Heritage Tool · Plico Advisory
Burra Charter
Assessment
A structured walkthrough of the Australia ICOMOS Burra Charter (2013) for architects, heritage consultants and clients working in places of cultural significance.
Professional use tool. This assessment guide is based on the Australia ICOMOS Burra Charter: The Australia ICOMOS Charter for Places of Cultural Significance (2013) and its associated Practice Notes. It is intended to assist qualified practitioners in identifying whether key considerations have been addressed — it does not replace professional judgement, a formal Heritage Impact Statement, or advice from the relevant heritage authority. All outputs should be reviewed by a registered architect or accredited heritage consultant.
Project Details
Complete before beginning the assessment
Assessment Progress
0 of 7 sections complete
01
Understanding
Not started
02
Significance
Not started
03
Policy
Not started
04
Change
Not started
05
Process
Not started
06
Practice
Not started
07
Interpretation
Not started
0
Considerations Met
0
Not Met / Gaps
0
Not Applicable
0
Pending
Section 01 of 07
Understanding
the Place
Burra Charter Articles 1–8 — Definitions & Principles
Before any decisions are made, the place must be understood on its own terms — its fabric, history, associations, and uses. This section addresses foundational knowledge requirements under the Burra Charter.
"The cultural significance of a place and other issues affecting its future are best understood by a sequence of collecting and analysing information before making decisions."
Burra Charter, Article 26.1 — Cautious ApproachArt. 1.1 / 1.2
Has the extent of the 'place' been clearly defined, including all fabric, settings, contents, spaces and views that contribute to cultural significance?
The place includes all its fabric, settings, use, associations, meanings, records, related places and related objects. The boundaries should be documented and justified.
Art. 1.4 — Fabric
Has the physical fabric of the place been documented, including its condition and relative significance of different elements?
Fabric means all the physical material of the place. An understanding of original, early and later fabric is essential before assessing impact of proposed works.
Art. 1.5 — Setting
Has the setting of the place been considered, including visual catchment, curtilage, and relationship to adjacent places and landscapes?
Setting means the area around a place, which may include the visual catchment. Works that affect the setting may affect significance even if they don't touch the fabric.
Art. 1.11 — Use / Compatible Use
Has the current and historically established use of the place been identified and understood?
Use means the functions of a place and the activities and practices that may occur at a place. Understanding use informs what change is appropriate.
Art. 2 — Cultural Significance
Is it clear that the cultural significance of the place has been the primary consideration guiding all decisions?
The Burra Charter requires that the conservation of a place must identify, assess, and have regard to its cultural significance. All other considerations are secondary.
Section Notes — Understanding the Place
Section 02 of 07
Cultural
Significance
Burra Charter Articles 1.2, 5–8, 26 — Assessment of Significance
A formal assessment of cultural significance is the foundation of all heritage work. This section checks whether significance has been properly identified, including all values and their relative weight.
"Places of cultural significance enrich people's lives, often providing a deep and inspirational sense of connection to community and landscape, to the past and to lived experiences."
Burra Charter Preamble (2013)Art. 5.1 — Aesthetic Value
Has aesthetic or visual significance been assessed, including design quality, character, landmark qualities, and contribution to streetscape or landscape?
Aesthetic significance includes all aspects of sensory perception and the creative and design qualities of a place.
Art. 5.1 — Historic Value
Has historic significance been assessed, including association with people, events, phases of development, or as evidence of past activities?
Historic significance encompasses the place's capacity to yield information and its associations with historical themes, people and events.
Art. 5.1 — Scientific Value
Has scientific or research significance been assessed, including archaeological potential, technical innovation, or capacity to yield information?
Scientific significance relates to the importance of data embodied in the place, its rarity and quality as evidence of a particular period or activity.
Art. 5.1 — Social Value
Has social or cultural significance been assessed, including meanings held by living communities, spiritual values, and relationships to identity?
Social significance encompasses qualities for which a place has become a focus for spiritual, political, national or other cultural sentiment to a group or community.
Art. 5.2 — Relative Significance
Has the relative significance of different elements, spaces, and fabric been assessed (e.g. high/moderate/low/no significance)?
Not all elements of a place are equally significant. A graded assessment enables proportionate decisions about what must be retained and what can be changed.
Art. 6 — Consultation
Have people with associations with the place, including community groups and Traditional Owners (where applicable), been consulted in the significance assessment?
Consultation is required where the place has special associations to living communities. For places with Aboriginal and Torres Strait Islander significance, consultation with Traditional Owners is mandatory.
Art. 26 — Statement of Significance
Has a formal Statement of Cultural Significance been prepared that accurately and concisely describes all identified values?
The Statement of Significance is a core output of heritage assessment. It should be based on thorough research, identify all heritage values, and be proportionate to the level of significance.
