The interpretation
plan for a cultural heritage site must be sensitive to its naturaland cultural environment, with social, financial, and environmental
sustainability among its central goals’ (Principle 5); ‘The
interpretation and presentation of cultural heritage sites must
be the result of meaningful collaboration between heritage
professionals, host and associated communities, and otherstakeholders’ (Principle 6).

constraints
Normally, interpretation measures relating to a post-convict periodof the site’s occupation cannot be implemented where this would
require irreversible physical intervention in convict-era fabricthat embodies OUV. This must be assessed on a case-by-casebasis because Fremantle Prison is a multi-layered site and there
will be occasions where minor or reversible physical intervention
in convict-era fabric will be appropriate in order to communicate
aspects of the site’s National Heritage values or state heritage
significance.
There may be limits on what stories may be communicated to visitors
to Fremantle Prison. Sensitive and distressing stories should only
be told after acceptable consultation, e.g. the history of Aboriginal
deaths in custody is an important story but it may be determined
inappropriate to share it after Aboriginal community consultation.

opportunities

measures. This might include interpretation measures that reinforce
the historical and functional association between the Henderson
Street Warders’ Cottages, The Knowle, the Fairbairn Street Ramp,
the former Lunatic Asylum, the Warders’ Terrace on Holdsworth
Street and Fremantle Prison.
The Australian Convict Sites Strategic Plan 2017–2020 includes
amongst its ‘core aims’: To present and interpret the Property’s
OUV, emphasising each site’s contribution to the whole (i.e.
the serial listing). Opportunities exist for Fremantle Prison tocontinue to collaborate with the Australian Convict Sites Steering
Committee to identify collaborative approaches to marketing,tourism and the resourcing of complementary interpretative
measures.
Dimensions of the post-convict story that lend themselves toheritage interpretation include (drawing on the site’s citation on the
WA State Heritage Register): the female prison experience andthe post-convict conversion of the Prison into a centre for industrial
activities.
The Aboriginal story at Fremantle Prison lends itself to interpretationand may also function as a tool for reconciliation.
The Parade Ground is a physically robust location well-suited
to interpretation measures, including interpretation throughstatic devices (e.g. discrete reversible signage), a formal visitor
experience (e.g. tours), and new activities and uses where theenhancement of visitor understanding of the site may be incidental
to the primary activity (e.g. concerts and shows).
The Parade Ground is an excellent location for realising the statedgoal of the Australian Convict Sites Strategic Plan 2017–2020‘to give the Property a function in the life of the community’. The
garden beds with raised kerbs within the Parade Ground presently
inhibit this on health and safety grounds. If it can be demonstrated
that their removal or burial (an adverse heritage impact) would becounter-balanced by other significant positive heritage outcomes(especially in relation to an appreciation of the site’s OUV) then it
is conceivable that this might occur. If it does, this would present
an opportunity for the interpretation of the form and location of thegarden beds and kerbs through sympathetic design in the new
surface.
The reactivation of the Prison gardens that existed on the South
Knoll in the early twentieth century may be an appropriate measurefor telling the story of an important dimension of the Prison’s
history (but should only be implemented after due consideration
is given to ‘Setting’ and potential impacts on the site’s OUV). If
this occurs, further research into the original layout of the Parade
Ground should be undertaken to inform the design.

The Fremantle Prison story (both convict and post-convict era) is
a valuable tool for attracting visitor and tourism revenue which canbe used for the ongoing conservation of the site. This is appropriate
and compatible with heritage management ‘best practice’.

Building 23 (the New Division building) is a generally robust
location that is well-suited to interpretation measures including
educational tours (e.g. school visits) and conversion with minimal
physical intervention into sleeping quarters for a ‘night in prison’experience.

Fremantle Prison is located to the east of Fremantle’s West End
Conservation Area. There are clear synergies between the Prisonand Heritage Conservation Area and both stand to benefit froman integrated approach to their conservation and development,
including the implementation of complementary interpretation

The part of the Fairbairn Street Ramp impacted by later twentiethcentury road construction would benefit from interpretation
measures that communicate the Ramp’s original form and function
to the public.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 75

telling the story

The preparation of a new Masterplan for Fremantle Prison (updating
the 2003 Masterplan) presents an opportunity for the integration ofinterpretation measures with new development, new uses, and site
activation measures. Masterplanning and interpretation planningshould proceed in tandem.
Fremantle Prison’s location in a port city with cruise ship facilities,
and its proximity to Perth, make it an ideal promotional andmarketing tool for ‘Tourism WA’.
Capitalise on the existing Fremantle Prison Collection includingarchives for interpretation and story telling (see also the Movable
Heritage Overarching Policy).

Overarching Policy Framework
POLICY 83
Fremantle Prison will pursue an active and integrated programof heritage interpretation. It will ‘tell the story’ of the place in an
informative and engaging manner so that Fremantle Prison
remains a living part of the local and national community.
POLICY 84
Fremantle Prison will tell the story of the site’s use as a convict
establishment/prison with particular emphasis on its convict history(i.e. the site’s OUV). This will be balanced against the need tocommunicate other heritage values that co-exist with the OUV at
the site, including the post-convict era stories.
POLICY 85
The resourcing and communication of interpretation measures
at Fremantle Prison will be guided by assessed heritage values,
augmented and updated through an ongoing program of research.
This will require a flexible approach to the design and delivery ofinterpretation measures as new data become available.
POLICY 86
Interpretation measures will be assessed for potential adverse
heritage impacts on a case-by-case basis by reference to assessed
heritage values. Adverse impacts on the site’s OUV will be avoided
as a priority. However, OUV should not be used as grounds tojustify the removal of other layers of the site’s history or heritage(and the communication of those stories) where the multiple values
may effectively co-exist.
POLICY 87
Fremantle Prison may pursue a program of interpretation in
relation to the post-convict occupation of the site, even where thismay have an adverse impact on the ability to tell the convict story
in discrete locations, provided (a) the interpretation measures inthose discrete locations are temporary and reversible and (b) the
OUVs in those locations can be effectively communicated throughother means.
POLICY 88
Fremantle Prison will continue to coordinate with the AustralianConvict Sites Steering Committee in order to capitalise onopportunities for collaborative and complementary interpretation(including tourism and marketing opportunities).
POLICY 89
Fremantle Prison will seek to re-establish and/or enhance thephysical and historical relationships between the Prison, The
Knowle, the Fairbairn Street Ramp, the Henderson Street Warders’
Cottages, the former Rottnest Island Prison, the former Fremantle
Lunatic Asylum and the Warders’ Terrace on Holdsworth Street
through a program of interpretation and in consultation with theCity of Fremantle and WA Department of Health (and private
owners where practicable).

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 76telling the story

Proposed Actions
ACTION 50
Fremantle Prison should revise and update the document entitled‘Fremantle Prison Interpretation Policy’ (by Luke Donegan,2007) to reflect the place’s OUV and to convert it into a sitewide Interpretation Plan. This should be done having regard to
any proposed new Masterplan for the place. A primary focus of
the Interpretation Plan should be (a) to present and interpret theplace’s OUV, emphasising its contribution to the serial World
Heritage listing, and (b) to give the place a function in the life of
the community.
ACTION 51
In relation to Aboriginal heritage interpretation, the Interpretation
Plan should be prepared having regard to the results of theReconciliation Action Plan process (see ‘Overarching Policy –Aboriginal Cultural Heritage’).

ACTION 56
Fact-check all interpretation measures prior to their imple­
mentation to ensure accuracy. It will be the stated role of the
Heritage Conservation Manager to ensure that final review of
all interpretation measures is conducted by relevant personnel
prior to implementation, which may include the Curator, qualified
historians, archaeologists, heritage architects or others.
ACTION 57
Assess all interpretation proposals for statutory compliance,
which may require a referral to the Australian Minister, approval
from the Western Australia Planning Commission or consultation
with the City of Fremantle. It will be the stated role of the Heritage
Conservation Manager to ensure that statutory compliance isachieved.
ACTION 58
Continue to develop and enhance the existing guided tours andexhibition programs.

ACTION 52
Establish a working group that includes representatives of
the Department of Planning, Lands and Heritage, the City ofFremantle, the Department of Health (‘The Knowle’) and the
managers of the former Fremantle Lunatic Asylum and Rottnest
Island Prison, to ensure an integrated and complementary
approach to the communication of the Fremantle Prison story. A
primary focus of this working group will be to identify interpretation
options that will re-establish and/or enhance the historical andfunctional relationships that exist between the Prison, The Knowle,
the Warders’ Cottages, the Fairbairn Street Ramp, the former
Fremantle Lunatic Asylum and Rottnest Island Prison. The resultsof this process will be incorporated into the Interpretation Plan.
ACTION 53
Maintain existing stakeholder consultation processes with former
inmates and immediate descendants of former inmates to ensurethat interpretation measures remain sensitive to their expectations
and feelings.
ACTION 54
Continue to make representations to Tourism WA, including
the relevant Minister, to ensure that the tourism and marketing
potential of Fremantle Prison is realised for a local, state, national
and international market. This may be done by reference to the
Statutory Obligations of the Australian Government to ‘present andtransmit to future generations’ the heritage values of places on the
WHL and NHL, and to the stated goal of the Heritage of Western
Australia Act 1990 (Section 4) ‘to promote public awareness as
to the cultural heritage’ of its state significant places (including
Fremantle Prison).
ACTION 55
On an ongoing basis, monitor the outcomes of all interpretation
measures for (a) unintended adverse impacts on heritage valuesand (b) their success (or otherwise) in telling the story of Fremantle
Prison to the widest audience.

FREMANTLE PRISON // Overarching Policy Areas

Extent Heritage / Lovell Chen // 77

Specific policy areas and actions

Specific policy areas
and actions06

accessibility
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Universal Value
Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The goal of providing universal access to the site would come withmajor physical intervention into the existing fabric and the loss of
associated heritage value. Works to achieve greater access haveto be carefully planned and managed to minimise impact on fabricand heritage value. In some cases, universal access to all spaces
within the Prison precinct will be impractical and undesirable froma heritage impact perspective.
Presently there are a number of spaces that form part of tours
that require stair access, including some of the guard boxes,
the chapels and upper floors of the Main Cell Block and thebasement, the underground tunnel tours, the gallows and otherspaces. The houses and hospital buildings have similar issues
relating to universal access. Reversible interventions such as new
handrails and contrasting visibility strips should be considered.
More substantial intervention, such as lifts and ramps, might besupportable but the presentation of key spaces like the Parade
Ground and the Terrace should be considered. Proposals must be
assessed for heritage impacts on a case-by-case basis.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 1: Consideration should be given to thedevelopment of a masterplan identifying the key spaces that form
part of the Prison tour and key spaces for alternative uses. From
this a strategy can be developed to address key areas where
access is limited or requires upgrading.
SPECIFIC POLICY 2: Approaches to universal access should
be based on a masterplan process. In the interim, and after the
masterplan is in place, proposals for changes to access will need
to be assessed on a case-by-case basis.

SPECIFIC ACTION 1: Prepare an Accessibility Masterplan to
identify key spaces that form part of the Prison tour experienceand devise a strategy to provide accessibility where needed. This
must include a careful consideration of potential heritage impacts
on a case-by-case basis. Identify suitable or alternative uses
for heritage buildings to avoid the situation where modifications
for universal access would result in substantial loss of heritage
fabric or diminish heritage values. This plan should be prepared inconsultation with a building surveyor and accessibility consultant.
SPECIFIC ACTION 2: Implement the above plan’s recommen­
dations.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 79carpentry
Consider the following overarching policies:

Outstanding
Outstanding
Universal
UniversalValue
Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Much of the carpentry is in good condition. There are localisedelements that require repair. Generally these appear to be
aesthetic and not of a structural nature. The timber elements
generally consist of windows, floors, doors, jambs, architraves,skirtings, verandah flaming and flooring, roof trusses and framing.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 3: Repairs of timber work should beundertaken by splicing or scarfing in new sections of timber toretain as much original fabric as possible. The use of suitablefillers may be acceptable in lieu of replacing, splicing or scarfing,particularly where minor repairs may be required.
SPECIFIC POLICY 4: Continue to paint all timber using oil oralkyd paints. Avoid the use of epoxy or acrylic paints for timberwork. These are not traditional paint systems for timber products.

SPECIFIC ACTION 3: Through regular monitoring, continue toprepare and paint all painted timberwork on a regular cycle of 7–10
years.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 80Compatible Uses
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The effective conservation of Fremantle Prison depends in parton identifying appropriate future uses. Appropriate future uses will
also assist the Prison to meet the stated goal in the AustralianConvict Sites Strategic Plan 2017–2020: ‘To give the Property afunction in the life of the community’.
During its life as a place of incarceration Fremantle Prison wasa multi-use venue where industrial, recreational, educational,
religious and agricultural activities were also undertaken. Since
the closure of the Prison it has hosted commercial, cultural andeducational activities generally without adverse impacts to theplace’s heritage values. Therefore, in terms of potential future
uses, Fremantle Prison’s values have a high tolerance for diverse
uses and those that involve some change, depending on theparticular component.
When assessing the potential adverse impacts of proposed future
uses, an important consideration will be potential impacts on the
fabric and form of the Prison’s built elements and setting.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

elements and setting, among other relevant matters. An importantconsideration will be the reversibility of physical changes to thatfabric and form that any new use may require.
SPECIFIC POLICY 8: It is appropriate for Fremantle Prison toact as a host site for activities and programs that are the result of
mutually advantageous commercial collaborations with individuals
and private corporations. Future uses of this nature should becompatible with policies 5, 6, and 7.
SPECIFIC POLICY 9: There are generally few constraints on
Fremantle Prison utilising unused and suitable spaces for activities
that are central to its ongoing operations where those activities
involve little or no irreversible change to form or fabric, e.g. storage,
exhibitions, office accommodation, non-interpretative commercial
activities (gift shop etc).

SPECIFIC ACTION 4: Prepare an updated Masterplan forFremantle Prison that includes detailed consideration of potential
future uses of its component parts.

SPECIFIC POLICY 5: Fremantle Prison will continue toencourage a range of uses to be accommodated at the place,
without adversely impacting its heritage values.

SPECIFIC ACTION 5: Assess proposed future uses of individual
spaces on a case-by-case basis.

SPECIFIC POLICY 6: Proposed future uses should be
investigated through a formal masterplanning process, guided by
the stated goal in the Australian Convict Sites Strategic Plan 2017–2020: ‘To give the Property a function in the life of the community’.

SPECIFIC ACTION 6: Where Fremantle Prison leases parts ofthe site to tenants, the lease agreements should make allowancefor the mechanics of maintenance, upgrade and upkeep bytenants. This should include clearly identified responsibilities forindividual parties.

SPECIFIC POLICY 7: Proposed future uses at Fremantle Prison
should be assessed on a case-by-case basis having regard to
the potential adverse impacts on the fabric and form of its built

SPECIFIC ACTION 7: Monitor any potential impacts thatcommercial, cultural and educational activities have on the Prison.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 81concrete
Consider the following overarching policies:

Outstanding
Outstanding
UniversalValue
Value
Universal

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Concrete has been introduced to the complex at various phasesof repair and upgrade. The concrete features consist of elements
within the landscaping such as paving slabs, garden edging andretaining walls. They also include floor and verandah slabs.
Concrete products that were manufactured in Concrete Industries
at Fremantle Prison should be maintained on site and interpreted
if possible, e.g. flower pots, patterned paving in vegetable gardensetc.
In a number of cases the introduction of concrete is a much laterintervention that has occurred within the last forty years. On thisbasis slabs to verandahs and floors should be removed and the
traditional flooring reinstated.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 10: Where concrete slabs are having a direct
impact on convict fabric it should be removed, and the original
material reinstated. Reinstatement of new materials should be
informed by physical evidence and not based on conjecture.

SPECIFIC ACTION 8: Remove the concrete slab floor from
the Main Cell Block. This would result in uncovering the original
Yorkshire flagstone floor. This semi-morphographic sandstoneshows signs of salt attack and other decay patterns as a resultof the concrete slab laid over the floor. Yorkshire flagstones arereadily available to enable repairs and replacement of sections offloor that are missing and severely damaged.
SPECIFIC ACTION 9: Remove ground floor verandah slabs. It is
assumed that the original verandah floors were timber. However,before any slabs are removed, confirm this through historicalresearch then accurately reinstate.
SPECIFIC ACTION 10: Consider the installation of a more
permeable paving treatment to the entry forecourt area. The
paving slab in the entry forecourt was installed in late 2008. Prior
to this the landscape treatment was asphalt. In the long-term theslab is likely to exacerbate any underlying salt attack problems
that may exist.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 82environmental pressures
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Seismic upgrade and compliance is also triggered by the Building
Act 2011 when a building undergoes significant alteration,
and where it is considered that 50% of the building volume willbe altered. It is also triggered by change of use as determinedby the issue of a Certificate of Occupation. For a complex site,
several works over time can cumulatively add up to 50%, but
general maintenance and conservation works would not normallyconstitute significant alteration.
The Prison complex is in close proximity to a marine environment
and therefore susceptible to salt attack from sea spray. There isevidence of salt attack in a number of locations throughout the
Prison complex. It is possible that the salt attack is related to themarine environment as well as high salinity content within thesubsoil. Where salt is present the limestone is in poor condition.
This may also be attributed to the presence of inappropriate
cement-based mortars and renders.
Roofing materials, such as galvanised metal, have shorter
lifespans when exposed to marine environments. The salt canaccelerate the rusting process. Incompatible materials will also
hasten the galvanic reaction process.

FREMANTLE PRISON // Specific Policy Areas

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

Pest management is also critical at Fremantle Prison, with sometermite (white ant) damage in the Anglican Chapel. Bird nesting
and guano are other potential problems.
SPECIFIC POLICY 11: Monitoring fabric performance including
where it is susceptible to salt attack and termite damage, is
important for managing environmental pressures.
SPECIFIC POLICY 12: Regular maintenance and repair ofaffected items will help to delay or prevent the decay process.
SPECIFIC POLICY 13: Investigate alternative solutions toseismic upgrade and compliance in any situation where a change
of use triggers the Building Act 2011 requirements.

SPECIFIC ACTION 11: Maintain a monitoring regime to determine
fabric performance.
SPECIFIC ACTION 12: Undertake maintenance to replace orrepair items as they advance in their decay process.

Extent Heritage / Lovell Chen // 83

EXISTING PLANT (AIR CON ETC.)
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Plant, in the form of air-conditioners, chillers, water boilers andthe like, are necessary elements of working places. In a sensitive
heritage context such as Fremantle Prison they can also be
visually (and aurally) intrusive.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 14: As a general policy, the introduction of
new plant should be kept to a minimum so as to limit any visualand physical impacts. The potential impact of the connections tobuildings and the proliferation of new piping and conduits should
also be considered when proposing new plant.
SPECIFIC POLICY 15: Where new plant is required, consideration
should be given to limiting its scale and extent, and to selecting alocation that avoids visual and physical impacts.

SPECIFIC ACTION 13: Remove redundant plant from the site andrepair any physical impacts unless it is illustrative of an important
historic phase of operation, e.g. engineering related to the Pump
House (in some cases plant may constitute ‘movable heritage’).
SPECIFIC ACTION 14: All new plant should be concealed frompublic view where possible. If placed on a roof, then it should
be setback from the roof edges and where necessary placed on
platforms so as to avoid damage to roof fabric. Placing new planton modern roof fabric is preferred to historic fabric.
SPECIFIC ACTION 15: Plant enclosures can be used to conceal
new plant but should not be placed in highly visible or sensitive
locations. Enclosures should also be clad in a neutral nonreflective material.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 84

GRAFFITI
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The Prison retains a collection of graffiti from the convictera through to the Prison’s closure. Graffiti occurs on internaland external walls, and is a powerful reminder of the prisoner
experience, and of prison language and humour. Warder graffiti isalso present in the watchtowers, providing insight into the tedium
of watching prisoners, and the experience of the guards. The
earliest extant graffiti, according to Kerr (1998), was likely drawn
by the forger James Walsh, in pencil, and was preserved by being
whitewashed over.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 16: As a general policy, all remaining external
and internal graffiti should be conserved and not removed orconcealed (such as being painted or rendered over).
SPECIFIC POLICY 17: Works to the walls which contain (andsurround) the graffiti, including maintenance and repairs, shouldtake care to ensure that graffiti is not damaged or impacted bycleaning products and the like.
SPECIFIC POLICY 18: Any works, including conservation or
restoration of the graffiti, should be undertaken by a professional
qualified conservator.
SPECIFIC POLICY 19: Some renders contain graffiti. It is
important to identify these elements to ensure that their significanceis not diminished by removal of renders.
SPECIFIC POLICY 20: Any treatments to the graffiti generally
should ensure retention of the original medium.