Section Notes — Cultural Significance
Section 03 of 07
Conservation
Policy
Burra Charter Articles 26–28 — Developing Policy
Policy defines how the place should be managed and what changes are appropriate. It should flow directly from the significance assessment and address all identified values.
"Conservation policy must be developed with a full understanding of cultural significance and must address all relevant issues."
Burra Charter, Article 26.3Art. 26.3 — Policy Basis
Does the conservation policy flow directly from, and address, the identified cultural significance of the place?
Policy should not be generic. It must be tailored to the specific significance of the place and describe what is important to conserve and why.
Art. 26.3 — Constraints and Opportunities
Does the policy identify both what cannot be changed (constraints) and what can be changed (opportunities) in response to the significance assessment?
A well-formed policy gives clear guidance on what is protected and why, and what has scope for change. Ambiguity here leads to disputes and inappropriate works approvals.
Art. 27 — Compatible Use
Has compatible use been assessed — is the proposed use one that respects the cultural significance and is the most compatible use practicable?
Compatible use requires no change to culturally significant fabric. If change is required, it must be the minimum necessary, reversible, and clearly justified.
Art. 28 — Statutory Context
Has the statutory heritage framework been identified, including the relevant listing, applicable permit triggers, and authority responsible for consent?
Statutory context includes VHR, Heritage Overlay, Commonwealth listings and any relevant Heritage Agreement. Permit triggers must be identified before any works are proposed.
Art. 28 — Other Constraints
Have other constraints been identified, including BCA/NCC requirements, structural conditions, accessibility obligations, and owner requirements?
Conservation policy must be realistic. Acknowledging other constraints (access, fire, structural) allows the policy to navigate the relationship between heritage and other obligations.
Section Notes — Conservation Policy
Section 04 of 07
Change to the
Place
Burra Charter Articles 3, 10–15, 22 — Managing Change
Any change to a place of cultural significance requires careful justification. This section assesses whether proposed changes are appropriate, minimal, reversible, and properly documented.
"Change may be necessary to retain cultural significance, but is undesirable where it reduces cultural significance. The amount of change should be the minimum necessary."
Burra Charter, Article 3.1Art. 3 — Minimum Intervention
Is the proposed extent of change the minimum necessary to achieve the functional or use requirements of the project?
The minimum intervention principle requires that no more fabric is altered, removed, or disturbed than is necessary. Alternatives that involve less change must be genuinely considered.
Art. 14 — Reversibility / Reversible Works
Where works affect significant fabric, have they been designed to be reversible or at minimum to not prejudice future conservation options?
Reversibility is a key Burra Charter requirement. New works — fixings, penetrations, infills, finishes — should be capable of removal without damage to significant fabric.
Art. 15 — New Work Legibility
Is new work clearly distinguishable from original fabric — either through design, material, or detailing — without creating a false impression of heritage character?
New additions must not create a false impression of authenticity. They must be distinguishable from the original while being compatible in form, scale, character, and materials.
Art. 22 — Retention of Significant Fabric
Has all fabric assessed as having high or exceptional significance been retained, and where removal is proposed, is it fully justified?
Demolition or removal of significant fabric requires extraordinary justification. The bar is very high — economic or practical inconvenience is not sufficient grounds.
Art. 10 — Conservation Activity Type
Has the appropriate conservation activity been correctly identified — preservation, restoration, reconstruction, adaptation, or interpretation?
The Burra Charter provides specific definitions for each conservation activity. Applying the wrong activity to a place risks inappropriate outcomes. Check that the activity type matches the significance and condition.
Art. 11 — Preservation
Where preservation is proposed, does it protect the existing fabric and halt deterioration without introducing materials or finishes that are alien to the place?
Preservation means maintaining the fabric in its existing form and retarding deterioration. It should be used when the evidence to support restoration is insufficient or the place is stable.
Art. 12 — Restoration
Where restoration is proposed, is it based on sufficient physical and documentary evidence, and does it avoid conjecture or invention?
Restoration means returning the existing fabric to a known earlier state by removing accretions or reassembling existing components. Invented or speculative restoration is not permitted.
Section Notes — Change to the Place
Section 05 of 07
Process &
Approvals
Burra Charter Articles 26, 29–32 — Process Requirements
The Burra Charter specifies that process — how decisions are made, documented, and monitored — is as important as the physical outcome. This section checks procedural compliance.
"The conservation process should be undertaken to professional standards and should be transparent and accountable."
Burra Charter, Article 32 (adapted)Art. 26.1 — Cautious Approach
Has a cautious approach been adopted — has the project proceeded from understanding and assessment before decisions were made about change?
The sequence matters: understand → assess significance → develop policy → then propose works. Jumping to design before understanding the place risks irreversible harm.
Art. 29 — Heritage Impact Statement
Has a Heritage Impact Statement (HIS) or equivalent heritage report been prepared or is one required for the proposed works?