SPECIFIC ACTION 16: If graffiti is damaged, obtain expert advice
from a qualified conservator before undertaking any repairs.
SPECIFIC ACTION 17: If graffiti is identified for restoration, obtain
expert advice from a qualified conservator before undertaking any
restoration.
SPECIFIC ACTION 18: A perspex sheet or similar, standing
proud of the wall to permit clear visibility and free circulation of
air, can be utilised for the protection of graffiti. These items also
require ongoing maintenance to maintain their transparency andto avoid a build-up of perspiration.
SPECIFIC ACTION 19: All existing graffiti should be recorded (toarchival quality level) to maintain evidence of its location, conditionand content, and to assist with future conservation and retention.
FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 85

HAZARDOUS MATERIALS
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

Fremantle Prison has been subject to various works anddevelopments throughout the nineteenth and twentieth centuries
when there was less understanding of, and fewer controls on,
potentially hazardous materials. For example, there is the potential
for its soils to contain heavy metals (especially near the former
workshop areas), its walls and services to incorporate asbestos,and its paintwork to have high lead content. The place’s heritage
values must be managed in a way that is responsive to these
health and safety issues.

SPECIFIC POLICY 21: Fremantle Prison will not expose its staff
and visitors to unacceptable risks to health and safety.
SPECIFIC POLICY 22: When identifying and managing
hazardous materials Fremantle Prison will be guided by specialists
in that field. It will comply with its statutory obligations.
SPECIFIC POLICY 23: Where a small quantity of hazardous
material must be removed for health and safety reasons, andthere is a need for a replacement, it is appropriate to adopt a
flexible approach to the ‘like for like’ principle. It will be generally
appropriate to replace hazardous materials with approved modern
substitutes of a similar form. It will usually be necessary to make arecord of the change.

SPECIFIC ACTION 20: Undertake an audit and identification of
hazardous materials at Fremantle Prison, and ensure all staff are
made aware of the location and nature of any identified materials.
Undertake other appropriate measures, such as restricting accessto affected areas, as required.
SPECIFIC ACTION 21: Engage a specialist to prepare a
Remediation Action Plan that addresses the presence of hazardous
materials at Fremantle Prison, and makes recommendations as
required.
SPECIFIC ACTION 22: Formulate a heritage conservation
response based on the conclusions and recommendations of theRemediation Action Plan.

SPECIFIC POLICY 24: Where an element of Fremantle Prison
is substantially composed of hazardous material (e.g. a structure
is constructed almost entirely of asbestos-based products), andwhere health and safety dictate that the hazardous material must
be removed, the preferred response is to (a) record the elementin photographs and measured drawings to an archival standard
before its removal, and (b) interpret that element upon its removal.
Replicating the form using new materials is generally undesirable.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 86

HISTORIC SIGNAGE
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Signage is a necessary requirement of prisons and their operations.
It underpins the movement and management of prisoners anddirects and guides prison officers and visitors. As noted by Kerr
(1998) ‘Prison regimes depend on signs and notices’. The signage
at Fremantle Prison includes building names, directional andwayfinding signs, painted signs and noticeboards. It also includes
utility notices such as duty rosters, menu schedules and canteen
prices. Existing signs, in their original locations, are also an
important component of contemporary interpretation at the Prison.

FREMANTLE PRISON // Specific Policy Areas

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 25: As a general policy, all remaining signageof any age at the Prison should be retained and conserved and notremoved or concealed (such as being painted or rendered over).
An exception may be where modern signage conceals or impacts
on earlier signage, this decision being based on a case by caseassessment of significance.

SPECIFIC ACTION 23: All existing signage should be recorded(to archival quality level) to maintain evidence of its location,
condition and content, and to assist with future conservation andretention.

Extent Heritage / Lovell Chen // 87

ironmongery
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The ironmongery consists of the cell doors, gates, bars and grilles
and the like. All items help interpret the buildings as a prison.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 26: All ironmongery should be kept in goodcondition.
SPECIFIC POLICY 27: Continue to paint all external painted
ironmongery using oil or alkyd paints. Avoid the use of epoxy
or acrylic paints for metal work. These are not traditional paintsystems for metal products.

SPECIFIC ACTION 24: Through regular monitoring, continue toprepare and paint all painted ironmongery on a regular cycle of
7–10 years.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 88landscaping
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The landscape of Fremantle Prison includes a variety of open
spaces and defined areas, such as the Parade Ground, court
yards, the Terrace house gardens, Exercise Yards, sterile zones
and the Hampton Road Reserve. It also contains flat or stepped
terraced areas, such as the Terrace, South Knoll, East Terrace,and terraces to the west side of The Hospital. These spaces
generally have an informal landscape character, in some cases
austere and unembellished, with grassed surfaces and limited
plantings. The terraces variously incorporate brick retaining walls,
concreted areas, grass and former garden beds, and steel cyclone
fencing. There are former vegetable gardens, a tennis court andcricket pitch on the South Knoll.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 28: In the maintenance and modification ofexisting landscaping have regard to the Overarching Policy on‘Setting’ and the ‘Structures and Spaces Conservation Principles
and Actions’ for relevant areas. See also Appendix B.
SPECIFIC POLICY 29: Where new landscaping is proposed
and would require ground disturbance consider the potential for
impacts on archaeological deposits.
SPECIFIC POLICY 30: Inappropriate landscaping can accelerate
the deterioration of stonework and brickwork through root action
and the pooling of water. Avoid new plantings in the vicinity ofstone and brick masonry, especially walls.
SPECIFIC POLICY 31: Landscaping that would ‘soften’ theappearance of Fremantle Prison should be avoided.
SPECIFIC POLICY 32: Limit the introduction of outdoor furniture
items and the proliferation of new hard landscape elements.
SPECIFIC POLICY 33: As extant trees reach senescenceconsider their removal. In some circumstances replacement will
be appropriate. In such cases favour native tree species andhave regard to historic images of the Prison’s exterior from thenineteenth century in selecting new plantings.

SPECIFIC ACTION 25: Investigate the structural impacts of theeucalyptus trees that have established themselves on the northside of the Fairbairn Street Ramp. It may be necessary to havethese trees removed as a matter of priority to avoid further root
damage to the batter.
SPECIFIC ACTION 26: Consider the introduction of additionallandscaping to the car park on the west side of the southern half of
the Terrace to help soften the carpark’s appearance and improve
its presentation.
FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 89

LIGHTING
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Lighting, both external and internal has been a necessary part of
security and surveillance at the Prison. It has also been used todetect night time movement near the perimeter walls and in thesterile zones. According to Kerr (1998) the nineteenth century
light systems were modest and just adequate for the use ofprison officers on night duty. The current lighting systems are far
more extensive and pervasive, as would be expected of a prison
environment.
New or additional lighting, as an alternative, can be used at the
Prison to highlight historic features and to illuminate the walls andbuildings at night, including the form, materiality and texture of thewalls. In this way it serves a contemporary aesthetic purpose.

FREMANTLE PRISON // Specific Policy Areas

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 34: In any works to the walls, evidence oforiginal or historic lighting should be retained, with its function
interpreted.
SPECIFIC POLICY 35: New lighting systems should be discretely
located and of a consistent contemporary design. The lights
should preferably be set off from the walls or building fabric, or
located at ground level to uplight the walls; and should not involve
penetrations to the significant fabric.

SPECIFIC ACTION 27: Where feasible, and not currently inplace, introduce new lighting systems to the exterior and interior
faces of the perimeter walls and to the exteriors of buildings.

Extent Heritage / Lovell Chen // 90

masonry and cement
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

The complex is predominantly constructed of limestone, both
locally sourced and from Rottnest Island. It also incorporates
brickwork. The stone ranges from poor-to-good condition but isoften severely decayed where in close proximity to cement renders
and mortars.

Therefore, historically other types of cementitious-based renders
or Roman cement may exist and, subject to petrographic analysis
or XRF (X-ray fluorescence) analysis, the decision making
process should be based on compatibility with what is existing(early or original) and the performance of the substrate.

The houses fronting the Terrace and the Hospital have been
rendered in a cement-based system. It appears that part of thebuilding has been re-rendered at various times and that the newer
renders are more cementitious than the earlier composite rendersystem. This is generally undesirable.

SPECIFIC POLICY 39: Some renders contain graffiti and other art
works that contribute to the Prison’s significance. Do not remove
those renders without first assessing the heritage values embodied
by the graffiti and artwork. This will need to be assessed on acase-by-case basis. For example, in some circumstances it will beappropriate to remove render with graffiti of local significance toconserve underlying walls that embody Outstanding Universal Value.

There are also white washes and other treatments throughout thecomplex.

SPECIFIC POLICY 36: Fremantle Prison should observe a
process of repair, conservation and monitoring of all masonry. All
masonry elements should be maintained in good condition.
SPECIFIC POLICY 37: Cement-based mortars and renders
should be removed and avoided.
SPECIFIC POLICY 38: Where rendered finishes are identified
as dating to an early period, and where they contribute to theheritage values of the particular building, they may be retained.
If it is necessary to remove these renders as a result of decayof the limestone substrate, consideration could be given to lime
putty based render systems as an appropriate substitute forcement. Be aware that lime putty and cement are incompatible.
Portland cement was readily available in Australia from 1850
onwards and was manufactured in Melbourne in the early 1850s.

FREMANTLE PRISON // Specific Policy Areas

SPECIFIC POLICY 40: Where it is proposed to retain renders toconserve identified heritage values consider the use of chemical
consolidation, poultices and alternative repair methods to stabilise
the masonry substrate.
SPECIFIC POLICY 41: Review white washes and othertreatments to ensure that they are consistent with assessed
heritage values. Evidence of these exist through out the complex.
SPECIFIC POLICY 42: A cautious approach should be adopted
in any repair work, and investigations into methods should be
carried out prior to reversal.
SPECIFIC POLICY 43: Reinstate original pointing treatments,
such as tuck pointing, scribed ashlar lines or other expressed
detail which is no longer apparent. In doing so, it is important tounderstand the architectural presentation of the buildings, withmortar for pointing to be expressed or scribed to represent ashlar
line works.

Extent Heritage / Lovell Chen // 91

masonry and cement
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 44: New mortar repairs should differ incomposition to the pointing mortar and should be coloured tomatch the limestone. This would provide a better architectural
understanding of individual blockwork. The current approach is to
use the same mortar to repair the stone and repoint, which is a muchbrighter white than the stone, resulting in a rendered appearance.

SPECIFIC ACTION 28: Continue the current programme ofremoving cement-based mortars and renders and repoint thelimestone in lime-based mortars. The lime-based mortar is to besacrificial and will require a maintenance regime with a frequency
informed by monitoring.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 92murals
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Fremantle Prison retains a collection of murals and other painted
artworks from the convict era through to the end of the Prison’s
operations. These are located internally within the buildings, cells
and chapels, and externally on yard walls. While they vary in theirartistic integrity and quality, they are all powerful reminders of theprisoner experience and often of prisoner suffering or defiance.
Some also graphically depict acts of violence.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

mural from all chemicals, water, tools and other materials. Vibrationfrom works to the walls should also be monitored to ensure no
impacts on the mural.

SPECIFIC ACTION 29: If a mural is damaged, obtain expert
advice from a qualified conservator before undertaking any repairs.

The murals (mostly) comprise works painted directly onto wall
fabric (masonry or render). The condition of the masonry or
substrate is therefore critical to the condition and survival of themurals, as are other factors such as fading or incidental visitor
damage to the art work. Murals on dry and stable walls have abetter chance of surviving.

SPECIFIC ACTION 30: If a mural is identified for restoration,
obtain expert advice from a qualified conservator before
undertaking any restoration.

SPECIFIC POLICY 45: As a general policy, all remaining external
and internal murals should be conserved and not removed orconcealed (such as being painted or rendered over).

SPECIFIC ACTION 32: All existing murals should be recorded(to archival quality standard) to maintain evidence of their location,
condition and content, and to assist with future conservation andretention.

SPECIFIC POLICY 46: Any works, including conservation or
maintenance of a mural should be undertaken by a professional
conservator qualified in painted mural conservation. The
conservator should be a member of, and bound by, the Code of
Ethics and Practice of the AICCM Inc. (Australian Institute for theConservation of Cultural Material) or an international materials
conservation association.

SPECIFIC ACTION 31: A perspex sheet or similar, standing
proud of the wall to permit clear visibility and free circulation of
air, can be utilised for the protection of murals. These items also
require ongoing maintenance, to maintain their transparency.

SPECIFIC ACTION 33: Where a yard or cell contains a muralwhich depicts a violent act, or might otherwise be considered
offensive to observers, consider placing a small warning sign atthe entry to the cell or yard in preference to removing the mural or
restricting access. Guides may also warn visitors of the potential
for offence.

SPECIFIC POLICY 47: Any treatments to the murals generally
should ensure retention of the original paint.
SPECIFIC POLICY 48: In works to the walls which contain (andsurround) the murals, including maintenance and repairs, careshould be taken to ensure that the murals are not damaged or
impacted by cleaning products and the like. A waterproof physicalbarrier should be erected as a temporary measure to protect the
FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 93

OTHER HAZARDS
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Fremantle Prison incorporates structural elements that werebuilt at a time when different safety standards applied. Some ofthose elements are non-compliant with modern health and safety
statutory requirements, e.g. balcony rails may be too low, historic
flooring, door thresholds and ground surfaces may present trip
hazards, and different grades throughout the site may not becompatible with safe access and egress. The place’s heritage
values must be managed in a way that is responsive to these
health and safety issues.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 49: Fremantle Prison will not expose its
staff and visitors to unacceptable risks to health and safety. It willcomply with its statutory obligations.
SPECIFIC POLICY 50: Where elements of Fremantle Prison do
not comply with legislative requirements in relation to health andsafety (e.g. a balcony rail is too low), repairs/modifications cangenerally be made to make them compliant, using unobtrusive and(where possible) reversible interventions. In some circumstances,the heritage values embodied by the element may be so high that
it is preferable to retain the element without intervention, removing
users from the locality to remove the risk to health and safety. Thisdecision should be made on a case by case basis having regard toassessed levels of significance and adverse impacts.

SPECIFIC ACTION 34: Compile a register of non-compliant
elements at Fremantle Prison having regard to relevant healthand safety legislation and building codes. Formulate a response
based on the outcome, seeking to minimise impacts on the place’s
heritage values while ensuring compliance.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 94

roofing
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The existing roofs consist of corrugated sheet metal that appears
to be zincalume. There is evidence of timber shingles on a sectionof verandah roof at the rear of the administration buildings (within
the Prison wall). It appears that the original roof was slate, likely tohave been of Welsh origin.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 51: As roofs reach the end of their usable
lives, and subject to further investigation to confirm that shingles orslate were present, consider the replacement of roofs with shingles
or slate.
SPECIFIC POLICY 52: All roofs should be maintained in goodcondition including all associated rainwater goods consisting of
flashings, gutters and downpipes.
SPECIFIC POLICY 53: The downpipes contain baffle shrouds toprevent people climbing them. This detail is unique to the operationof the Prison and should be maintained and reinstated where
missing or degraded.
SPECIFIC POLICY 54: Continue to paint all external painted
rainwater goods using oil or alkyd paints. Avoid the use of epoxy
or acrylic paints for metal work. These are not traditional paintsystems for metal products.

SPECIFIC ACTION 35: Through regular monitoring, continue toprepare and paint all painted rainwater goods on a regular cycleof 7–10 years.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 95

services
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

The Prison complex contains a number of services that appear
to have been installed to the Prison following the fire in the Main
Cell Block in the late 1980s. Some services appear to be earlier,possibly mid-to-late twentieth century. The installation of services
has been undertaken in a utilitarian manner, consisting of surface
mounted fixtures, exposed pipes and conduits. On the interiorof buildings, this utilitarian aesthetic is an appropriate one andreflects the use as a Prison and the difficulty in retrofitting services
to these buildings. On the exterior of buildings, surface-mountingof services should be avoided.

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 55: Generally, on the interiors, it is appropriatethat services remain exposed and be surface mounted. The Main
Cell Block should utilise the gantries and the main circulation
spaces to provide services runs using unobtrusive colours.
SPECIFIC POLICY 56: In order to prevent a cluttered appearance
that may detract from the Prison’s heritage values, redundant postconvict-era services should be removed when replaced by new
ones.
SPECIFIC POLICY 57: There are various surface mounted
services located on the exterior of the buildings. Installation ofservices on the exterior should be avoided where alternative
solutions exist. Utilise floor boxes in the ground in preference tosurface mounted services. Where possible remove the numerous
services from the external elevations. It is accepted that some
services cannot be removed.
SPECIFIC POLICY 58: Avoid introducing new or additional
services into the individual cells. Where this is necessary theyshould be minimally intrusive and fully reversible.

SPECIFIC ACTION 36: Confirm what services are redundant andno longer code compliant and consider a strategy to roll out newservices to replace them. These works should be undertaken in
consultation with suitably qualified services engineers, building
surveyors, architects and heritage consultants.

FREMANTLE PRISON // Specific Policy Areas

Extent Heritage / Lovell Chen // 96

SURFACES (PEDESTRIAN SURFACES)
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Fremantle Prison has a variety of existing surface treatments
including concrete, bitumen and grass. Roads, paths and definedlawn areas or garden beds are often edged in brick and concrete.
The terraces on the south and east of the site are typically grassed,
as is much of the Parade Ground.
Original or early surface treatments at the Prison included
unsurfaced open spaces such as the dirt and grass evident in early
images of the entry court. The Parade Ground was historicallysurfaced in crushed limestone.
Additional research is required to date the sequence of earlier andextant surface treatments but the use of concrete and bitumen, andedgings in brick and concrete, are evident in many images fromthe twentieth century. These are, as might be expected of a prison
environment, robust utilitarian materials that are not ‘precious’ orindividually significant in heritage terms.

FREMANTLE PRISON // Specific Policy Areas

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

SPECIFIC POLICY 59: As a general policy, the ongoing use of
the current surface and edging treatments to the paths, roads
and open spaces can be maintained, and if replaced the newtreatments should draw on the palette of existing materials.
SPECIFIC POLICY 60: The overall balance of hard and soft
surfaces should be maintained, meaning that grassed areas
should generally continue to be grassed, and hard surfaced areas
should generally continue to be surfaced in concrete or bitumen.

SPECIFIC ACTION 37: Maintain the edges that delineate thegeneral alignment and form of the roads and paths, although thespecific edge treatments can be replaced, preferably on a like forlike basis.
SPECIFIC ACTION 38: The raised and defining brick and concreteedges of the garden and lawn beds need not all be retained,
especially if improved access is required. Some representative
examples can be retained, but otherwise these specific edge
treatments can be removed and replaced with a smootherlandscape treatment.

Extent Heritage / Lovell Chen // 97

visitation management
Consider the following overarching policies:

Outstanding
Outstanding
Universal
Value
Universal Value

Archaeology

Movable Heritage

Community andGovernance and Finance
Stakeholder Engagement

New Development

Physical Conservation

Setting

Keeping a Record

Aboriginal
Cultural Heritage

Telling the Story

The benefits that Fremantle Prison enjoys as a result of highvisitation rates are counter-balanced to a degree by the adverse
impacts that this can have on its heritage values. In particular,large numbers of people accessing the Prison make it vulnerable
to cumulative adverse impacts through ‘mechanical damage’ (e.g.
bumps and abrasion). It also elevates the risk of theft of movable
heritage and of vandalism.

SPECIFIC POLICY 61: Fremantle Prison will seek to maximise
visitation in order to best communicate its heritage values to thecommunity, acknowledging that the place’s conservation needs
may mean that access to some spaces must be limited.
SPECIFIC POLICY 62: Fremantle Prison will ensure that visitation
continues to be managed and controlled in a manner that balances
the attraction and educational value of the Prison experience,with sensitive interpretation, promotion and communication of theheritage values.
SPECIFIC POLICY 63: Fremantle Prison will maintain its
existing program of guided tours in order to manage the number
and movement of visitors. At the same time Fremantle Prison will
investigate opportunities for visitors to enjoy an ‘unaccompanied’experience by identifying spaces that are robust enough for that
purpose. Sometimes this may involve the introduction of reversible
protective devices in vulnerable locations, e.g. motion sensitive
alarms.

FREMANTLE PRISON // Specific Policy Areas

SPECIFIC ACTION 39: Continue to revise and update thedocument entitled ‘Fremantle Prison Interpretation Policy’(2007) to include ways of enhancing the ‘unaccompanied’ visitor
experience. This should be done having regard to any proposed
new Masterplan for the place.
SPECIFIC ACTION 40: Continue to maintain Fremantle Prison’s
cyclical and regular monitoring and maintenance program. If
physical damage to a location is identified due to excessive
visitation, remove the cause of the damage or implement protective
measures, e.g. a perspex sheet or similar, standing clear of the wallto permit visibility and free circulation of air, can be utilised for theprotection of plastered and painted surfaces; unobtrusive bollards
may be appropriate in areas experiencing high vehicle movement
near heritage fabric; floor runners may be used to minimise wear
and tear of certain vulnerable surfaces. The appropriate response
will be determined on a case by case basis having regard toassessed levels of significance, the impacts being experienced,
and the relative impacts of protective intervention.