An HIS is required for works to places on the VHR, Heritage Overlays (in most councils), and Commonwealth listed places. It should demonstrate how the proposal responds to significance and policy.
Art. 29 — Permit / Consent
Have the required statutory approvals been identified, applied for, or obtained before works commence?
Works to listed places typically require: Heritage Victoria permit (VHR), council planning permit (HO), or both. Works without consent may be unlawful and may result in enforcement action.
Art. 30 — Qualified Practitioners
Are qualified heritage practitioners engaged to undertake or oversee the heritage-related aspects of the project?
Heritage Victoria and most councils require that heritage reports and assessments are prepared by suitably qualified persons — typically architects or heritage consultants with demonstrated heritage expertise.
Art. 32 — Recording Before Works
Has the place been recorded (photographically and in measured drawings or equivalent) before any works commence, particularly where significant fabric will be affected?
A pre-works record is required to document what exists before works alter or remove fabric. The level of recording should be proportionate to the significance of the fabric.
Art. 32 — Monitoring During Works
Is there a plan for monitoring works as they proceed, including heritage oversight during construction for unexpected finds or conditions?
On-site heritage monitoring by a qualified practitioner may be required during excavation, demolition, or works to significant fabric. Conditions in permits typically specify this requirement.
Section Notes — Process & Approvals
Section 06 of 07
Practice
Standards
Burra Charter Articles 3, 4, 22–25 — Conservation Practice
This section checks whether the technical approach to conservation meets the standard of practice required by the Burra Charter — covering materials, methods, and conservation quality.
"Conservation requires the retention of an appropriate visual setting and other relationships that contribute to the cultural significance of the place."
Burra Charter, Article 8Art. 4 — Maintenance
Is a maintenance regime in place or proposed to prevent deterioration of significant fabric — particularly for elements that are vulnerable or at risk?
Maintenance is continuous protective care and is the preferred approach to conservation. Lack of maintenance commonly leads to deterioration that then requires more invasive interventions.
Art. 22–23 — Materials Compatibility
Are proposed conservation materials compatible with existing significant fabric — particularly in terms of thermal expansion, porosity, and chemical compatibility?
Incompatible materials (e.g. cement mortar on lime construction, non-breathable membranes on rubble walls) can cause greater damage than the original problem. Specialist advice should be sought.
Art. 24 — Services and Infrastructure
Where new services are proposed (electrical, hydraulic, mechanical, fire), have they been routed and detailed to minimise impact on significant fabric?
New building services are one of the most common causes of damage to heritage fabric. Routes must be planned to avoid significant elements, with reversible fixings and concealment that does not damage fabric.
Art. 25 — Setting Retention
Does the proposal retain the visual relationships, setting, and landscape elements that contribute to the cultural significance of the place?
Works that alter the visual setting — new additions visible from public domain, removal of landscape elements, changes to the streetscape — can diminish significance even when the fabric itself is retained.
Art. 3 — Significance Retention
Overall, does the project retain and transmit the cultural significance of the place to future generations?
The fundamental test of any work at a heritage place: does the outcome conserve cultural significance? If the project does not pass this test, it requires fundamental reconsideration.
Section Notes — Practice Standards
Section 07 of 07
Interpretation &
Documentation
Burra Charter Articles 25, 32 — Interpretation and Records
Interpretation communicates the cultural significance of the place to others. Documentation ensures the work is recorded for future reference and forms part of the ongoing record of the place's history.
"Interpretation means all the ways of presenting the cultural significance of a place."
Burra Charter, Article 1.14Art. 25 — Interpretation Strategy
Is there an interpretation strategy or plan that explains the cultural significance of the place to users, visitors, or the public?
Interpretation may include signage, publications, guided tours, digital media, or integrated design elements. It should be proportionate to the significance of the place and the level of public use.
Art. 25 — Interpretation Accuracy
Is interpretation factually accurate, based on documented evidence, and does it avoid misrepresenting or oversimplifying the place's significance?
Interpretation must not create a false or misleading impression. It should acknowledge what is not known as well as what is, and must reflect current understanding of significance.
Art. 32 — Post-Works Documentation
Is there provision for a works record — including as-built drawings, photographs of works in progress, and a conservation log — to be maintained and lodged with the relevant authority?
A post-works record is required by Heritage Victoria for permit-triggered works. It documents what was done and should be lodged within six months of project completion. Similar requirements apply under many local Heritage Overlays.
Art. 32 — Archival Records
Have all research materials — historical documents, photographs, drawings, reports — been archived in a manner accessible for future heritage work?
Research materials are part of the ongoing record of a place. They should be stored accessibly (e.g. lodged with the Public Record Office Victoria, local history collection, or maintained by the owner) for future reference.
Section Notes — Interpretation & Documentation
Assessment Summary
Assessment
Summary
Review all considerations below. Items marked Not Met require attention before the project can proceed in accordance with the Burra Charter.
Project Details