Extent Heritage / Lovell Chen // 98

7. Structures and spaces: Conservation principles and actions

Structures and spaces:
conservation principles
and actions07

7. structures and spaces conservation principles and actions

East Terrace (EAST BANK) AND Reservoir, TUNNELS AND
PUMPING STATION

Location

Those parts of the East Terrace and surrounds that are of exceptionalsignificance are:•East Terrace as a flat landform associated with prison development•

archaeological remains of 1850s prison bath house and asso­
ciated wellThose parts of the East Terrace and surrounds that are of considerable
significance are as follows:•

Reservoir as sited above and below ground, and associatedsystem of shafts, drives, tunnels and weirs•

Pumping Station building and yard, including walls and tunnels

No parts of the East Terrace and surrounds has been assessed as
being of some significance.

significance
The East Terrace – a flat landform on the higher ground of the easternpart of Fremantle Prison – is a key historical component of theconvict-era planning and development of the Prison. The Terrace isalso significant as the site of the original 1850s Prison bath house.
In the post-convict period it accommodated significant developments
including the East Reservoir with its comprehensive undergroundwater reticulation system, and the Pumping Station with associatedyard and tunnels. While these developments have limited presence
within the Prison, the underground components are extensive. They
are of technological significance for their construction, including thevaulted gallery, the tunnels and shafts excavated from the limestone
by prisoners, and the complex water reticulation arrangement.
Historically, the Pumping Station is also of note for its independent
outside operation while physically located within the Prison.
Architecturally and aesthetically, the Pumping Station building andyard walls, which used limestone for construction, demonstrate thefavoured building material of the Prison.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Those parts of the East Terrace and surrounds that are of little or no
significance are as follows:•

northern addition to Pumping Station•

all other modern fabricprinciples
PRINCIPLE 1: The Eastern Reservoir and its underground components
should be retained and conserved as a key historical development of
the post-convict era of Fremantle Prison.
PRINCIPLE 2: The East Terrace should be maintained in its present
grassed form and at its existing level.
PRINCIPLE 3: The visibility of the Reservoir, including its vaulted roof
form, should be maintained.
PRINCIPLE 4: The historic interior character and spatial characteristicsof the Reservoir and its associated internal and undergroundcomponents should be retained and conserved.
PRINCIPLE 5: The historic character and aesthetic significance of
the Pumping Station in its walled compound should be retained andconserved.

Extent Heritage / Lovell Chen // 100

East Terrace (EAST BANK) AND Reservoir, TUNNELS AND
PUMPING STATION
PRINCIPLE 6: The substantial concealment of the Pumping Stationfrom outside the Prison, including from the Hampton Road Reserve
where the east perimeter wall restricts views, is an historical condition
that should be maintained.
PRINCIPLE 7: No new buildings should be introduced to the East Terrace.
PRINCIPLE 8: Avoid the introduction of new facilities, even minor ones,
to the west and north sides of the Pumping Station yard walls.
PRINCIPLE 9: The current surfaces of the Terrace and eastern area of
the Prison can be maintained. If replaced, the new surface treatments
should draw on the palette of existing materials.

Structures & Spaces Actions
ACTION 1: Consider the demolition of the western addition to the
Pumping Station. However, prior to such demolition, the following steps
should be taken:•

Identify the works required to reinstate or reconstruct the original
building form on its west side following demolition of the addition,and ensure the funds and resources are available to undertakethese works.

•

Consider ongoing operational needs in terms of the use of theaddition, and whether these can still be met in the absence of theaddition.

PRINCIPLE 10: Avoid the introduction of outdoor furniture items andthe proliferation of new hard landscape elements. New lighting systems
should be discretely located and of a consistent contemporary design.
Such should also be set off from the perimeter walls and should not
involve penetrations to the significant fabric.

ACTION 2: Maintain the interpretive experience located in the Pumping
Station and tunnels and update from time to time to reflect the findingsof further research and archaeological investigations.

PRINCIPLE 11: New services, where required, should preferably belocated underground.

ACTION 3: Continue to allow supervised public access to the undergroundspaces and elements, including the tunnels.

PRINCIPLE 12: Any new uses considered for the Reservoir chambers
should not damage their spatial characteristics.

ACTION 4: Continue to use and enhance the historical interpretation of
the East Terrace and its components.

PRINCIPLE 13: The original 1890s fabric of the Pumping Stationbuilding, together with the yard walls, should be retained and conserved.

ACTION 5: Continue to use the East Terrace as an undergroundadventure tourism and visitor experience.

PRINCIPLE 14: Retain and conserve evidence of the Pumping Station
operating independently and separately within its compound.
PRINCIPLE 15: The fabric and form of the underground tunnels andshafts should be retained.
PRINCIPLE 16: The undulating form of rendered brick vaulting to the
top of the Reservoir should be retained and not impacted by works.
PRINCIPLE 17: Ensure any potential future use of, and works to,
the Reservoir does not detract from the presentation and spatial
characteristics of the chambers.
PRINCIPLE 18: All original features and equipment associated withthe water reticulation system should be retained and continue to berevealed.
PRINCIPLE 19: Subject to further investigation and sufficient evidence
being available, the reinstatement of the original treatments to the
openings of the Pumping Station building could be considered. Suchworks need to be balanced against the potential for damage to theexisting original fabric through the removal of the later fabric.
PRINCIPLE 20: Maintain the separate entrance to the Pumping Station,
as exists in the east Prison perimeter wall.
PRINCIPLE 21: Any works to the East Terrace involving the groundsurface or the introduction of services should be preceded by anarchaeological investigation of the site of the 1850s bath house and its
associated well.
PRINCIPLE 22: Interpretation of the East Terrace and its components
is essential to conveying the history of this area of the Prison, including
its role in water supply to the Prison and Fremantle.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 101

east Workshops

Location

Those parts of the East Workshops that are of little or no significanceare as follows:•

Later infill/addition which roofed over the yard, and its fabric.

•

All other modern fabric.

Principles
PRINCIPLE 23: The East Workshops should be conserved to thehighest standards, consistent with Burra Charter principles andprocesses.
PRINCIPLE 24: The historic character and aesthetic significance of
the East Workshops, including the long low scale presentation to theEast Terrace and southern area of the Prison, should be retained andconserved.

significance
The East Workshops are a key convict-built component of Fremantle
Prison. The original blacksmiths’ shop dates from 1852, making it oneof the earliest convict structures on site. The addition of the carpenter’s
shop enhanced the function, with the facility able to engage prisoners in
useful work and help reduce Prison operating costs. Architecturally andaesthetically, the west side of the Workshops contributes to the austerecharacter of this area of the Prison, although altered and diminished by
the non-original openings and part wall treatment of render and overpainting. This includes its strong and consistent low scale presentation.
Together with the southern part of the Main Cell Block, the Workshops
constitute the oldest convict-built structures in this part of the Prison.
Those parts of the East Workshops that are of exceptional significanceare:•

All of the convict-era fabric of the East Workshops, including theform/space of the original yard on the east side.

No parts of the East Workshops have been assessed as being of
considerable or some significance.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

PRINCIPLE 25: The substantial concealment of the East Workshops
from outside the Prison, including from the Hampton Road Reserve
where the east perimeter wall restricts views, is an historical condition
which should be maintained.
PRINCIPLE 26: Generally, the form and detailing of the west elevationof the Workshops should be maintained, although the non-original
window openings offer some flexibility for additional but limited change.
PRINCIPLE 27: Do not build over or above the roof of the original
1850s component, to maintain its consistent low scale form andpresentation.
PRINCIPLE 28: Avoid the introduction of new facilities, even minor
facilities, to the west setback to the Workshops, which would impact on
the presentation to the East Terrace and southern area of the Prison.
PRINCIPLE 29: Where any works are proposed, generally all originallimestone walling and other surviving original or early fabric should be
retained.
PRINCIPLE 30: In any proposed adaption works, any required
partitioning should be modest in height and removable.
PRINCIPLE 31: Since 1960 the entire yard has been roofed using alight steel truss on steel supports and the large space created was lastused as a metal and automotive workshop. The 1960s infill/addition

Extent Heritage / Lovell Chen // 102

east Workshops
could be removed or replaced. If replacement is contemplated any new
structure in this location should:•

Generally not exceed the footprint and building envelope of theexisting addition•

Should be sympathetic and in keeping with the historic building

PRINCIPLE 32: Interpretation of the East Workshops should
promote their original function and alert visitors to the presence of theWorkshops behind the west façade; it is also essential to highlighting
and transmitting the OUV of the Prison.

Structures & Spaces Actions
ACTION 6: Consider the reinstatement of the original treatments to thewindow openings of the west elevation, subject to further investigationand sufficient evidence being available. Such works need to be balanced
against the potential for damage to the existing original fabric, throughthe removal of the later fabric.
ACTION 7: Consider the removal of the 1960s infill/addition. However,prior to such removal or demolition, the following steps should be taken:•

Identify the works required to reinstate or reconstruct the original
building form on its east side following demolition of the addition,
including through removal of the later brick courses; and ensurethat the funds and resources are available to undertake theseworks.

•

Consider ongoing operational needs in terms of the use of theaddition, and whether these can still be met in the absence of theaddition.

ACTION 8: Finalise the draft individual Conservation Management
Strategy for the East Workshops, as prepared by Fremantle Prison, toprovide more focused and tailored guidance and policies, and greater
detail about original and later building fabric.
ACTION 9: Continue to use and enhance the historical interpretation of
the East Workshops.
ACTION 10: Continue to allow supervised public entry to the Workshops.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

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Exercise Yards

Location

Those parts of the Exercise Yards that are of exceptional significanceare as follows:•

Exercise Yards (size, general form and layout) including all convictbuilt walls and elements

Those parts of the Exercise Yards that are of considerable significanceare as follows:•

post-convict era (colonial prison) yard divisions and associated
walls

•

gallows•

water closets, urinals and ablution troughs (on the diagonal to yard
corners)

Those parts of the Exercise Yards that are of some significance are as
follows:•

historic murals and graffiti•

all shelter sheds, tables and seating•

later kitchen-related fabric and fit-out to southern yard

Those parts of the Exercise Yards that are of little or no significanceare as follows:•yard surfaces, services, lighting etc•

all other modern fabricsignificance
The Exercise Yards are a key historical convict-built component ofFremantle Prison, and more specifically of the Main Cell Block complex.
They are functionally related to the Main Cell Block, and their walled
divisions provide evidence of the classification and segregation of dif­ferent prisoner groups. They are also prominent elements of the Prisonsite through their large footprint. Evidence of the prisoners’ con­fine­­ment
in and use of the Exercise Yards, and their treatment of the Exercise
Yards’ walls over time, including murals and graffiti, are powerfulreminders of the prisoner experience. The gallows are also significant.
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Exercise Yards
pRINCIPLESPRINCIPLE 33: The Exercise Yards should be conserved to the highest
standards, consistent with Burra Charter principles and processes.
PRINCIPLE 34: Retain and conserve the Exercise Yards including theirplan, form and layout, and the stone enclosing and dividing walls to theirfull existing height.
PRINCIPLE 35: Maintain the prominence and visibility of the Exercise
Yards’ walls within the Prison.
PRINCIPLE 36: Retain views of and into the Exercise Yards from theelevated East Terrace, a perspective not available from elsewhere in
the Prison – other than from cell windows in the upper levels of theMain Cell Block – and which provides an immediate appreciation of
the regularity and geometry of the Exercise Yards as defined by thewalls. This includes limiting or avoiding the introduction of structures orplantings which would impact on the views. The high wire fencing, as
evidence of later security measures, can be retained.
PRINCIPLE 37: Retain and conserve the historic character of the
Exercise Yards, including their enclosed form.
PRINCIPLE 38: Maintain the historically open and uncluttered
presentation of the Exercise Yards.
PRINCIPLE 39: Retain and conserve the historic character andaesthetic significance of the Exercise Yards’ walls including evidenceof repairs, other than where the repairs are causing damage to thesignificant wall fabric.

PRINCIPLE 46: Rather than conserve all phases of use within all of
the Exercise Yards, it may be appropriate to conserve one yard thatbest illustrates the multiple phases of use (retaining all shelter sheds,
water closets, ablution troughs, notice boards, signs, murals and graffiti
regardless of age), while using other yards to illustrate a particular periodof use (e.g. the convict period). This should only be done after a carefulconsideration of the representativeness of the different yards and bybalancing the conservation needs of each period based on significance.  
PRINCIPLE 47: The present surface treatment of the Exercise Yards
can be retained but it has a high tolerance for change if necessary.
PRINCIPLE 48: Interpretation of the Exercise Yards is essential to thetask of conveying the history of the Exercise Yards – their relationship to
the Main Cell Block and their evolution over time – and highlighting andtransmitting the OUV of the place.

Structures & Spaces Actions
ACTION 11: Maintain external views of the Exercise Yards walls fromwithin the Prison.
ACTION 12: Where any internal elements of the Exercise Yards are
removed, ensure they are first recorded in situ, catalogued and stored
pending possible future reinstatement or exhibition.
ACTION 13: Continue to use and enhance the historical interpretationof the Exercise Yards.
ACTION 14: Continue to allow supervised and guided (but selective)
public access by groups of visitors to the Exercise Yards.

PRINCIPLE 40: Avoid introducing new buildings or structures into the
Exercise Yards, other than very minor or temporary elements. Where
minor or temporary structures are proposed they should be freestanding,
substantially transparent and below the height of the Exercise Yards’
walls.
PRINCIPLE 41: Avoid the introduction of landscaping or similar, which
would ‘soften’ the appearance of the Exercise Yards and their enclosing
walls; and plantings which obstruct an appreciation of the walls.
PRINCIPLE 42: Retain and conserve elements of the Exercise Yards’
infrastructure and management, and use by prisoners, including the
shelter sheds, fixed tables and seating; water closets and ablution
troughs; notice boards and signs; and murals and graffiti. This may
include representative examples.
PRINCIPLE 43: Preference the use of existing openings or blocked
former openings for access through the walls and between yards rather
than introducing new openings.
PRINCIPLE 44: Maintain access between the Main Cell Block andthe yards to retain evidence of the historical relationship between the
Exercise Yards and the various divisions.
PRINCIPLE 45: In determining which elements of the Exercise Yards’
infrastructure to retain (e.g. shelter sheds, water closets and ablution
troughs), consider the following:•

the date of the elements, based on targeted research, favouring
the retention of older examples over more recent examples•

the need for a representative range of notice boards and signage,
to provide evidence of the administration and management of the
Exercise Yards over time•a preference to retain all the graffiti and murals as powerfulreminders of the prisoner experience

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Fairbairn Street Ramp

Location

PRINCIPLES
For additional guidance with respect to the management of the Fairbairn
Street Ramp see ‘Overarching Policy – Setting’.
PRINCIPLE 49: The Fairbairn Street Ramp should be retained andconserved while reinforcing its role as the main pedestrian access tothe site and the historic link to the City of Fremantle.
PRINCIPLE 50: The Ramp’s visual and functional relationships with
the Terrace and Gatehouse, including the axial relationship with the
Gatehouse and historic entry to the Prison, should be maintained.
PRINCIPLE 51: The visibility of the constructed form of the Ramp,
including the batters to the Ramp and their exposed limestone spoil,
should be maintained.

significanceThe Fairbairn Street Ramp is a key historical convict-built component of
the Fremantle Convict Establishment. It served a much-needed historicalfunction, initially in the construction of the Prison and subsequently inproviding a direct connection to the Prison from the lower ground of
Fremantle. The Ramp is a technological and engineering achievement
demonstrated in its original length and scale and use of quarried limestone
spoil in its construction. Aesthetically, the Ramp also visually connects
with, and enhances, the presentation of the Terrace and Gatehouse.
Those parts of the Fairbairn Street Ramp that are of exceptionalsignificance are:•Fairbairn Street Ramp, including form and fabric and archaeologicalevidence of earlier elements, e.g. tram line•

the batter banks either side of the Ramp•

archaeological evidence of the Fremantle Prison vegetable garden

PRINCIPLE 52: Interpretation of the Fairbairn Street Ramp is essential
to conveying the history of the Prison, how it was constructed, and how
it was accessed directly from the City of Fremantle (old Fremantle).
PRINCIPLE 53: No new buildings or structures should be built on the
Ramp apart from appropriate interpretation devices.
PRINCIPLE 54: No new works should encroach into or otherwise
impact on the surviving extent of the Ramp.
PRINCIPLE 55: No new buildings or structures should be built up
against or close to the exposed sides or batters of the Ramp, other thanvery minor or temporary elements.
PRINCIPLE 56: The modern surface treatments, fences, balustrades
and the like can be retained.

No parts of the Fairbairn Street Ramp have been assessed as being of
considerable or some significance.
The stone wall on the southern side of the Ramp is assessed as being oflittle or no significance (insofar as it relates to the Prison). It is possiblethat it is of some significance relative to the Fremantle Football Oval.
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Fairbairn Street Ramp
Structures & Spaces Actions
ACTION 15: The trees which are physically and visually impacting on
the Ramp, especially on the north side, should be selectively removed
or pruned, while conserving significant trees to prevent further impacts
on the Ramp.
ACTION 16: Repair the battered sides of the Ramp where the tree roots
are impacting it.
ACTION 17: Continue to use the Ramp as a pedestrian access routeto the Prison.
ACTION 18: Enhance interpretation measures at the Ramp.
ACTION 19: Any works to the Ramp or Parry Street carpark involving
ground disturbance or the introduction of services should be precededby an archaeological investigation of the location having regard to thepotential for archaeological evidence of the tram lines and Fremantle
Prison vegetable garden to survive.
ACTION 20: Encourage removal of the limestone wall lining the south
side of the Ramp.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 107female Division

location

No parts of the Female Division have been assessed as being of somesignificance.
Those parts of the Female Division that are of little or no significanceare as follows:•

post-1970 additions•

all other modern fabricPrinciples
PRINCIPLE 57: Retain and conserve the Female Division and support
viable and compatible uses.
PRINCIPLE 58: The enclosed and ‘separate’ character of the Female
Division within Fremantle Prison – a gaol within a gaol – should be
retained.

significanceThe Female Division is a key historical development of the post-convict
era Prison, incorporating and adapting the earlier 1850s convict era
services building. It is the first and only self-contained female prisonof the nineteenth century in Western Australia, and distinguished inthis context through being a ‘gaol within a gaol’ of the much larger
Fremantle Prison. Although a highly evolved complex of buildings, it stillretains its discrete, separate and confined character within the Prison.
Architecturally and aesthetically, the Female Division is also noted forits mix of ‘curious and powerful roof trusses and structures … and for its
plan which has helped create odd and intimate spaces both within andwithout the buildings’ (Kerr 1998).
Those parts of the Female Division of exceptional significance are as
follows:•

convict-era bakehouse, cookhouse and laundry

Those parts of the Female Division of considerable significance areas follows:•

whole of Female Division, including building components, walls,
sterile zones and exercise yard as existed at completion of theFemale Division in 1910

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

PRINCIPLE 59: The substantial concealment of the Female Divisionfrom outside the Prison, including from Knutsford Street where the northperimeter wall restricts views of the buildings, is an historical condition
which should be maintained.
PRINCIPLE 60: Within the confines of the Female Division, the historiccharacter and aesthetic significance of the buildings as constructed up
until 1910 should be retained and conserved, including the mix of stone
and brick external walls.
PRINCIPLE 61: The existing walls that define and enclose the Female
Division should be maintained and the removal of sections to create
breaks that would ‘open up’ visibility into the Female Division should
be avoided.
PRINCIPLE 62: The visibility of the external walls of the historicbuildings within the Female Division should be maintained.
PRINCIPLE 63: Avoid introducing additional buildings or structures into
the walled yards and enclosed spaces of the Female Division, otherthan very minor or temporary elements.
PRINCIPLE 64: Avoid introduction of further landscaping or similar, which
would ‘soften’ the appearance of the walled yards and enclosed spaces.
PRINCIPLE 65: Preferably maintain, and do not infill or build over, thedistinctive mix of internal and external spaces in the Female Division
which demonstrate its evolved character.
Extent Heritage / Lovell Chen // 108

female Division
PRINCIPLE 66: Where works to the Female Division and individual
buildings within it are proposed, including ongoing adaptation, existing
fabric which generally should be retained includes:•

original 1850s fabric•external masonry fabric including the existing openings of the1889, 1895 and 1909 buildings and developments•

the various roof forms and structures including the roof trusses•

the plan concept of the 1890s including the separation between the1855 and 1890s cell ranges, their connecting east-west passage
and the provision for yards to the north and south of the connection•

surviving evidence of the specific women’s facilities located in thenorthern section of the mid-1890s building•

the walled yards and enclosed spaces in the northwest and northof the site, between the 1855 building and the 1890s east building,including exercise cages; and sterile zones along the east andsouth boundaries

PRINCIPLE 67: Interpretation of the Female Division should convey thestory of the ‘separateness’ of the Female Division from the rest of the
Prison, its later date and distinctive physical evolution.

Structures & Spaces Actions
ACTION 21: A sample of cells should preferably be maintained,
including any surviving Prison-related fittings and fixtures, and prisoner
decoration. For cells and spaces which are further adapted and whereinternal elements are removed, ensure any remaining significant
elements are recorded in situ, catalogued and stored pending possible
future reinstatement or exhibition.
ACTION 22: Consider the demolition of buildings of little or no heritage
significance, such as the later buildings introduced to the eastern yard
and the western area of the Female Division site. However, prior to sucha demolition the following steps should be taken:•

Consider ongoing operational needs in terms of the use of theselater buildings, and whether those needs can still be met in theabsence of the buildings•

Subject to the above, consider the potential for the significance of
the Female Division to be enhanced through the removal of thesebuildings, including opening up a view of an historic building orwall, or reinstating an original yard or open space area

ACTION 23: Consider the replacement of buildings of little or no
heritage significance if doing so would meet the following requirements:•

The planned replacement building supports the ongoing viable andcompatible use of the Female Division.

•

The planned replacement building is sympathetic and in keepingwith the historic buildings of the Female Division, and generally
does not exceed the footprint and building envelope of thedemolished building.

•

The height and scale of the planned replacement building maintains
the historical pattern of substantial concealment of buildings in the
Female Division from outside the Prison, and restricted visibility
from within the Prison.

ACTION 24: A new building or structure may be considered for the
Female Division, although retaining the balance of existing buildings
and open space is desirable. If a replacement building is proposed, thesite of the YHA addition is preferred.
ACTION 25: Consider the preparation of an individual Conservation
Management Strategy for the Female Division, to provide more focusedand tailored guidance and policies, and greater detail about original andlater building fabric.
ACTION 26: Continue to use and enhance the historical interpretationof the Female Division.
ACTION 27: Where feasible continue to allow public entry to the Female
Division.

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Extent Heritage / Lovell Chen // 109

the gatehouse and entry complex

Locationsignificance
The Gatehouse and Entry Complex is a key historical, convict-built
component of Fremantle Prison. The Gatehouse is part of the dominantfaçade and main face of the Prison, with its central location on the
Terrace emphasising its primacy and importance. The tower clock further
emphasises the importance of the Gatehouse, as does its height (being
the tallest building on the Terrace) and its axial relationship to the
Fairbairn Street Ramp. The Gatehouse is highly visible on approachto the Prison from the west. It is remarkably intact relative to its originalform and detailing, as it presents to the Terrace. Although constructedof the same limestone as the other Prison buildings, the Gatehouseremains a distinctive structure both architecturally and aesthetically. On
deliberate stylistic grounds the Gatehouse does not share the domestic
character of the Terrace residences. The Gatehouse was also designed
to intimidate, reinforced by the guard houses with their embrasures
which flank the entry and give the building a battlement-like character.
The other convict-era buildings of the Entry Complex, including the‘contact’ and ‘non-contact visits’, are also significant components ofthe complex. They maintain their visual and functional relationships
with the Gatehouse, Wray Gates, entry court and Parade Ground, andcontribute to the historic character of the latter spaces. These buildings,
through their east walls, also have an important relationship to the
Parade Ground, in that they form the border on its west side.
While the entry court is a space with a small and constrained footprint,
it retains its austere character and functional relationship with the outerand inner gates. The small space also provides a dramatic contrast withthe expansive Parade Ground, glimpsed through the Wray Gates.
Historically, the Gatehouse and Entry Complex retain their purpose-built
function as the main entry and processing point to the Prison, albeit
visitors and tourists, rather than inmates, are now those people being‘processed’.

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Extent Heritage / Lovell Chen // 110the gatehouse and entry complex
Those parts of the Gatehouse and Entry Complex that are of exceptionalsignificance are as follows:•

convict-era Gatehouse and Entry Complex, including guardhouses,
Contact and Non-Contact visits, entry court (not current surface
treatment)•

Wray Gates

source of its significant character; the visual relationships between thebuildings should also be maintained.
PRINCIPLE 77: The presentation of the contact and non-contact visits
to the entry court (west side) and the Parade Ground (east side) must
be maintained.

No parts of the Gatehouse and Entry Complex have been assessed as
being of considerable significance.

PRINCIPLE 78: Avoid the introduction of new facilities, even minor
visitor facilities, which further intrude into the space of the entry court,
and/or impact on the presentation of the historic buildings to the court,
and their visual relationships.

Those parts of the Gatehouse and Entry Complex that are of somesignificance are as follows:

PRINCIPLE 79: If considering a replacement building addition, thisshould:•prisoner reception, exhibition space and former armoury•

steel vehicle dock and control box (sally port)

Those parts of the Gatehouse and Entry Complex that are of little or no
significance are as follows:•modern additions to the buildings which have intruded into theentry court, including the Convict Café deck•

modern fitouts and fittings to the buildings•

all other modern fabric

PRINCIPLESPRINCIPLE 68: The prominence and visibility of the Gatehouse must be
maintained, as seen on approach from the west, including the building’s
central place and primacy in views from the Fairbairn Street Ramp.
The Gatehouse should remain the focus of the Prison as it presents toFremantle.
PRINCIPLE 69: Ensure that the Gatehouse remains the tallest of thebuildings on the Terrace, by allowing no new additions or other elements
to be added to the adjoining buildings which would increase their heightand diminish this aspect of the Gatehouse’s presentation.
PRINCIPLE 70: The historic character and aesthetic significance of theGatehouse must be retained and conserved. This includes its fortresslike appearance, and austere and forbidding character, which highlights
its role as a prison structure and distinguishes the Gatehouse from theflanking former residences.
PRINCIPLE 71: The Gatehouse’s historical role as the principal entry
to the Prison should be maintained, as should its administration andPrison processing functions.
PRINCIPLE 72: The stone and iron fence that intersects with the twocanted bays of the Gatehouse should be retained.
PRINCIPLE 73: No new buildings, structures or minor elements should
be introduced to the immediate west setting or front setback of theGatehouse to the Terrace.
PRINCIPLE 74: No new buildings or structures, other than very minor
elements should be introduced into oblique views of the Gatehouse, as
seen from the north-west and south-west on the Terrace.

•

Generally not exceed the footprint and building envelope of theexisting addition•

Be sympathetic to and in keeping with the historic building•

Preferably not be considered if the replacement maintains theintrusion into the entry court

PRINCIPLE 80: In the case of the Gatehouse, it is preferable that thelater additions be removed rather than conserved, if this is feasible interms of ongoing operations. Removing the additions would help reveal
and reinstate the original form of the Gatehouse. The objective is to try
to reinstate the original 1850s building form. The additions referred to
are those that have been made to the building itself, rather than the sallyport, which may be retained (as similar later items may be).
PRINCIPLE 81: When considering new visitor facilities in the Gatehouseand Entry Complex area, preference the use of existing buildings overthe introduction of new buildings and structures. If new buildings are
absolutely required they should not:•be dominant new elements within the limited entry court space•interfere or impact on the visual and functional relationships of thehistoric entry court buildings and inner and outer gates

PRINCIPLE 82: Lighting to illuminate the Gatehouse is encouraged,
including architectural and theatrical lighting. This would assist in
highlighting the primacy of the building and reinforcing its historically
central role in the Prison. An assessment of the scale, fixing andsuitability of light fittings should also occur prior to installation.
PRINCIPLE 83: The Gatehouse clock should be maintained in working
order.
PRINCIPLE 84: Where any works are proposed, including works
associated with ongoing adaptation and commercial and administration
uses, existing fabric which should be retained at the Gatehouse andEntry Complex includes:•

external original or early fabric such as roof forms, masonry walls,
chimneys, string courses, parapets and cornices, window and door
openings, and the embrasures•internal original or early fabric such as joinery, stairs andbalustrading, fireplace surrounds and mantels, architraves, sills,
jambs, timber doors, multi-paned and other windows, plaster work
including surviving lath and plaster ceilings, decorative details andcornices•original or early iron work and hardware such as the Wray Gates,
locks, fasteners and the like

PRINCIPLE 75: Avoid the introduction of landscaping or similar, which
would ‘soften’ the appearance of the Gatehouse or the appearance ofthe contact and non-contact visits to the entry court and Parade Ground.
PRINCIPLE 76: The convict-era buildings which variously address
the entry court should remain the principal focus of the court, and the

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Extent Heritage / Lovell Chen // 111

the gatehouse and entry complex
PRINCIPLE 85: As a general comment, maintain and repair the stone
walls of the Entry Complex buildings using traditional materials andtechniques.

ACTION 33: Continue to enhance the entry court experience for visitors
and tourists, by ensuring that all the required way-finding signage andtour/attractions information is clearly displayed and legible.

PRINCIPLE 86: Interpretation of the Gatehouse and Entry Complex isessential to conveying the history of the complex, including the functional
relationships of the various buildings and components; the role of theouter and inner gate arrangements; and the historical planning andlayout, and how this has evolved. It is also essential to highlighting andtransmitting the OUV of the place.

ACTION 34: Through interpretation and design, ensure visitors
recognise that the Gatehouse remains the principal entry to the Prison.

PRINCIPLE 87: Where a new or additional facility is required, the locationof the ‘escape yard’ near the existing toilets might be considered, but
only after potential heritage impacts have been carefully assessed. In
any event, a new development at this location should not exceed thefootprint of the existing shelters.

Structures & Spaces Actions
ACTION 28: Remove the modern render strips and panels which havebeen added to the walls of the buildings which face the entry court.
ACTION 29: Previous repairs and alteration to the building walls
containing cement-based products appear to have had catastrophic
effects on the limestone, with the stone being more susceptible todecay where these repairs have been made. The removal of previous
cement-based repairs and the introduction of a weaker mortar system,
based on the premise that the mortar is sacrificial to the stone and thatthe compressive strength of the mortar will need to be lower than thestone, is recommended and will help to reduce and redress the stone
decay. Future maintenance regimes should be modelled on the basisthat mortar will have limited longevity and will require frequent attention
in order to maintain the stonework.
ACTION 30: Previous repairs have muddied the language andrelationship between the original stone and its detailing, and what
has been repaired/added. To address this, further investigation of thevarious original aesthetic treatments of the convict building fabric is
recommended, to assist with future informed reinstatement of suchtreatments. The investigation can include:•

paint sample analysis of painted elements•

original pointing treatments, to identify where tuck pointing, scribedashlar lines or other expressed detail was used and is no longer
apparent•

the review of white washes and other treatments, evidence of
which exist throughout the complex

Understand the architectural presentation of the buildings, which could
vary according to use and prominence. Where mortar repairs should
differ in composition to the pointing mortar, they should be coloured
to match the limestone. This would provide a better architectural
understanding of the individual blockwork. The current approach is to
use the same mortar, which is a much brighter white than the stone forboth types of repair, and this results in a rendered appearance.
ACTION 31: Develop interpretation measures to communicate theworkings and functional relationships of the Entry Complex buildings, andthe inner and outer gate arrangements. Continue to use and enhance thehistorical interpretation of the Gatehouse and Entry Complex.

ACTION 35: Through interpretation and design, continue to develop
high quality visitor facilities located in the heritage buildings of the Entry
Complex. Aim to make visitors feel comfortable about entering thecomplex at this point despite its forbidding character.
ACTION 36: Seek to achieve a balance between recovering the early
character and form of the Entry Complex buildings both externallyand internally, including potentially removing later additions andencroachments into the entry court, while continuing to support theuse of these buildings and spaces for ongoing administration andcommercial purposes.
ACTION 37: Continue to use the Gatehouse as the principal entry to the
Prison, and the place where visitors and tourists are ‘processed’.
ACTION 38: Display and interpret fabric and features which illustrate
the key historical functions of control of entry and exit, reception,
processing and discharge of prisoners, contact and non-contact visits,
and communications and security control.
ACTION 39: Display and interpret similar items as they relate to more
recent prison operations (up until 1991), but generally these items
should not take precedence over, nor should they be to the detriment of,the display and interpretation of convict-era fabric and items associatedwith the Gatehouse and Entry Complex.
ACTION 40: Prior to removal or demolition of later additions or accretions
to Entry Complex buildings the following steps should be taken:•

Undertake an assessment of the significance of the addition, andof the impact of the demolition on that significance, on the subject
building, and (where relevant) on the entry court.

•

Identify the works required to reinstate or reconstruct the original
building form, following demolition of the addition, and ensure thefunds and resources are available to undertake these works.

•

Consider ongoing operational needs in terms of the use of theaddition, and whether these can still be met in the absence of theaddition.

ACTION 41: Consider removing or reducing the footprint of the cafédeck within the entry court.
ACTION 42: The present surface treatment of the entry court can beretained but consider the reinstatement of an earlier treatment.
ACTION 43: Investigate the openings to the east walls of the Contact
and Non-Contact Visits, as they face the Parade Ground, to determine
which are original and which are later or modified. Give consideration toreversing the latter and reinstating the original form of the walls.
ACTION 44: Finalise the draft individual Conservation Management
Strategy for the Gatehouse and Entry Complex, as prepared byFremantle Prison. This will assist in identifying original convict-era
fabric, which can then be the focus of conservation works.

ACTION 32: Consider opportunities to allow for visitor access to theGatehouse, which was pivotal to prison operations.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 112hampton road reserve

location

Those parts of the Hampton Road Reserve that are of exceptionalsignificance are as follows:•

Hampton Road Reserve in its entirety in terms of its role as anexternal sterile zone and for its contribution to the setting to theeast Prison perimeter wall•archaeological remains of the convict-era Warders’ Cottages

Those parts of the Hampton Road Reserve that are of considerable
significance are as follows:•

the system of shafts, drives and bores beneath the Hampton Road
Reserve, built during the 1890s and into the early twentieth century

No parts of the Hampton Road Reserve have been assessed as beingof some significance.
Those parts of the Hampton Road Reserve that are of little or no
significance are as follows:significance•carparking

The Hampton Road Reserve is significant for its historical relationshipwith the Prison, and for its role in providing a setting to the Prison on its
east side. It makes a significant contribution to the aesthetic significanceof the Prison. The reserve offers a high level of visibility in the local
context to the Prison and its east perimeter wall.

•

plantings and vegetation

Save for some generally limited plantings, in the reserve proper and on
the median strip adjoining the road, the view of the wall from the reserve
is unimpeded and powerful, and shows the wall for all its length, heightand materiality with no interruptions or breaks. This view of the east
perimeter wall has drawn attention to the presence of the Prison sincethe 1850s.
The reserve area has additionally provided a physical buffer to the urban
development of Fremantle to the east, which has continued apace since
the establishment of the Prison. In terms of historical archaeology, thesurviving shafts, drives and bores under the reserve are a significant
component of the water supply system established in the adjoining
Prison. There is also high potential for evidence of three early cottages
to survive in the reserve, at its northern end.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

PRINCIPLESPRINCIPLE 88: The austere character and historical setting of theHampton Road Reserve, on the east side of the Prison, should be
retained and conserved. This includes retaining the grassed surface
and removing the sparse tree planting.
PRINCIPLE 89: The Hampton Road Reserve should be kept free of
any new structures, other than minor or temporary elements which
support and/or enhance Fremantle Prison operations, promotion orinterpretation.
PRINCIPLE 90: The car parking currently located in the northern end of
the reserve should not be expanded and should preferably be removed.
New car parking should not be introduced to any other location in thereserve.

Extent Heritage / Lovell Chen // 113

hampton road reserve
PRINCIPLE 91: As a general principle no new plantings should be
introduced to the reserve and adjoining median strip, in order tohelp maintain an open character for the location. It is possible thatlow plantings may be appropriate as part of a considered heritage
interpretation response to early features in this location includinginterpretation of the pre-European landscape, but any such proposal
would need to be carefully assessed for potential adverse heritage
impacts.
PRINCIPLE 92: Given the historical presence of early cottages in thenorthern half of the reserve, and the survival of shafts, drives and bores
associated with the water supply system established in the adjoining
Prison, archaeological investigations should precede any works in thereserve area.
PRINCIPLE 93: Interpretation of the Hampton Road Reserve should
address its historical role as a sterile zone for the Prison, a physicalbuffer to urban Fremantle, the site of early cottages associated with the
Prison, the construction and role of the sand dyke, the survival of thewater supply system components, and its later integration into the Prison
reserve. This location may also be appropriate for the interpretation ofIndigenous heritage values.

Structures & Spaces Actions
ACTION 45: Continue to use and enhance historical interpretation of
the reserve.
ACTION 46: Remove the carparking presently occupying the northernpart of the reserve.
ACTION 47: Investigate the potential archaeological resource within thereserve through desktop research and geophysical survey (e.g. Ground
Penetrating Radar).

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

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hospital

location

Those parts of the Hospital that are of considerable significance areas follows:•stone and concrete steps, with stone piers and timber rails

No parts of the Hospital have been assessed as being of somesignificance.
Those parts of the Hospital that are of little or no significance are as
follows:•

eastern additions to hospital (including toilet block) to southern wing

pRINCIPLESPRINCIPLE 94: The Hospital should be retained and conserved. It
should support viable and compatible uses.

significanceThe Hospital is a key historical convict-built component of Fremantle
Prison. Its establishment as a freestanding building on an elevatedsite, in relative isolation from the remainder of the 1850s Prison, isdemonstrative of its use and the perceived need to separate andsegregate sick prisoners. Architecturally and aesthetically, the building
is distinguished by its relatively simple yet functional planning, with acentral main ward adjoined by wings, and the use of verandahs (no otherof the 1850s Prison buildings originally had verandahs). The garden andstepped terrace on the west side, and the stone and concrete steps on
the south-west are also distinguishing features.
Those parts of the Hospital that are of exceptional significance are:•convict-era Hospital building as a whole, including later fabricassociated with the early 1900s works•

sterile zones•

west open garden area/setting, with stepped terrace•stone walls including retaining walls

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

PRINCIPLE 95: The historic character and aesthetic significance of the
Hospital should be retained and conserved, including the presentationof the building as seen in the Prison context in the north-east of the site.
PRINCIPLE 96: The symmetrical form, with a central ward wing andmirror image north and south wings, is reflective of its origin anddistinguishes the building from the more typical cell block prisoner
accommodation. The open garden terrace and setting on the west sideof the building is also a distinguishing characteristic of the Hospital.
No new buildings, structures or additions should be made or placed
adjacent to the north, west and south sides of the Hospital, to retain thepresentation of the distinctive symmetrical form and the wrap-aroundverandah. No new elements should be introduced to the Terrace setting
on the west side of the building.
PRINCIPLE 97: The sterile zones on the north and east sides of the
Hospital afford close-up views of these elevations, which otherwise
have generally limited visibility within the Prison. These should bemaintained.
PRINCIPLE 98: The east side of the Hospital (not the sterile zone)
offers some opportunity for change, but for limited and small-scale
structure(s) which support the viable use of the building. The heightof a new building or structure in this location should be below that of
the hipped roof to the Hospital, and of the perimeter walls to Knutsford
Street and Hampton Road.

Extent Heritage / Lovell Chen // 115

hospital
PRINCIPLE 99: While the current roof form is not original, and otherminor changes have been made to the external and internal detailing asa result of extensive renovations in 1903–4, it is not recommended thatthese changes be reversed. They are of long-standing, and the fabricand form of these changes generally should be retained; it can also be
adapted as required.
PRINCIPLE 100: In any future works, the existing 1850s masonry, roof
structure, flooring and joists should be retained and conserved.
PRINCIPLE 101: The post-1960 brick infill on the east of the building
can be retained or removed.
PRINCIPLE 102: Interpretation of the Hospital should ensure its longstanding historical role within the Prison is understood; and is essential
to highlighting and transmitting the OUV of the place.

Structures & Spaces Actions
ACTION 48: Prepare an individual Conservation Management Strategy
for the Hospital, to provide more focused and tailored guidance andpolicies, and greater detail about original and later building fabric.
ACTION 49: Continue to use and enhance the historical interpretationof the Hospital.
ACTION 50: Where feasible continue to allow public entry to the
Hospital.
ACTION 51: The slab floor to the verandah should be removed, and atimber floor reinstated. Further research may assist in determining theoriginal form and detailing of the floor, but where this is not available a
sympathetic replacement should suffice.
ACTION 52: Rising damp and salt attack are evident in the building.
These issues should be further investigated and rectified.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

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Main Cell Blocklocation

The Main Cell Block is in addition an iconic and widely recognised
convict building, particularly in Western Australia, with its image being
regularly reproduced in publications and on social media.
Those parts of the Main Cell Block that are of exceptional significanceare as follows:•

whole of Main Cell Block (unless otherwise stated)•

Anglican Chapel•

original space and fabric of the north and south Association Wards•

Catholic Chapel as an early introduction to the northern Association
Ward

Those parts of the Main Cell Block that are of considerable significanceare as follows:significanceThe Main Cell Block is a key historical convict-built component ofFremantle Prison and is critical to the place’s OUV. It is the central
dominating feature of the site, and both its scale and expansive west
setting in the Parade Ground emphasise its primacy and importance.
Its position within the Prison, including the axial relationship with the
Wray Gates and through this to the Gatehouse and outer gate, isdemonstrative of the symmetrical planning of the complex which placed
the Main Cell Block at its centre. The Main Cell Block also retains
substantial physical evidence of its convict-era construction and use,
and its subsequent history as a colonial and state prison, including
its internal configuration and spaces. Architecturally and aestheticallythe limestone building is remarkably intact to its original form andgains considerable strength and presence from its scale, materiality,
repetitious detailing and simplicity of expression. The external scale isalso reflected internally in the central atrium which, combined with theoriginal interior fabric, retains its authentic if oppressive atmosphere.
The Main Cell Block is the most intact and authentic convict cell range
in Australia with the Refractory Block the most intact and authentic
convict-era punishment block. The Anglican Chapel is also one of thefinest and most intact of the early prison chapels in Australia.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions•

evidence of later (post-1898) division of the building based on theprisoner classification system•evidence of the (post-1898) widening of cells through removal of
dividing walls•

Recreation Hall as a later introduction to the northern Association
Ward•library as a later introduction to the southern Association Ward•cookhouse/kitchen at southern end of Main Cell Block, including
the large brick chimney

The part of the Main Cell Block that is of some significance is as follows:•

special handling unit•

non-original and recent fitouts to offices, library, kitchen andcatering facilities, RC Chapel, Recreation Hall/cinema

Those parts of the Main Cell Block that are of little or no significanceare as follows:•

all other modern fabric

Extent Heritage / Lovell Chen // 117

Main Cell BlockpRINCIPLESStructures & Spaces Actions

PRINCIPLE 103: Unlike other buildings at the Prison, many of whichhave been updated and adapted to ongoing and evolving prison use and/or later use, the Main Cell Block offers much more limited opportunity forchange. This recognises its high degree of intactness and integrity, andits significance as the most intact large convict-era cell range in Australia.

ACTION 53: Keep the suicide nets at first floor level in good conditionand securely anchored.

PRINCIPLE 104: The Main Cell Block must be maintained as the mostprominent and dominating feature of the Prison complex. Its historiccharacter and aesthetic significance must be retained and conserved,
including the exterior and interior of the building.

ACTION 54: Display and interpret fabric and features which illustrate
the historical confinement of the prisoners and the prisoner experience,
including personal items and individual treatment of cells. These can
include items that relate to more recent prison operations (up until 1991)
but such items generally should not take precedence over, nor be to
the detriment of, the display and interpretation of convict-era fabric anditems.

PRINCIPLE 105: Internal Prison views of the unencumbered west
façade must be maintained.

ACTION 55: Finalise the draft individual Conservation Management
Strategy for the Main Cell Block, as prepared by Fremantle Prison.

PRINCIPLE 106: No new structures, however minor, should be are
introduced into the viewshed (axial relationship) between the Main Cell
Block Chapel, Wray Gates and through this to the Gatehouse and outergate.

ACTION 56: Continue to investigate the interior fabric and decorative
treatment of the Anglican Chapel. Consider restoration andreconstruction of the early decorative treatments where evidence exists.

PRINCIPLE 107: ‘Free space’ must be retained around the elevations
and facades of the Main Cell Block to allow the original form, materials
and detailing to remain highly visible and legible. Later extraneous,
attached or adjoining structures should also be removed, including
those which partly conceal the south elevation. An exception is the east
façade which abuts the Exercise Yards.
PRINCIPLE 108: Avoid the introduction of landscaping or similar which
would ‘soften’ the appearance of the Main Cell Block.
PRINCIPLE 109: Maintain the presentation of the internal space of theMain Cell Block, including that of the central atrium which reflects theexternal scale of the building, and provides evidence of the originalplanning and programme of the Main Cell Block.
PRINCIPLE 110: Evidence of the staged 1850s construction of thebuilding, as reflected in the fabric, must be retained.
PRINCIPLE 111: Evidence of the four divisions of the Main Cell Block,in the present configuration of corridor or atrium (open from ground floor
to roof structure) with stair and gallery access to the upper cells, must
be retained.

ACTION 57: Consider returning the library to its original space byremoving existing partitions, and retaining the open roof, jarrah flooring,and evidence of hammock frames and hammocks for interpretation
purposes.
ACTION 58: Continue to allow supervised public access to the interiorof the Main Cell Block and to maintain the high-quality interpretation
program.
ACTION 59: Consider restoration of the Main Cell Block floors, including
removal of concrete and patching of the flagstones.
ACTION 60: Interpretation of the original architectural aesthetic of theinterior has commenced in 1 Division. However, at this stage it lacks
some clarity and retains fragments of much later fabric. The treatment
should be continued but with a more cohesive approach and a focus on
the interpreting/highlighting the convict-era fabric.
ACTION 61: Regarding the Anglican Chapel, remove the bars andgrilles and repair termite damage and plaster loss.

PRINCIPLE 112: Retain evidence of the staged building program
including the iron gallery railings which date from different periods of the1850s and were manufactured locally or imported from England.
PRINCIPLE 113: Retain some evidence of later change and evolution
in the building so that its development over time can be understood, but
only where this retention does not physically or visually impact on, orotherwise detract from, the convict-era fabric.
PRINCIPLE 114: The reconstructed cells which simulate the originalform of the convict and prison cells should be retained and conserved.
PRINCIPLE 115: Evidence of the Catholic Chapel as both former
Association Ward and later Chapel should be retained.
PRINCIPLE 116: The open character of the hall/theatre and the original
jarrah post and beams should be retained.
PRINCIPLE 117: The limestone walling of the original yard east of the
kitchen and the extension to the south early in the twentieth century
should be retained. The area contained within the walls may continue tobe adapted as required.
PRINCIPLE 118: Interpretation of the Main Cell Block is essential to theongoing management of the Prison, and to highlighting and transmitting
the OUV of the place.
FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 118

new Division

location•whole of the New Division including yard and sterile zone•

archaeological remains of the radial exercise building

No parts of the New Division have been assessed as being of somesignificance.
Those parts of the New Division that are of little or no significance areas follows:•

shelter sheds in yard•

all other modern fabricsignificanceThe New Division is a key historical development of the post-convict
era Prison. It demonstrates the historical, albeit short-lived, use of the‘separate’ system whereby early stage prisoners were accommodated
in a different purpose-built complex, in isolation from other inmates.
The radial exercise yard building, which was the quickly demolished,
was also demonstrative of the (then) new approach. Architecturally
and aesthetically, the L-shaped plan of the New Division building is astrong characteristic, given emphasis by the rough textured limestone
walls, brick surrounds to window openings, and lantern roof over thecentral atrium. Similarities with the Main Cell Block, including thestrong linear planning, form and detailing, continued the original cell
block typology into the northern area of the Prison. While the New
Division has limited presence from outside the Prison, it is a dominantbuilding in the north-east of the site and remains a discrete complex
within the Prison.
No parts of the New Division have been assessed as being of
exceptional significance.
Those parts of the New Division that are of considerable significanceare as follows:

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 119

new Division
PRINCIPLESStructures & Spaces Actions

PRINCIPLE 119: The New Division should be retained and conserved.
It should support viable and compatible uses.

ACTION 62: A sample of cells, including any surviving Prison-related
fittings and fixtures, and prisoner decoration, should preferably bemaintained. For cells and spaces which are further adapted and whereinternal elements are removed, ensure any remaining significant
elements are recorded in situ, catalogued and stored pending possible
future reinstatement or exhibition.

PRINCIPLE 120: The New Division has historically been concealed
from outside the Prison, including from Knutsford Street where the northperimeter wall generally restricts views of the building. An exception isthe view of the lantern-roof form at the north end of the building. While
this is a limited view it is one of the very few views of prison buildings
from the north outside the Prison and should be maintained, including
avoiding plantings on the median strip outside the Prison which havethe potential to impact on the view.
PRINCIPLE 121: The historic character and aesthetic significanceof the New Division should be retained and conserved, including thepresentation of the L-shaped plan (east and north building elevations)as seen from the enclosed yard. This view of the L-shaped building isof a highly externally intact building with a strong form and presence.
PRINCIPLE 122: The sterile zones on the west and south sides of the
New Division afford close-up views of these elevations, which otherwise
have a generally limited presence within the Prison. These should be
retained.
PRINCIPLE 123: While the enclosed yard generally offers limited
opportunity for new buildings and works, and not in the vicinity of theeast and north building elevations which reveal the L-shaped plan, there
is some potential for works in the north-east of the yard. The height ofa new building in this location should be below that of the New Divisionbuilding and of the north perimeter wall.

ACTION 63: Consider non-invasive archaeological investigation andrecording of any remains of the radial exercise yard structure, e.g.
Ground Penetrating Radar.
ACTION 64: Consider the preparation of an individual Conservation
Management Strategy for the New Division, to provide more focusedand tailored guidance and policies, and greater detail about original andlater building fabric
ACTION 65: Continue to use and enhance the historical interpretationof the New Division.
ACTION 66: Where feasible continue to allow public entry to the New
Division.
ACTION 67: The stonework of the building is currently in generally goodcondition. Nevertheless, implement a program of ongoing monitoring to
identify and address any issues that may arise.

PRINCIPLE 124: Avoid the introduction of landscaping or similar, which
would ‘soften’ the appearance of the walled yard and of the east andnorth building elevations to the yard. A new shade shelter to support useof the New Division could also be placed in the north-east of the yard, oron the site of the existing shelter sheds.
PRINCIPLE 125: Where works to the New Division are proposed,
including ongoing adaptation, existing fabric which should be retained
generally includes:•

original 1907 fabric including external masonry fabric, and window
and door openings with their detailing•the lantern roof form•

the overall internal plan and layout, including the generalarrangement of cells accessed by galleries to the upper levels of
the wings, and the central atrium with central stairs, rising throughthe volume to the lantern roof over

PRINCIPLE 126: As the existing elements of the New Division’s
enclosed yard (large and small shelter sheds with fixed furnishings
and urinals and ablution troughs) are similar to those of the convict-era
Exercise Yards to the Main Cell Block, there is less of an imperative toretain them.
PRINCIPLE 127: Any developments or works in New Division yard
should be preceded by an archaeological investigation and recording of
any remains of the radial exercise yard structure.
PRINCIPLE 128: Interpretation of the New Division should convey
the story of the ‘separateness’ of the New Division from the rest of the
Prison, and its subsequent uses in World War II.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 120

parade groundlocation

Those parts of the Parade Ground that are of exceptional significanceare:•convict-era Parade Ground (forecourt to Main Cell Block)•convict-era north-south road alignment, which turns east at thesouth end of the Main Cell Block and provides access to the East
Workshop

The part of the Parade Ground that is of considerable significance is
as follows:•

Old Canteen

The part of the Parade Ground that is of some significance is as follows:•significanceThe Parade Ground (or forecourt to the Main Cell Block) is a key
historical component of the convict-era planning and developmentof Fremantle Prison. It has survived as a largely undeveloped andunembellished space – save for defined garden and lawn areas orbeds – since the 1850s. It has also acted as the significant setting to
the Main Cell Block allowing for uninterrupted views of the imposing
west façade and Chapel wing. Other views of note from and within the
Parade Ground include the view of South Knoll, north-south views along
the length of the space, views out over the tops of the perimeter walls
and Prison buildings, and the axial east-west view between the central
entrance to the Chapel wing of the Main Cell Block and Wray Gates(which extends beyond the Parade Ground). Aesthetically, the overallcharacter of the Parade Ground is one of austerity and simplicity, withthe dramatic and over-scaled space first encountered after entering
through the Wray Gates. Of the various paths and roadways, the largest
and most prominent, and the one which is evident from the 1850s, runs
from north to south, and turns east at the south end of the Main Cell
Block. This has historically provided access to the East Workshops
which, although important operationally, were otherwise largely isolated
from the remainder of the Prison in its early decades.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

general form and alignment of the defined lawn areas and garden
beds

Those parts of the Parade Ground that are of little or no significanceare as follows:•

office addition to Old Canteen•

sentry box to Old Canteen•

current surface and edging materials including bitumen, brick andconcrete•all other modern fabric

Extent Heritage / Lovell Chen // 121

parade ground
pRINCIPLESStructures & Spaces Actions

PRINCIPLE 129: The Parade Ground should be retained andconserved as the primary open space of the Prison, a key componentof the original planning and layout, and the formal forecourt and setting
to the Main Cell Block.

ACTION 68: Finalise the draft individual Conservation Management
Strategy for the Parade Ground, as prepared by Fremantle Prison.
ACTION 69: Continue to use and enhance the historical interpretationof the Parade Ground. This may include archaeological investigation.

PRINCIPLE 130: The experience and drama of entering the large
over-scaled space from the more confined Entry Complex should bemaintained.
PRINCIPLE 131: The introduction of new buildings or structures into the
Parade Ground should be avoided, other than very minor or temporary
elements. Where minor or temporary structures are required, theyshould be freestanding and located to the edges of the Parade Ground,so as not to diminish the expanse of open space. Preferred locations
are at the north or south ends of the space.
PRINCIPLE 132: Ensure glimpses of the expansive Parade Groundremain available from the Entry Complex and more specifically the entry
court.
PRINCIPLE 133: No new buildings or structures, however minor, shouldbe placed directly in front of the west façade of the Main Cell Block.
PRINCIPLE 134: The Wray Gates should be retained as the primary
entry point to the Parade Ground; avoid introducing obstructing
elements to the east (Parade Ground) side of the gate.
PRINCIPLE 135: The significant views within and out of the Parade
Ground should be retained.
PRINCIPLE 136: Evidence of the paths and roads should be retained,
including the historical north-south access way which turns east at
the south end of the Main Cell Block and provides access to the East
Workshops.
PRINCIPLE 137: Evidence of the defined garden beds and lawn areas
should be retained.
PRINCIPLE 138: The addition to the Old Canteen/toilet block at thenorth end of the Parade Ground can be retained or demolished. A
replacement building could also be considered here, where:•

This would support the ongoing viable and compatible use of the
Prison, including a visitor use or attraction•

The replacement building generally does not exceed thefootprint and building envelope of the demolished building, andis sympathetic and in keeping with the austere character of the
Parade Ground

PRINCIPLE 139: In retaining evidence of the paths and roads, and of
the defined garden beds and lawn areas, consider the following:•

As the formal alignment of the roads and paths has moved overtime, evidence of their general alignment should be retained, rather
than their specific edge treatments and dimensions.

•

The raised and defining brick and concrete edges of the garden
and lawn beds need not all be retained. Some select examples canbe retained, but otherwise these specific edge treatments can beremoved and replaced with a smoother landscape treatment.

PRINCIPLE 140: Interpretation of the Parade Ground is essential toconveying the history of its planning, role and use within the Prison,
including its relationship to the Main Cell Block; and to highlighting andtransmitting the OUV of the Prison.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 122Perimeter Walls

location

Those parts of the perimeter walls of some significance are as follows:•

coping, razor wire and broken glass as added to the tops of thewalls

Those parts of the perimeter walls of little or no significance are as
follows:•

later repairs of cement-based fabric including render•modern lighting, services and the like•all other modern fabricsignificanceThe perimeter limestone walls are a major historical convict-built
component of Fremantle Prison, and give emphasis to the defining
institutional aesthetic of the site. The walls mark and define the place
as a prison; are a landmark in the local context; and distinguish the
Prison from the urban surrounds of Fremantle. They also continue toform a barrier to the place and to emphasise the historical security
requirements of, and restricted access to, the Prison. More generally,
the comparative lack of external openings (windows and doors) is adirect reflection of the function of the place and the need to maintainsecurity and control access and egress.
The walls were built with minimal excavation and therefore they also
help to define the original topography of the Prison site, at least to thesouth, east and north. The gentle rise and fall of the walls, as they
follow the topography, assists in ‘reading’ this aspect of the Prison’s
establishment.
Those parts of the perimeter walls of exceptional significance are as
follows:•

convict-era limestone perimeter walls to all of Prison boundary,including early buttresses and later additional courses

No parts of the perimeter walls are of considerable significance.
FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 123Perimeter Walls
PRINCIPLESPRINCIPLE 141: Retain and conserve the stone perimeter walls. The
retention of the walls is essential to the conservation of the place’s OUVboth in physical terms and as physical evidence of the function andconstruction of the place.
PRINCIPLE 142: As a general comment, the walls should be maintained
and repaired using traditional materials and techniques.
PRINCIPLE 143: The prominence and visibility of the external perimeter
walls should be maintained in the local context, and internal perimeter
walls within the Prison.
PRINCIPLE 144: Generally, the current character of the walls should
be retained including evidence of repairs, other than where the repairs
are causing damage to the significant wall fabric (such as the cementbased repairs). The walls should be retained to their full existing height,
including the buttresses and extra courses added in later periods. In
works to the walls, including maintenance and repairs, the following
should be retained where practicable and feasible:•

later stonework and additional stone courses•

historic signage, murals and graffiti•

evidence of original or early lighting, with its function interpreted•

razor wire, although a restricted sample area should suffice forretention•broken glass embedded in some wall copings

PRINCIPLE 145: Should any section become unsafe, the priority
is to stabilise and retain the section of wall, over dismantling andreconstructing. An integrated new strengthening system which issensitive to the appearance of the wall, is preferred and should be
explored. If this is not feasible, then the wall should be reconstructed insimilar materials to the same height and dimensions as before. This also
applies to later coursework.

PRINCIPLE 152: Interpretation of the perimeter walls can ‘tell thestory’ of their construction, materiality, historical repairs and works,
and contemporary conservation measures. The walls communicate theplace’s OUV. They should be regarded, in part, as a vehicle for heritage
interpretation.

Structures & Spaces Actions
ACTION 70: Preferably remove later elements and accretions whichcurrently conceal or impact on external and internal views of the walls,
even where these impacts are minor.
ACTION 71: Preserve the water shedding capability of the coping andkeep footings drained.
ACTION 72: Where feasible under state and local town planningprovisions, review local development projects sited within the urban
context of the Prison, including the World Heritage Listing Buffer Zone,
to be cognisant of any proposals which have the potential to diminish
the prominence and visibility of the walls, and make submissions
accordingly.
ACTION 73: Discourage, and in preference progressively remove, carparking from abutting or immediately adjoining the walls.
ACTION 74: Consult with relevant government agencies to remove
introduced or self-seeded plantings which obstruct appreciation of thewalls and/or are to the physical detriment of the walls.
ACTION 75: Where feasible and not currently in place, introduce newlighting systems to the exterior and interior faces of the walls. The
systems should be discrete and preferably set off from the wall, or at
ground level to uplight the walls; and should not involve penetrations tothe significant fabric.
ACTION 76: Continue to allow supervised and guided (but selective)
public access by small groups of visitors to the walls (see also ‘Structures
and Spaces – Watch Towers and Walkways’).

PRINCIPLE 146: Evidence of the use of the walls as sites for signage
and as canvases for murals and graffiti should be retained. This
principally relates to internal walls and dividing walls within the Exercise
yards.
PRINCIPLE 147: As a general principle, it is preferred that only existing
openings, or blocked former openings, should be considered for accessthrough the walls. Similarly, no new windows should be pierced throughthe perimeter walls, however existing windows may be retained andformer windows may be reopened.
PRINCIPLE 148: No new buildings or structures, other than very minor
or temporary elements, should be built against the external or internal
faces of the walls (see also ‘Structures and Spaces – Sterile Zones’), toassist in retaining their current visibility.
PRINCIPLE 149: Lighting, to illuminate the walls at night, is encouraged
and is reflective of the historical need to maintain surveillance. In
contemporary terms it also serves an aesthetic/interpretation purpose,through highlighting the form, materiality and texture of the walls.
PRINCIPLE 150: New plantings should not be introduced which impact
on the setting or obstruct views to the perimeter walls and which impede
an appreciation of them.
PRINCIPLE 151: To help maintain the structural integrity of the walls, noplantings (other than grass) should come within 7 m of the walls.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 124

Refractory Block

LOCATION

and the Fairbairn Street Ramp. This relationship is demonstrative of thesymmetrical planning of the entire complex.
The Refractory Block makes an exceptional contribution to Fremantle
Prison’s OUV.
The 1960 southern extension, including the adaption of the twosouthern-most dark cells, plus the addition of five cells and an office,is associated with the monitoring of prisoners with mental health issues
and is of some significance.

PRINCIPLESPRINCIPLE 153: Respect the intactness and integrity of the Refractory
Block. It has a low tolerance for change.

SIGNIFICANCEThe Refractory Block was constructed in 1855 using convict labour andit remains a key historical component of Fremantle Prison. The singlestorey limestone building retains substantial physical evidence of its
convict-era construction and use. It is the most intact and authentic
convict-era punishment block (for solitary confinement) in Australia
and is distinguished from the Main Cell Block by its physical form andhistorical functions.
The Refractory Block’s internal space retains its authentic, oppressive
atmosphere, which is expressed in the original punishment cells, sixof which were ‘dark cells’ with no light. The Refractory Block retains
its associated exercise yard, the first of the yards to be completed at
the Prison, emphasising the need to separate the most troublesome
prisoners from the other inmates even in the very early period of prison
administration.
The inclusion of the double chambers to the cells, with an inner andouter door arrangement, further emphasises the punitive nature of
the Refractory Block, including the prevention of human contact andcommunication. The Refractory Block is also associated with the central
dominating feature of the site, that being the Main Cell Block. It maintains
an axial relationship with the central entrance to the Main Cell Block andthrough this to the Parade Ground, the Wray Gates, the Gatehouse
FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

PRINCIPLE 154: Retain and conserve the Refractory Block, observing
its physical separation from the Main Cell Block and respecting its rolein the axial arrangement of the Fremantle Prison complex (reflectedin the relationship between the Refractory Block, the Main Cell Block,the Parade Ground, the Wray Gates, the Gatehouse and the Fairbairn
Street Ramp).
PRINCIPLE 155: Retain and conserve the historic character andaesthetic significance of the Refractory Block, including both the exterior
and interior of the building.
PRINCIPLE 156: No new or additional structures, however minor,
should be built up to the external walls of the Refractory Block.
PRINCIPLE 157: Avoid the introduction of landscaping or built form
which would ‘soften’ the appearance of the Refractory Block.
PRINCIPLE 158: The later awnings to the south, east and west sidesof the Refractory Block are post-1947, as evidenced by aerial images.
They do not contribute to the heritage values of the Refractory Block.
PRINCIPLE 159: The 1960 southern extension is associated with themonitoring of prisoners with mental health issues. Although the southern
extension detracts from the historic character and aesthetic significanceof the Refractory Block, it is of some historic significance.
PRINCIPLE 160: Maintain the internal planning and fabric of the block,and its bleak character, including the double-chambers to the cells, the‘dark cells’, and the symmetrical arrangement of cells to either side of
the central corridor. These provide important evidence of the originaland highly punitive nature of the structure.
Extent Heritage / Lovell Chen // 125

Refractory Block
PRINCIPLE 161: Interpretation of the Refractory Block is essential tothe ongoing conservation of the Prison’s heritage values. It presents
opportunities for communicating the convict story to the community.
PRINCIPLE 162: The Refractory Block offers very limited opportunity
for change, given its high degree of intactness and integrity, and its
significance. Its bleak character should also be retained.
PRINCIPLE 163: The later additions/awnings to the south, east andwest sides of the Refractory Block may be retained if useful and removed
if not. Prior to removal or demolition of these elements identify the works
required to make good, and reinstate or reconstruct the original building
form following demolition of the addition, and ensure the funds andresources are available to undertake these works.

Structures & Spaces Actions
ACTION 77: The later additions/awnings to the south, east and west
sides of the Refractory Block may be retained if operationally useful but
consideration should be given to their removal. If a decision is made toremove them, first identify the works that would be required to makegood the convict-era fabric and form following the demolition works andensure that the resources are available to undertake those works.
ACTION 78: Some consideration should be given to the removal of the1960 southern extension. However, before such action is undertaken,
a detailed assessment of its post 1960 historic significance should beundertaken and careful deliberation be made regarding the impact of its
removal balanced against its current negative impact on the Refractory
Block’s OUV.
ACTION 79: Consider the reinstatement of the original roof form of
the Refractory Block if sufficient evidence of it can be found throughanalysis of the structure’s fabric and through historical research.
ACTION 80: Display and interpret fabric and features that illustrate thehighly punitive confinement of the prisoners and the separate prisoner
experience of the Refractory Block.
ACTION 81: Continue to allow supervised public access to the interiorof the Refractory Block and to maintain the high-quality interpretation
program.
ACTION 82: Reinstate the original roof form of the Refractory Blockif sufficient evidence, including documentary evidence, can be found.

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south knoll, Prison Industries and southern area

location•archaeological remains of early 1850s temporary barracks,
associated with Prison construction

Those parts of the South Knoll and surrounds that are of considerable
significance are:•the terraces and brick retaining walls, as completed by 1896•

archaeological remains of former vegetable gardens, as introduced
from the 1910s

Those parts of the South Knoll and surrounds that are of somesignificance are as follows:significanceThe South Knoll is a key historical component of the convict-era planningand development of Fremantle Prison. It is a remnant of the natural
landform of Church Hill which was excavated as part of the constructionof the Prison and later progressively terraced for use within the Prison,
including for vegetable growing. The south Prison perimeter wall climbs
and descends the hill, emphasising the latter’s original form and profile.
The Knoll is also significant as the site (on the uppermost terrace) of
the brick-vaulted underground Reservoir, constructed in 1876. The
broader southern area of the Prison, including the site of the Prison
Industries buildings, is additionally differentiated in the context of the
Prison. It is a large area of utility which has historically been used as aplace where (generally modest) buildings and development have been
introduced and removed over time to serve various Prison requirements
and operations.

•current surface materials including grass, bitumen and concrete•

Prison Industries complex of post–World War II buildings including
shower block, toilets, concrete products and helmet industries
Workshops/sheds, and loading bay•

archaeological remains of buildings added in post–World War II
period•tennis court and cricket pitch sites•

all other modern fabricNo parts of the South Knoll and surrounds have been assessed as
being of little or no significance.

Those parts of the South Knoll and surrounds that are of exceptionalsignificance are:•South Knoll overall, as a remnant landform which was modified
during the convict-era construction of the Prison•

brick-vaulted underground Reservoir on the uppermost terrace

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Extent Heritage / Lovell Chen // 127south knoll, Prison Industries and southern area
PRINCIPLESPRINCIPLE 164: The South Knoll should be retained and conserved asa key historical component of the convict-era planning and developmentof Fremantle Prison.
PRINCIPLE 165: The dominance of the modified landform at the south
end of the Prison, and internal Prison views to the South Knoll and its
terraces, should be maintained.
PRINCIPLE 166: The evolved utilitarian character and presentation of
the South Knoll should be maintained.
PRINCIPLE 167: The terraced remains of Church Hill should generally
remain in their existing topographical form. In any future treatment of, orworks to, the Knoll the concept of terracing and, as far as possible, theactual terraces should be retained.
PRINCIPLE 168: No new buildings should be introduced to the terraces
or upper level of the Knoll.
PRINCIPLE 169: The broader southern area including the site of Prison
Industries, is a large area of utility which can continue to be used inthis way, subject to such use not impacting on the South Knoll or thesouthern setting to the Main Cell Block.

PRINCIPLE 179: New development could be considered for the area on
the west side of the South Knoll, south of the Entry Complex and eastof the perimeter wall. This was the site of temporary barracks during
the construction of Fremantle Prison and the site of the long rectilinear
north-south building shown in the 1965 and 1979 aerial images. A newbuilding in this area should be contained in an envelope that does notexceed the eastern alignment of the West Workshops (north of the Entry
Complex), does not exceed the height of the Prison west perimeter wall
(so that it is not visible from the Terrace), and is set off from the inside
face of the west perimeter wall to conserve an area of the sterile zone.
PRINCIPLE 180: New development should not be considered for thearea south of the Main Cell Block, where the shower block and Prison
Industries are located.
PRINCIPLE 181: Generally, any new buildings considered for thesouthern part of the Prison should be low scale and freestanding,following the pattern of previous development.
PRINCIPLE 182: Interpretation of the South Knoll is essential toconveying the history of its role in the Prison construction anddevelopment, and to highlighting and transmitting the OUV of the Prison.

Structures & Spaces Actions

PRINCIPLE 170: The current surfaces of the Knoll can be retained; but
if replaced, the new surface treatments should draw on the palette ofexisting materials.

ACTION 83: Finalise the draft individual Conservation Management
Strategy for the South Knoll and Prison Industries, as prepared byFremantle Prison.

PRINCIPLE 171: The defined areas of the terraces, variously former
garden beds, tennis court, cricket pitch and the like, have changed andevolved over time, and on that basis it is not necessary to retain thecurrent specific delineations.

ACTION 84: Continue to use and enhance the historical interpretationof the South Knoll.

PRINCIPLE 172: As a place formerly used for growing vegetables,
new plantings could be considered for the terraces, but they should be
low scale and concentrated as per typical vegetable growing. Planting
specimen trees or scattered shrubs would not be consistent with thehistorical character of the South Knoll terraces.

ACTION 85: Encourage visitors to experience the dramatic landscapequalities of the South Knoll.
ACTION 86: Investigate interpretive opportunities for the southern
Reservoir.
ACTION 87: Consider the reinstatement of the vegetable gardens on
the South Knoll.

PRINCIPLE 173: Avoid the introduction of outdoor furniture items andthe proliferation of new hard landscape elements.
PRINCIPLE 174: New lighting systems should be discretely located andof a consistent contemporary design. Such should also be set off fromthe perimeter walls and should not involve penetrations to the significant
fabric.
PRINCIPLE 175: Any works in the area of the South Knoll should
be preceded by an archaeological investigation and recording of any
remains of the vegetable gardens.
PRINCIPLE 176: Any works in the area associated with the siteof the early 1850s temporary barracks should be preceded by anarchaeological investigation and recording of any remains.
PRINCIPLE 177: New services, where required, should preferably belocated underground.
PRINCIPLE 178: The high wire fencing which defines the strip of land
south of the Entry Complex and adjoining the west perimeter wall canbe removed.

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Sterile zones

location

PRINCIPLESPRINCIPLE 183: The existing internal and external sterile zones of
the Prison should be retained. Evidence of the different sterile zone
arrangements at the Prison, such as that associated with the Female
Division, should be maintained.
PRINCIPLE 184: Generally, the sterile zones should be maintained as
free and/or open spaces, retaining end-to-end views of the zones fromthe ground and from the relevant Watch Tower. Retaining these freeuncluttered spaces will also assist in the presentation of the perimeter
walls.
PRINCIPLE 185: Where new shelter is required for weather protection,
including for visitors, it should be located away from the perimeter walls
and should not intrude into the extent of the historical sterile zones(generally 6 to 9 m).

significanceThe sterile zones and related spaces are key historical components ofFremantle Prison planning and operations. As with the Watch Towers
and Walkways, these spaces directly reflect the need for observation,
surveillance and security at Fremantle Prison. While they vary in sizeand location, with some being narrow walled spaces between buildings
and others adjacent to the perimeter wall, their open spatial characterand unobstructed views are demonstrative of their original function andpurpose.

PRINCIPLE 186: The sterile zones should not be cluttered by (forexample) storage. Generally, they should be kept free of concealing
structures. Do not build over or cover the sterile zones, other than wheresuch work is temporary, is required for operational purposes and causes
no or limited physical impact on significant fabric.
PRINCIPLE 187: Interpretation of the sterile zones should ‘tell the story’of the important role of these otherwise empty spaces, their relevanceto prison operations and surveillance. It is also essential to highlighting
and transmitting the OUV of the place.

Structures & Spaces Actions

Those sterile zones associated with the convict-era Prison and perimeter
walls are of exceptional significance.

ACTION 88: Remove later elements and accretions which currently
conceal or impact on external and internal views of sterile zones.

Those sterile zones associated with the colonial-era Prison develop­
ments are of considerable significance.

ACTION 89: Continue to use and enhance historical interpretation of
the sterile zones.

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The Knowle

location

PRINCIPLESPRINCIPLE 188: The Knowle should be retained and conserved while
encouraging sympathetic, ongoing hospital adaptation and use.
PRINCIPLE 189: If The Knowle is disposed of by government, and nolonger required for hospital use, it should be subject to the Government
Heritage Property Disposal Process.
PRINCIPLE 190: Where feasible given its hospital use, and where
evidence is available to support such works, future management andconservation of the building should seek to reinstate or reconstruct
missing elements and details.
PRINCIPLE 191: Any works to, or repairs of, the limestone fabric should
be consistent with the conservation policies and guidance provided inthis HMP.

significanceThe 1850s mansion residence, known as The Knowle, is a key historicalconvict-built component of the Fremantle Convict Establishment. It
was designed and occupied by the Comptroller-General, Edmund
Henderson, as his residence; and sited some distance to the southwest of the Prison. Its later history as a convict invalid depot is also ofnote. Architecturally, although largely surrounded by modern hospitaldevelopment and impacted by later accretions to the exterior, The
Knowle is still readable as an historic mansion house in terms of its
scale and presence. Aesthetically, The Knowle also demonstrates
the favoured building material of the Prison in its use of limestone forconstruction and this, in turn, helps to maintain an aesthetic (if not avisual) connection with the Prison.

PRINCIPLE 192: Links with Fremantle Prison, whether visual orotherwise, should be reinforced. This can be done in parallel withinterpretation of the cottages, which is essential to conveying their
history and historical association with the Prison.
PRINCIPLE 193: Preferably remove later accretions and additions tothe building.

Structures & Spaces Actions
ACTION 90: Introduce interpretation which can be clearly seen and readwhen viewing The Knowle. The interpretation should also alert readers
to the presence of the Prison and encourage further investigation of the
Prison’s history and connection with The Knowle.

The Knowle is of exceptional significance (for Fremantle Prison
associations and convict-era construction).

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Extent Heritage / Lovell Chen // 130the Terrace

location

the Gatehouse to the north and south respectively, but have elsewhere
tended to break down with later development and extensions to thebuildings. Kerr (1998) identified 10 The Terrace and 16 The Terrace as
having ‘mirror reverse plans’ which reflected ‘an army and institutional
preoccupation with precinctual symmetry’.
Those parts of the Terrace of exceptional significance are as follows:•

the Terrace overall, including the original convict-era planning andlayout of roadway and buildings•

convict-era buildings of the Terrace including those building at
8 The Terrace, 10 The Terrace, 12 The Terrace, 14 The Terrace,
16 The Terrace and 18 The Terrace•

convict-era stone wall bordering the north end of the Terrace, andthe stone steps which lead up from Holdsworth Street

Those parts of the Terrace of considerable significance are as follows:significance•gardens and settings to the Terrace buildings (not the individual
plantings)

The Terrace as a land form, and its collection of buildings, are key
historical convict-built components of Fremantle Prison. It is thedominant façade and main face of the Prison, as it presents on its
elevated site to Fremantle. It is the most visible part of the Prison on
approach from the west via the Fairbairn Street Ramp and it houses
the Gatehouse and historic entry to the Prison on axis with the Ramp.
Aesthetically, the Terrace gains strength from its long linear footprint,emphasised by the stone and iron fence (a reproduction of the original)
which unifies the frontage; and the steep bank to the northern half whichfalls dramatically to the west. The individual terrace buildings with theirdefined lots and gardens, originally residences of the senior Prison
staff providing typically direct access to the Prison, have a domestic
character which contrasts with the Prison to their rear. This contrast isemphasised by the immediacy of the high perimeter wall of the Prison,with its razor wire, which remains a dominant and visible presence on
the Terrace, seen between the buildings.

•

2 The Terrace, 4 The Terrace and 6 The Terrace•

stables and later addition to 18 The Terrace

Those parts of the Terrace of some significance are as follows:•stone and iron fence which fronts the buildings for much of thelength of the Terrace (reconstruction)

Those parts of the Terrace of little or no significance are as follows:•modern fit-outs and fittings to the buildings•

all other modern fabricHistorically, as can be seen from early images and renderings,
development of the Terrace was largely symmetrical, with the buildings
set out for the length of the Terrace in a generally balanced arrangement
to either side of the Gatehouse. This symmetry is still evident in thepresentation of 10–12 The Terrace and 14–16 The Terrace, which flank
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Extent Heritage / Lovell Chen // 131the Terrace
PRINCIPLESPRINCIPLE 194: Maintain the prominence and visibility of the Terrace
as seen on approach from the west, including the uninterrupted views
from the Fairbairn Street Ramp.
PRINCIPLE 195: Maintain the visibility of the Terrace from Parry Street
across the current car park. This does not preclude future works andpotential development of the car park, but such should be designed,
located and of a scale which would maintain these views.
PRINCIPLE 196: Manage the potential archaeological resource within
the Terrace area as a critical element of its heritage values (especiallythe carpark area adjoining Parry Street which was originally a landscape/garden associated with the Prison from an early date).
PRINCIPLE 197: Retain the symmetrical presentation and ‘mirror
reverse’ arrangement of 10–12 The Terrace and 14–16 The Terrace,
which flank the Gatehouse.
PRINCIPLE 198: Retain and enhance the setting to the individual
buildings, including maintaining the appearance of the separate lots andthe stone and iron fence to the front of the properties.
PRINCIPLE 199: Maintain visibility of the west perimeter wall of the
Prison to the rear of the Terrace buildings and gardens, to reinforce anunderstanding of the historical relationship between the former senior
officer’s residences and the Prison.
PRINCIPLE 200: Ensure no new or additional structures, or plantings,
compromise the existing views from the Terrace of the west perimeterwall of the Prison as seen between the buildings.
PRINCIPLE 201: No new car parking spaces, parking facilities orextensive hard surfaces should be introduced to the Terrace or to theindividual building lots.
PRINCIPLE 202: Desirably, remove or at least restrict car parking fromthe roadway of the Terrace at the north end.
PRINCIPLE 203: Retain and conserve the Terrace buildings andsupport viable and compatible uses.
PRINCIPLE 204: Prior to removal or demolition of later intrusive
additions to buildings, the following steps should be taken:•••

Undertake an assessment of the significance of the addition and of
the impact of the demolition on that significance and of the subject
building.
Identify the works required to make good and reinstate orreconstruct the original building form following demolition of theaddition, ensuring that the funds and resources are available toundertake these works
Consider ongoing operational needs in terms of the use of theaddition, and whether these can still be met in the absence of theaddition.

PRINCIPLE 205: A replacement addition should:•

generally not exceed the footprint and building envelope of theexisting addition•

be sympathetic and in keeping with the historic building

PRINCIPLE 206: Where works to individual buildings are proposed, theexisting fabric that should be retained includes the following:•

evidence of early elements, such as rebates for shutters andverandahs•internal original or early fabric, such as joinery, stairs andbalustrading, fireplace surrounds and mantels, architraves, timberdoors, multi-paned and other windows, plaster work, including
surviving lath and plaster ceilings and partitions, cornices and anyother original or early decorative details, and elements including
locks, fasteners and bell pulls

PRINCIPLE 207: Interpretation of the Terrace and its buildings isessential to ‘telling the story’ of the significant history, use and functionof this distinctive Prison-related development; and to highlighting andtransmitting the OUV (as per the World Heritage listing).

Structures & Spaces Actions
ACTION 91: Selectively remove or prune trees that restrict viewsof the Terrace buildings and west perimeter wall of the Prison, whileconserving significant trees.
ACTION 92: While pragmatically it is recognised that the more extensive
car parking to the west side of the southern part of the Terrace is required
to support the commercial operations of Fremantle Prison, further
landscaping of this area is recommended to help soften the appearanceof the car park. Parking in this area should not be extended and should
not intrude further into the setting of the Terrace, meaning the current eastbuilding line of the car park should not extend further east.
ACTION 93: Hard surface car parking currently intrudes into the northend of the Terrace, between 4–6 The Terrace and 8 The Terrace, and at
the south end of the Terrace where it impacts on the relationship between
the dwelling at 18 The Terrace and its associated stables building. In
preference, car parking should be removed from these areas and pulledback from the settings of the historic buildings, including the stables. Softlandscaping could also be introduced to replace the hard surface areas.
ACTION 94: Emphasise the early character and form of the buildings
both externally and internally.
ACTION 95: Consider removal of later intrusive additions to the Terrace
buildings, to help reinstate the original building form and historicallysymmetrical arrangement and presentation of development to the
Terrace.
ACTION 96: Later additions to buildings could be replaced by modern
additions, where this supports viable and compatible uses.
ACTION 97: Remove verandah/balustrade infills, and non-original
verandah floors or slabs.
ACTION 98: Give consideration to preparing individual Conservation
Management Strategies or Conservation Management Plans for thebuildings of the Terrace, to provide more focused and tailored guidance
and policies, and greater detail about original and later building fabric.
ACTION 99: Consider opportunities to allow greater visitor access to
the Terrace buildings.
ACTION 100: The section of stone wall which borders the north end of
the Terrace (Holdsworth Street) should be conserved as a priority, as an
example of the most unaltered section of convict fabric. The patching of
cement to the associated stone step treads should be reversed, and thesteps restored to original condition.
ACTION 101: Address the condition of the verandahs to the buildings,
and the impact of the introduced concrete slabs.

external original or early fabric, such as roof forms, masonrywalls, chimneys, string courses, window and door openings, andFREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

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the Terrace

Figure 25. The Terrace, viewed from the south-west.

Figure 26. The Terrace roadway, looking north.

Figure 27. The Terrace, central point.

Figure 28. The Terrace, north end, with number 2 at left, numbers 4 and 6 at right.

Figure 29. The Terrace, north of the Gatehouse, with number 8 at left andnumbers 10 and 12 at right.

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Figure 30. The Terrace, immediately north of the Gatehouse, with numbers 10

Figure 31. The Terrace, south of the Gatehouse, with numbers 14 and 16.

and 12 at left.

Figure 32. The Terrace, south end, with number 16 at left, number 18 at centre,
and the stables to number 18 at right.

FREMANTLE PRISON // Structures and Spaces - Conservation Principles and Actions

Figure 33. Current image of stone wall with coping to Holdsworth Street andassociated stone steps.

Extent Heritage / Lovell Chen // 134

Warders’ Cottages

location

PRINCIPLES
Note: As private property, not controlled by Fremantle Prison, thefollowing policies and actions are provided as guidance to the ownersof the cottages, who are also encouraged to give consideration to this
HMP in current and future management of the cottages.
PRINCIPLE 208: The Warders’ Cottages should be retained andconserved while sympathetic adaptation and uses is encouraged.
PRINCIPLE 209: Any works to, or repairs of, the limestone fabric should
be consistent with the conservation policies and guidance provided inthis HMP.
PRINCIPLE 210: A sympathetic setting to the buildings should bemaintained, while views are maintained of the front of the dwellings.

significanceThe 1850s Warder’s Cottages are a key historical convict-built
component of the Fremantle Convict Establishment. They supported
the function and operation of the Prison for most of its history, retaining
their purpose-built use as warders’ accommodation until 1989. They
also formed the ‘city frontage’ of the convict grant through their locationon the western edge of the grant area, and at the bottom of the Fairbairn
Street Ramp. Architecturally and aesthetically, the Terrace row issubstantially externally intact. In its use of limestone for construction it
demonstrates the favoured building material of the Prison. This helps tomaintain an aesthetic if not a visual connection with the Prison.

PRINCIPLE 211: Links with Fremantle Prison, whether visual orotherwise, should be reinforced. This can be done through heritage
interpretation measures which are essential to conveying the cottages’
history and historical association with the Prison.
PRINCIPLE 212: No new structures or hard and soft landscapeelements should be introduced to the setting in front of the cottages.

Structures & Spaces Actions
ACTION 102: Any interpretation introduced should be clearly seen
and read when viewing the cottages. The interpretation should also
alert readers to the presence of the Prison and encourage further
investigation of the Prison history and connection with the cottages.

Those parts of the Warders’ Cottages that are of exceptionalsignificance are:•

19–29 Henderson Street•

31–41 Henderson Street•

7–17 Henderson Street

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Watch Towers and elevated walkways

location

PRINCIPLESPRINCIPLE 213: While the preference is to retain all the Watchtowers,
retaining and conserving a representative sample or range of theexisting Watch Towers and Walkways would suffice. In determining
which Watch Tower/s to retain, consider the following:

significanceAlthough the current Watch Towers and Walkways are later elements
they are part of a historical continuum of having elevated viewing
posts and guard positions at the Prison. Being visibly sited above thewalls, the Towers are prominent and seen from some distances, andaccordingly are landmarks in the local context. From the outside theyalso mark the site as a place of containment and surveillance. The
Towers are recognisably associated with prisoner observation andcontrol, including observation of suspicious activity immediately outside
the perimeter walls, as well as inside. For the prisoners they were theever-present symbols of being watched and monitored.
The Watch Towers additionally offer a different perspective on the
Prison. They accommodated the guards and warders whose job wasto keep watch and observe. These Prison staff spent considerable timein the towers and furnished or decorated the structures according toneed and amenity, as with any workplace. Warder graffiti is also present
in the towers. These items provide insight into the tedium of watchingprisoners and the work day experience of the guards.

•

the date of the Tower/s, with preferably an older through to a more
recent example retained•

the intactness of the Tower/s and its capacity to demonstrate its
original function•

the prominence and visibility of the Tower•

the views (observation area) associated with, and available from,the Tower both internally and externally to the Prison

PRINCIPLE 214: Representative examples of the furniture, fittings,
signs and graffiti that help explain the use of the Watch Towers and the
day to day experience of the warders on watch duty should be retained
and conserved. The furniture, fittings, signs and graffiti of the Watch
Towers should be left intact and retained in situ in at least one Tower.
In the other Towers, these items should be recorded, catalogued andstored, pending possible future reinstatement or exhibition (observing
the ‘Movable Heritage Overarching Policy).
PRINCIPLE 215: Maintain the prominence and visibility of the Watch
Towers in the local context. Retain the distinctive and clearly discernible
profiles of the Watch Towers, as seen atop the perimeter and other walls.
PRINCIPLE 216: No new structures, other than very minor or temporary
elements, should be built against or adjoining the Watch Towers, which
would impact on or diminish their current visibility.
PRINCIPLE 217: Lighting, to illuminate the Watch Towers at night, isencouraged; and also serves an aesthetic purpose through highlighting
the form and materiality of the towers.
PRINCIPLE 218: Interpretation of the Watch Towers and Walkways isessential to conveying the experience of the Prison guards and warders,
and the role and function of the Towers.

The Watch Towers and elevated Walkways are of some significance.

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Watch Towers and elevated walkways
Structures & Spaces Actions
ACTION 103: Where feasible, and not currently in place, introduce newlighting systems to highlight the Watch Towers. The systems should
be discrete and preferably set off from the subject walls, or located at
ground level to uplight the Towers, and should not involve penetrations
to the significant fabric.
ACTION 104: Finalise the draft individual Conservation Management
Strategy for the Watch Towers and Walkways, as prepared by Fremantle
Prison.
ACTION 105 Continue to use and enhance historical interpretation of
the Watch Towers and Walkways.
ACTION 106: Continue to allow supervised and guided (but selective)
public access by small groups of visitors to the towers and Walkways.
ACTION 107: Consider the removal of the walkway located above the
Wray Gates, because it impacts the location’s aesthetic values andviews into the Parade Ground.

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west Workshops

location

Those parts of the West Workshops that are of little or no significanceare as follows:•

later repair and infill fabric•modern fitouts and fittings to the buildings•

all other modern fabricsignificanceThe West Workshops are a key historical component of the post-convict
era Prison. Their introduction responded to a change in the treatmentof prisoners, and a desire to provide a form of employment and training
inside the walls. While the west side of the building group has limited
presence within the Prison, the east side is prominent to the Parade
Ground and effectively presents as an enclosing wall to the north-westboundary of the open space. Although altered and diminished by thethree-quarter wall treatment of brickwork covered by a painted concrete
render, the Workshops still contribute to the austere character of the
Parade Ground. The ramps and door openings also demonstrate thelink between the Workshops and the prisoner population confined to theeast side of the Workshops.
No parts of the West Workshops have been assessed as being of
exceptional significance.
Those parts of the West Workshops that are of considerable
significance are as follows:•

the West Workshops, including all original fabric and the sterilezone on the west side

No parts of the West Workshops have been assessed as being of somesignificance.
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Extent Heritage / Lovell Chen // 138west Workshops
pRINCIPLESStructures & Spaces Actions

PRINCIPLE 219: The historic character and aesthetic significance ofthe West Workshops should be retained and conserved.

ACTION 108: Finalise the draft individual Conservation Management
Strategy for the West Workshops, as prepared by Fremantle Prison.
This will assist in identifying original fabric which can then be the focus
of conservation works.

PRINCIPLE 220: The West Workshops should be retained andconserved and viable and compatible uses should be supported.
PRINCIPLE 221: As a general comment, maintain and repair the stone
walls of the West Workshops using traditional materials and techniques.
PRINCIPLE 222: The east side of the Workshops has considerable
presence to the Parade Ground. The repetitive form and pattern of
single- and double-width doors, with ramps, also provides evidence ofthe historically separate internal spaces.
PRINCIPLE 223: The west side of the Workshops has much more
limited presence within the Prison and on that basis provides someflexibility for change, albeit still limited change as previously occurredwith covers to the entries.

ACTION 109: Continue to use and enhance the historical interpretationof the West Workshops.
ACTION 110: Where feasible allow public entry to the workshop spaces,
and to the sterile zone on the west side.
ACTION 111: Previous repairs and alteration to the building walls
containing cement-based products appear to have had deleterious
effects on the limestone. Conserve in accordance with the HMP.

PRINCIPLE 224: The original form and detailing of the east elevation of
the Workshops to the Parade Ground should be maintained, including
the repetitive form and pattern of openings, and the ramps.
PRINCIPLE 225: The introduction of new facilities, even minor visitor
facilities, to the east setback to the Workshops, which would impact on
the presentation of the Workshops to the Parade Ground, should be
avoided.
PRINCIPLE 226: Where any works are proposed, the existing fabricthat should be retained includes:•

generally, all original external fabric including the roof form and thatof the south-facing skylights•

the original elements of the east façade, including the mono­grammed ramps, arched and detailed openings, boarded doors
with swing locking bars and wrought infill to ‘skylights’•

the internal masonry light and air wells including the privy walls•

the form and open space of the west sterile zone

PRINCIPLE 227: In any proposed adaption works, the following criteria
should be considered:•

The west elevation, with its limited visibility and presence within the
Prison, offers some flexibility for change, but only where this would
support a viable and compatible new use.

•

Preferably reinstate, at least in part, the original open spatial qualityof the workshop interiors.

•

Any required new partitioning should be modest in height andreversible/removable.

PRINCIPLE 228: Subject to further investigation and sufficient evidence
being available, consider reinstatement of the original single-width
doors and openings, face stonework, and brickwork quoining of the east
elevation. Such works also need to be balanced against the potential fordamage to the existing original fabric through the removal of the later
fabric.
PRINCIPLE 229: Interpretation of the West Workshops should ‘tell thestory’ of their original function and alert visitors to the presence of theWorkshops behind the east façade to the Parade Ground.

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Appendix A

Appendix A – Relevant heritage listings

Relevant heritage listings

World Heritage List – Statement of Outstanding Universal Value
The World Heritage List Statement of Universal Value in relation to theAustralian Convict Sites is accessible online at: http://whc.unesco.org/
en/list/1306
The following reproduces the text only.

in modern and contemporary European society. They illustrate an
active phase in the occupation of colonial lands to the detriment of the
Aboriginal peoples, and the process of creating a colonial population ofEuropean origin through the dialectic of punishment and transportation
followed by forced labour and social rehabilitation to the eventual social
integration of convicts as settlers.

Brief synthesis
The property consists of eleven complementary sites. It constitutes an
outstanding and large-scale example of the forced migration of convicts,
who were condemned to transportation to distant colonies of the British
Empire; the same method was also used by other colonial states.
The sites illustrate the different types of convict settlement organized
to serve the colonial development project by means of buildings, ports,
infrastructure, the extraction of resources, etc. They illustrate the living
conditions of the convicts, who were condemned to transportation far
from their homes, deprived of freedom, and subjected to forced labour.
This transportation and associated forced labour was implemented
on a large scale, both for criminals and for people convicted for
relatively minor offences, as well as for expressing certain opinions
or being political opponents. The penalty of transportation to Australia
also applied to women and children from the age of nine. The convict
stations are testimony to a legal form of punishment that dominated in
the eighteenth and nineteenth centuries in the large European colonialstates, at the same time as and after the abolition of slavery.
The property shows the various forms that the convict settlements took,
closely reflecting the discussions and beliefs about the punishment ofcrime in eighteenth- and nineteenth-century Europe, both in terms of its
exemplarity and the harshness of the punishment used as a deterrent,
and of the aim of social rehabilitation through labour and discipline. They
influenced the emergence of a penal model in Europe and America.
Within the colonial system established in Australia, the convict
settlements simultaneously led to the Aboriginal population being forcedback into the less fertile hinterland, and to the creation of a significant
source of population of European origin.
Criterion (iv): The Australian convict sites constitute an outstanding
example of the way in which conventional forced labour and national
Prison systems were transformed, in major European nations in theeighteenth and nineteenth centuries, into a system of deportation andforced labour forming part of the British Empire’s vast colonial project.
They illustrate the variety of the creation of penal colonies to serve themany material needs created by the development of a new territory.
They bear witness to a penitentiary system which had many objectives,
ranging from severe punishment used as a deterrent to forced labour formen, women and children, and the rehabilitation of the convicts throughlabour and discipline.

Integrity and authenticity
The structural and landscape integrity of the property varies dependingon the site, and on the type of evidence considered. It has been
affected by local history, at times marked by reuse or lengthy periods ofabandonment. The integrity varies between well preserved groups andothers where it might be described as fragmentary. Apart from certain
visual perspectives in urban settings, the level of the property’s integrity
is well controlled by the site management plans.
Despite the inevitable complexity of a nomination made up of a series of
eleven separate sites with more than two hundred elements that convey
the value of the property, the authenticity of the vast majority of them is
good.

Protection and management requirements
All the sites forming the property are inscribed on the National Heritage
List. They are also protected by the EPBC Act.
There is no direct major threat to the sites forming the serial property.
The general protection and management of the property are satisfactory.
Conservation is articulated around a positive dynamic driven by theapplication of the conservation plans at each of the sites. The Brickendon
and Woolmers Estate domains are an exception, and require ongoing
assistance, both in terms of protection and conservation.
The management systems of the sites forming the property areappropriate, and they are adequately coordinated by the Strategic
Management Framework for the property and its Steering Committee.
For the sites involving the participation of private stakeholders forvisitor reception, improved interpretation is however necessary; that
includes the common objectives outlined in the Strategic Management
Framework. It is also important to consider visitor reception facilities andtheir development in a way which respects the landscape conservationof the sites.

Criterion (vi): The transportation of criminals, delinquents, and politicalprisoners to colonial lands by the great nation states between theeighteenth and twentieth centuries is an important aspect of humanhistory, especially with regard to its penal, political and colonial
dimensions. The Australian convict settlements provide a particularlycomplete example of this history and the associated symbolic values
derived from discussions
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Commonwealthof Australia

GazetteNo. S142, Monday, 1 August 2005

SPECIAL

Published by the Commonwealth of Australia

Environment Protection and Biodiversity Conservation Act 1999
INCLUSION OF A PLACE IN THE NATIONAL HERITAGE LIST
I, Ian Gordon Campbell, Minister for the Environment and Heritage, having considered,in relation to the place listed in the Schedule of this instrument (a)the Australian Heritage Council’s assessment whether the place meets any of the
National Heritage criteria; and(b)the comments given to the Council under section 324G of the Environment
Protection and Biodiversity Conservation Act 1999; andbeing satisfied that the place specified in the Schedule has the National Heritage value
or values specified in the Schedule include, pursuant to section 324J of the Environment
Protection and Biodiversity Conservation Act 1999, the place listed in the Schedule in
the National Heritage List.

Dated 28th day of July 2005

Ian Gordon Campbell
Minister for the Environmentand HeritageCat. No. S14205
ISSN 1032-2345© Commonwealth of Australia 2005

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2

Commonwealth of Australia Gazette
No. S142, 1 August 2005

Special Gazette

SCHEDULE
STATE
Local Government Area
Name:
Location
Criteria / Values

WESTERN AUSTRALIA
Fremantle City
Fremantle Prison (former):
About 7ha, 1 The Terrace, Fremantle, being the area identified on Page 38 of theFremantle Prison Heritage Precinct Master Plan July 2003 and comprising Zones A to
N, P, Q, R and S. Included is all of Lot 24042 (Zones A to N and Q), the Fairbairn
Street Ramp (Zone R), and Warders Cottages (Zone S), being 7-41 Henderson Street.
Criterion

Values(a) the place has
outstanding heritage value
to the nation because of theplace's importance in thecourse, or pattern, ofAustralia's natural orcultural history.

Fremantle Prison (1852-1859) is of heritage value to thenation as an outstanding example of a nineteenth century
convict establishment which continued to be used as a prison
until 1991. It is the most intact such complex in Australia.
Fremantle Prison is a major component of the British convict
system constructed in Australia. The system is an example ofa nineteenth century European colonial strategy of exporting
prisoners and using their labour to establish a colonial
economy. In Australia, this strategy had a significant impact
on early colonial development and on the overall Australian
psyche.
Fremantle Prison, in conjunction with other Australian convict
sites, exemplifies a worldwide process of colonial settlement.
The British colonial penal system, evident in post-1788
Australia and demonstrated to a high degree at Fremantle
Prison, was significant in progressing 18th and 19th century
European colonisation.
Transportation, which had ceased in the other colonies by
1853, due to increasing hostile opposition and immigration
stimulated by the gold rushes, commenced in Western
Australia in 1850. Fremantle Prison tells the national story of
the last period of convict transportation to Australia, and thefinal expression of British convict migration. Its history
reflects the changes in Australian and British views about theuse of forced labour as a basis for empire. After the gold
rushes the Australian colonies, rather than being seen as anextension of British interests, were increasingly seen as self
sufficient members of the empire.

2

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Com
No.

zette2005

Commonwealth of Australia Gazette
No. S142, 1 August 2005(a) continued

Special Gazette

Fremantle Prison with its high degree of integrity clearly
demonstrates in its fabric many aspects of penal design andreform that developed in Britain in the nineteenth century. It isoutstanding in demonstrating to a high degree aspects of thesystem and the conditions in which convicts lived. The placeallows the closest observation of the conditions in which many
convicts served out their sentences in the nineteenth century.
Fremantle Prison, the central convict establishment in Western
Australia, functioned as a public works prison, a convict
distribution depot and the main Imperial convict administration
and workshops. Together with Hyde Park Barracks, they best
illustrate the national story of the control of convicts on public
works.
Fremantle Prison contains major surviving physical evidenceof an imperial convict public works establishment and of its
adaptation for subsequent colonial (1886) and state use. The
fabric of Main Cell Block, perimeter walls, the Henderson
Street Warders' Cottages and three of the cottages on the
Terrace are little altered from the imperial convict era.
New elements added to the Prison after the transfer of theestablishment from imperial to colonial and later state control,
include the Western Workshops (1900-01) the New Division(1907) and conversion of service building to the Female
Division and addition of an eastern range (1889-1909).
The National Heritage values are expressed through theelements comprising the Fremantle Prison convict era complex
including the 1859 main cell block, chapel and wards, yards
and refractory cells; perimeter walls, gate house complex andprison officer residences on the Terrace; service buildings andhospital; south-eastern workshops; Fairbairn Street ramp
access tramway, and the three terraces built as Warders’
Cottages, 7-17, 19-29 and 31-41 Henderson Street. Other
elements which express the National Heritage values include
the western workshops (1900); new division (1907); andconversion of service building to the female division and theeastern range (1889-1909).

3

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4

Commonwealth of Australia Gazette
No. S142, 1 August 2005

Special Gazette(b) the place has
outstanding heritage value
to the nation because of
the place's possession of
uncommon, rare or
endangered aspects ofAustralia's natural orcultural history.

Fremantle Prison has outstanding heritage value to the nation as
an exceptionally intact architectural ensemble due to 133 yearsof continuous use as a prison. The National Heritage values are
expressed through the elements comprising the Fremantle
Prison convict era complex including the 1859 main cell block,chapel and wards, yards and refractory cells; perimeter walls,
gate house complex and prison officer residences on the
Terrace; service buildings and hospital; south-easternworkshops; Fairbairn Street ramp access tramway, and thethree terraces built as Warders’ Cottages, 7-17, 19-29 and 3141 Henderson Street. Other elements which express the
National Heritage values include the western workshops(1900); new division (1907); and conversion of service
building to the female division and the eastern range (18891909).
The British colonial penal system, evident in post-1788
Australia, is demonstrated to a high degree at Fremantle Prison.
London’s Pentonville prison, one of the first model prisonserected between 1840 and 1842, was based on changes in
British penal philosophy which advocated reform rather thanpunishment. The design of the Main Cell Block at Fremantle
Prison was adapted from Jebb’s design at Pentonville.

(c) the place has
outstanding heritage value
to the nation because of
the place's potential toyield information that willcontribute to anunderstanding ofAustralia's natural orcultural history.

Fremantle Prison has extensive research potential because of
the place’s high degree of integrity and authenticity and theability of the material culture present to provide unique insight
into the convict experience throughout the imperial, colonialand state periods. The National Heritage values are expressed
through the structures comprising the Fremantle Prison
complex (1852-1991), including its underground engineering
heritage, archaeological subsurface remains, records andcollections.
In combination, the oral tradition, documentary evidence,collections, structures, engineering relics and archaeologicalfeatures at Fremantle Prison have unparalleled potential forcommunity education.
Fremantle Prison’s buildings, engineering relics and otherstructures contain, within their fabric, evidence of construction
technology, available materials and adaptation to suit local
conditions.
The Fremantle Prison records and collections, includingarchaeological ones, provide a substantial research resource
which, in conjunction with documentary evidence, has thepotential to reveal and present much of the Fremantle story.

4

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Com
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zette2005

Commonwealth of Australia Gazette
No. S142, 1 August 2005(d) the place has
outstanding heritage
value to the nation
because of the place's
importance indemonstrating theprincipal characteristicsof:(i) a class ofAustralia's natural
or cultural places;or(ii) a class ofAustralia's natural
or culturalenvironments.

Special Gazette

Australia’s convict sites share patterns of environmental andsocial colonial history including classification and segregation;
dominance by authority and religion; the provision ofaccommodation for the convict, military and civil population;
amenities for governance, punishment and healing, and theelements of place building and industry. Fremantle Prison isoutstanding in demonstrating the principal characteristics of anAustralian Convict Site because:• It presents important aspects of Australia’s convict system
including changing attitudes to punishment, reform, education
and welfare;• The Prison in its present form demonstrates with some
precision the facilities, conditions and attitudes prevailing in a
major Western Australian prison – an experience rarely
available to the public and made more immediate by theretention of graffiti, murals, signs, notices and recent evidenceof use;• The form and location of elements at Fremantle Prison display
deliberate design and arrangement, reflecting the order andhierarchy of the place’s history and function as a Prison;• The built environment at Fremantle Prison displays a large,
surviving concentration of nineteenth and early twentiethcentury structures characterised by a homogeneity of form,materials, textures and colour;• Substantial parts of the site include archaeological deposits ofmaterial culture, which can be analysed to yield information
about the site unavailable from documentary sources alone; and• Fremantle Prison, its artefacts, furnishings and fittings, written
and painted graffiti and records, including published material,
photographs, historical, archaeological and architectural
records, and databases, provide an extensive resource for abroad range of historical and social research.
The National Heritage values are expressed through thestructures comprising the Fremantle Prison complex (18521991), its artefacts, furnishings and fittings, written and painted
graffiti, its records and collections. The National Heritage
values are also expressed through the archaeological subsurface
remains, including the underground engineering heritage
comprising the reservoirs, the pumping station and associatedwater system.

5

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5

6

6

Commonwealth of Australia Gazette
No. S142, 1 August 2005

Special Gazette(g) the place has
outstanding heritage
value to the nation
SpecialGazettebecauseof the place's
strong or special
association with aparticular community or(g) the placeculturalgrouphasfor social,
outstanding
heritage
culturalor spiritualvalue
to the nation
reasons.
because of the place's
strong or special
association with aparticular community or
cultural group for social,
cultural or spiritualreasons.

Fremantle Prison has played a significant role in the social
fabric of Western Australia over many generations
throughits
Commonwealthof Australia
Gazettecontinued use as a place of incarceration until 1991. Fremantle
No. S142, 1 August 2005
Prison is strongly associations with particular communities inWestern Australia and for Australians more generally.

Fremantle
Prison is
hastheplayeda significant
rolesocialin
Fremantle Prison
outstanding
symbolof inthetheperiodfabricofWestern
Australia
overmanygenerations
throughits
which Western Australia was developed using convict labour.
continued
use asbroadly,
a place ofincarceration
until
1991. Fremantle
For Australians
particularly
thoseof Anglo-Celtic
Prisonisstrongly
associations
withparticularcommunities
inbackground, Fremantle Prison is a place to reconnect with their
Western
Australia
andforAustralians
more
generally.
colonial roots, real or imagined, and reflect on the meanings ofthe past. For some, the search for early family associations andFremantle
the outstanding
the periodofin
identity hasPrison
led toisFremantle
Prison symbol
and the ofrediscovery
whichWestern
Australia
wasdeveloped
using
convict labour.
personal links with convictism.
For Australians broadly, particularly those of Anglo-Celtic
background,
Prisonare
is aexpressed
place to reconnect
with their
The NationalFremantle
Heritage values
through thecolonialroots,
realorimagined,andreflectonthemeanings
ofelements comprising the Fremantle Prison convict era complex
the
past.
For
some,
the
searchforearlyfamilyassociations
andincluding the 1859 main cell block, chapel and wards, yards andidentity
hascells;
led toFremantle
Prisonthe rediscovery
refractory
perimeter
walls,
gateandhouse
complex andofprison
personal
links
withconvictism.
officer residences on the Terrace; service buildings andhospital; south-eastern workshops; Fairbairn Street ramp access
The
National
arebuilt
expressed
throughthetramway,and Heritage
the threevalues
terracesas Warders’
Cottages,
7elements
comprisingtheFremantle
Prisonconvictera
17, 19-29 and 31-41 Henderson Street. Other elementscomplex
which
including1859 maincell block,andyards andexpress thethe
National
Heritagevalueschapel
includethewards,
western
refractory
cells;
perimeter
walls,
gatehouse
complexandworkshops (1900); new division (1907); and conversion ofprison
officer
Terrace;serviceandrange
service residencesbuilding toon
thethefemaledivision
andbuildings
the eastern
hospital;
south-eastern workshops; Fairbairn Street ramp access(1889-1909).
tramway, and the three terraces built as Warders’ Cottages, 717, 19-29 and 31-41 Henderson Street. Other elements which
express the National Heritage values include the westernand more
information
on each of
For a description of any workshops
references quoted(1900);above,
new division(1907);and conversionof theplaces please search the service
Australian
Heritage
Databasebuilding
to thefemale atdivision and the eastern range
using
the
name of the place.
http://www.deh.gov.au/cgi-bin/ahdb/search.pl(1889-1909).

For a description of any references quoted above, and more information on each of theplaces please search the Australian Heritage Database at
http://www.deh.gov.au/cgi-bin/ahdb/search.pl using the name of the place.

6

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6

REGISTER OF HERITAGE PLACES
Permanent Entry
HERITAGE
COUNCILOF WESTERN AUSTRALIA

1.

DATA BASE No.

1014

2.

NAME

Fremantle Prison

3.

LOCATION

The Terrace, Fremantle

4.

DESCRIPTION OF PLACE INCLUDED IN THIS ENTRY
Reserve 24042 being the whole of the land comprised in Fremantle Lot
1913.

5.

LOCAL GOVERNMENT AREA City of Fremantle

6.

OWNER

7.

HERITAGE LISTINGS
•
•
•
•

8.

(1852-1859 +)Minister for Works

Register of Heritage Places: Interim Entry
10/01/1992
Permanent Entry 30/06/1995
National Trust Classification:
03/10/1960
City of Fremantle City Planning Scheme:--------------Register of National Estate:
21/03/1978

CONSERVATION ORDER-----------------

9.

HERITAGE AGREEMENT-----------------

10.

STATEMENT OF SIGNIFICANCE
Fremantle Prison has exceptional cultural heritage significance for thefollowing reasons:it contains major evidence of the physical apparatus of an imperial
convict public works establishment and of its adaptation for
subsequent colonial use;
the establishment is the most intact such complex in Australia;
the prison is the outstanding symbol of the period in which
Western Australia was developed using convict labour;
it is a memorial to the design and supervision of the royalengineers including Jebb (surveyor general of the [English] prisons,Henderson (comptroller general of convicts), Wray (acting
comptroller general), Manning (clerk of works in the royal engineer

Register of Heritage Places-Permanent Entry

FREMANTLE PRISON // Heritage Management Plan

Fremantle Prison

1
Extent Heritage / Lovell Chen // 148

office) and to the work of the sappers and miners, artisan
pensioners and, not least, the prisoners;
the association of the persons who left their mark in its fabric ormade an impact on its discipline and reputation, in particular, thegovernors Fitzgerald and Hampton; and, superintendents Lefroy,
Stone, George and Hann; as well as the prisoners;
the prison in its present form also demonstrates with some
precision the facilities, conditions and attitudes prevailing in a
major Western Australian prison - an experience rarely available tothe public and made more immediate by the retention of graffiti,murals, signs, notices and recent evidence of use; and,the austere and monumental quality of the longest and tallest cellrange in Australia set in a precinct characterised by a homogeneityof form, materials, texture and colour make it a landmark feature ofFremantle.

Register of Heritage Places-Permanent Entry
FREMANTLE PRISON // Heritage Management Plan

Fremantle Prison

2
Extent Heritage / Lovell Chen // 149

Appendix B

Appendix B – Contributory views

Contributory views

Aerial image of Fremantle Prison and its surrounds showing views by number.

FREMANTLE PRISON // Heritage Management Plan

Extent Heritage / Lovell Chen // 151

View 1 -Fremantle Prison is not visible in this view. Low contribution to the place’s
heritage values.

View 2 -Views to the northeast corner of Fremantle Prison along Knutsford Street
make an important contribution to the heritage values of the Prison. Theview is presently compromised by street trees and electricity poles. It isappropriate for them to remain but when they come to the end of their uselife, alternatives that do not impact this view should be considered.

View 3 -This view makes an exceptional contribution to the heritage values of
the Prison. New development and plantings should not be introduced tocompromise this view.

View 4 -The northeast corner of Fremantle Prison is visible in long views along Ord
Street. These views make a contribution to the heritage values of Fremantle
Prison. New development or plantings that may impede these views should
be avoided.

View 5 -Close views to the northeast corner of Fremantle Prison make an exceptional
contribution to the place’s heritage values. Consideration should be given to
removing the carpark. New development or plantings that may impede theseviews should be avoided.

View 6 -Long views along the wall on Knutsford Street make an exceptional
contribution to the heritage values of Fremantle Prison. New development
and plantings should not be introduced to compromise these views. The
views are presently compromised to a small degree by electricity poles. It isappropriate for them to remain but when they come to the end of their uselife, alternatives that do not impact this view should be considered.

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View 7 -Long views along the Hampton Road reserve make an exceptional
contribution to the heritage values of Fremantle Prison. See ‘Structures andSpaces Conservation Principles and Actions – Hampton Road Reserve’ for
guidance on the management of these views.

View 8 -View 9 -Views west along Fothergill Street, across Hampton Road, capture thesoutheast corner of Fremantle Prison and the rise and fall of the southernwall as it passes over the natural topography. They make an exceptional
contribution to the heritage values of Fremantle Prison. New development
or plantings that may impede these views should be avoided. The views arepresently compromised to a degree by electricity poles and street trees. It isappropriate for them to remain but when they come to the end of their uselife, alternatives that do not impact this view should be considered.

View 10 - Views west along Fothergill Street from its eastern end just capture thesoutheast corner of Fremantle Prison and the rise and fall of the southernwall as it passes over the natural topography. They make a contribution to
the heritage values of Fremantle Prison. New development or plantings that
may impede these views should be avoided.

FREMANTLE PRISON // Heritage Management Plan

Views west along Fothergill Street, across Hampton Road, capture thesoutheast corner of Fremantle Prison. They make an exceptional contribution
to the heritage values of Fremantle Prison. New development or plantings
that may impede these views should be avoided. See also ‘Structures andSpaces Conservation Principles and Actions – Hampton Road Reserve’ for
guidance on the management of these views.

Extent Heritage / Lovell Chen // 153

View 11 - Views of the southwest corner of the Prison, across Fothergill Street, capture
the crisp lines and austere appearance of Fremantle Prison. They make an
exceptional contribution to the heritage values of Fremantle Prison. New
development or plantings that may impede these views should be avoided.

View 12 - Views of the southwest corner of the Prison, across Fothergill Street, capture
the crisp lines and austere appearance of Fremantle Prison. They make an
exceptional contribution to the heritage values of Fremantle Prison. Theseviews are compromised by the presence of the carpark in this location. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’ and ‘Structures and Spaces Conservation
Principles and Actions – The Terrace’ for guidance on the management ofthese views.

View 13 - Views of the southwest corner of the Prison, across Fothergill Street, capture
the crisp lines and austere appearance of Fremantle Prison. They make an
exceptional contribution to the heritage values of Fremantle Prison. Theseviews are compromised by the presence of the carpark in this location. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’ and ‘Structures and Spaces Conservation
Principles and Actions – The Terrace’ for guidance on the management ofthese views.

View 14 - Long views north along Attfield Street capture glimpses of Fremantle Prison’s
southern wall. They make a contribution to the heritage values of Fremantle
Prison. New development or plantings that may impede these views should
be avoided.

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View 15 - Short views to the southern wall of Fremantle Prison, across Fothergill Street,make an exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised to a degree by the presence of the carpark inthis location, although it also facilitates important views. New development orplantings that may impede these views should be avoided. See ‘Overarching
Policy – Setting’ for guidance on the management of the Prison’s setting.

View 16 - Short views to the southern wall of Fremantle Prison, across Fothergill Street,make an exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised to a degree by the presence of the carpark inthis location, although it also facilitates important views. New development orplantings that may impede these views should be avoided. See ‘Overarching
Policy – Setting’ for guidance on the management of the Prison’s setting.

View 17 - Short views to the southern wall of Fremantle Prison, across Fothergill Street,make an exceptional contribution to the heritage values of Fremantle Prison,
especially this view across its southeast corner which captures the Main Cell
Block and the cranes in the distance. New development or plantings that may
impede these views should be avoided. See ‘Overarching Policy – Setting’for guidance on the management of the Prison’s setting.

View 18 - Long views along Hampton Road towards the southeast corner of Fremantle
Prison have been compromised by street trees. The Prison is not visible.
These views have the potential to make an exceptional contribution to theheritage values of Fremantle Prison. It is appropriate for the trees to remain
but when they come to the end of their lives, alternatives that do not impact
these views should be considered. New development or plantings that may
impede these views should be avoided.

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View 19 - Views of the southwest corner of the Prison, across Fothergill Street, capture
the crisp lines and austere appearance of Fremantle Prison. They make an
exceptional contribution to the heritage values of Fremantle Prison. Theseviews are compromised by the presence of the carpark in this location. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’ and ‘Structures and Spaces Conservation
Principles and Actions – The Terrace’ for guidance on the management ofthese views.

View 20 - Views east towards Fremantle Prison from The Terrace make an exceptional
contribution to the heritage values of the place. These views are compromisedby the presence of the carpark in this location. New development or plantings
that may impede these views should be avoided. See ‘Overarching Policy– Setting’ and ‘Structures and Spaces Conservation Principles and Actions –The Terrace’ for guidance on the management of these views.

View 21 - Views northeast towards Fremantle Prison from The Terrace make an
exceptional contribution to the heritage values of the place. These views
are compromised by the presence of the carpark in this location. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’ and ‘Structures and Spaces Conservation
Principles and Actions – The Terrace’ for guidance on the management ofthese views.

View 22 - Views east to the Gatehouse from the top of the Fairbairn Street Ramp
make an exceptional contribution to the heritage values of the place. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’, ‘Structures and Spaces Conservation
Principles and Actions – The Terrace’ and ‘Structures and Spaces
Conservation Principles and Actions – Gatehouse and Entry Complex’ for
guidance on the management of these views.

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View 23 - Views east to the Gatehouse from the Fairbairn Street Ramp make an
exceptional contribution to the heritage values of the place. The views havebeen compromised to a degree by trees along the Ramp. New development orplantings that may impede these views should be avoided. See ‘Overarching
Policy – Setting’, ‘Structures and Spaces Conservation Principles and Actions– The Terrace’ and ‘Structures and Spaces Conservation Principles and Actions– Fairbairn Street Ramp’ for guidance on the management of these views.

View 24 - The view across Fremantle Oval to the southeast corner of Fremantle Prison
capture the crisp lines and austere appearance of Fremantle Prison. They
make an exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised to a degree by the presence of the trees inthis location but they enhance the setting of the oval which is also a heritage
place. These values need to be balanced. New development or plantings
that may impede these views should be avoided. See ‘Overarching Policy –Setting’ for guidance on the management of these views.

View 25 - Views east along the historic alignment of the Fairbairn Street Ramp makean exceptional contribution to the heritage values of Fremantle Prison. Theseviews are compromised by the presence of trees, carparking facilities, street
signage and by Parry Street, which bisects the former Ramp alignment. New
development or plantings that may impede these views should be avoided.
The views should be enhanced into the future. See ‘Overarching Policy –Setting’ for guidance on the management of these views.

View 26 - Views southeast towards the Fairbairn Street Ramp and Gatehouse makean exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised by the presence of trees, carparking facilities,
street signage and by Parry Street. New development or plantings that may
impede these views should be avoided. The views should be enhanced
into the future. See ‘Overarching Policy – Setting’, ‘Structures and Spaces
Conservation Principles and Actions – The Terrace’ and ‘Structures andSpaces Conservation Principles and Actions – Fairbairn Street Ramp’ for
guidance on the management of these views.

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View 27 - Views southeast towards the Fairbairn Street Ramp and Gatehouse makean exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised by the presence of trees, carparking facilities,
street signage and by Parry Street. New development or plantings that may
impede these views should be avoided. The views should be enhanced
into the future. See ‘Overarching Policy – Setting’, ‘Structures and Spaces
Conservation Principles and Actions – The Terrace’ and ‘Structures andSpaces Conservation Principles and Actions – Fairbairn Street Ramp’ for
guidance on the management of these views.

View 28 - Views east towards the northwest corner of Fremantle Prison, including
the original convict-built steps, make an exceptional contribution to theheritage values of Fremantle Prison. These views are compromised by thepresence of trees, carparking facilities and street signage. New development
or plantings that may impede these views should be avoided. The views
should be enhanced into the future. See ‘Overarching Policy – Setting’ and‘Structures and Spaces Conservation Principles and Actions – The Terrace’for guidance on the management of these views.

View 29 - Views east towards the northwest corner of Fremantle Prison, including
the original convict-built steps, make an exceptional contribution to theheritage values of Fremantle Prison. These views are compromised by thepresence of trees, carparking facilities and street signage. New development
or plantings that may impede these views should be avoided. The views
should be enhanced into the future. See ‘Overarching Policy – Setting’ and‘Structures and Spaces Conservation Principles and Actions – The Terrace’for guidance on the management of these views.

View 30 - Views east along Knutsford Street capture the high, multi-period walls ofFremantle Prison including their austere presence in the landscape. They
make an exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised to a degree by the presence of trees and utility
poles. It is appropriate for them to remain but when they come to the end of
their use-life, alternatives that do not impact this view should be considered.
New development or plantings that may impede these views should be
avoided. See ‘Overarching Policy – Setting’ for guidance on the managementof these views.

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View 31 - Views south along Holdsworth Street capture glimpses of Fremantle Prison’s
northwest corner. They make a contribution to the heritage values ofFremantle Prison. New development and plantings should not be introduced
to compromise these views. The views are presently compromised to adegree by street trees. It is appropriate for them to remain but when theycome to the end of their lives, alternatives that do not impact this view should
be considered.

View 32 - Views east along Knutsford Street capture the high, multi-period walls ofFremantle Prison including their austere presence in the landscape. They
make an exceptional contribution to the heritage values of Fremantle Prison.
These views are compromised to a degree by the presence of utility poles.
It is appropriate for them to remain but when they come to the end of theiruse-life, alternatives that do not impact this view should be considered. New
development or plantings that may impede these views should be avoided.
See ‘Overarching Policy – Setting’ for guidance on the management of theseviews.

View 33 - Views west along Knutsford Street from its mid-point capture the high, multiperiod walls of Fremantle Prison including their austere presence in thelandscape. They make an exceptional contribution to the heritage values ofFremantle Prison. These views are compromised to a degree by the presenceof utility poles. It is appropriate for them to remain but when they come tothe end of their use-life, alternatives that do not impact this view should
be considered. New development or plantings that may impede these views
should be avoided. See ‘Overarching Policy – Setting’ for guidance on the
management of these views.

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Appendix C

Appendix C – References and select bibliography

References and select bibliography

AEC Group Ltd, 2016. Fremantle Prison – Economic and Social Impact Assessment, unpublished report prepared for the State Heritage Office.
Australian Convict Sites Strategic Plan 2017–2020.
Bavin, L. 1990. Fremantle Prison Conservation and Future Use – Archaeological Zoning Plan of the Prison Compound, report prepared for the WA
Department of Planning and Urban Development.
Centre for Aboriginal Studies, Curtin University of Technology, 1992. Fremantle Prison – Significance to Aboriginal People, report prepared for the
Building Management Authority.
Donegan, L (Fremantle Prison), 2007. Fremantle Prison Interpretation Policy, unpublished report.
Donegan, L. 2013. Fremantle Prison Heritage Management Plan, unpublished report.
Government of Australia, 2008. Australian Convict Sites World Heritage Nomination.
Government of Australia, Department of the Environment, Water, Heritage and the Arts, undated. Australian Convict Sites Strategic Management
Framework.
Government of WA/State Heritage Office/Fremantle Prison, 2016. Fremantle Prison Collection Policy, unpublished report.
Heritage Conservation Branch, 2016. Disaster Preparedness Plan, unpublished report for Fremantle Prison.
HeritageTODAY and Fremantle Prison, 2017. Fremantle Prison Collection Significance Assessment, unpublished report.
Kerr, Semple James 1998. Fremantle Prison – A Policy for its Conservation, report prepared for the Department of Contract & Management
Services for the Fremantle Prison Trust Advisory Committee.
Lockwood Advisory and Archipelago Arts, 2016. Fremantle Prison Future Uses Project, unpublished report.
Palassis Architects, with Godden Mackay Logan 2010. Fremantle Prison Conservation Management Plan, report prepared for the Department ofTreasury and Finance – Building Management and Works Divisions.
Palassis Architects, 2003. Fremantle Prison Heritage Precinct – The Convict Establishment – Master Plan, prepared for the Western Australian
Department of Housing and Works.

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