Bushells Building

Item details


Name of item:	Bushells Building
Other name/s:	part address 122-142 Gloucester Street (Bushell's)
Type of item:	Built
Group/Collection:	Commercial
Category:	Factory/ Plant
Location:	Lat: -33.8623092546 Long: 151.2065508460
Primary address:	121-127 Harrington Street, The Rocks, NSW 2000
Parish:	St Philip
County:	Cumberland
Local govt. area:	Sydney
Local Aboriginal Land Council:	Metropolitan

Property description

Lot/Volume Code	Lot/Volume Number	Plan/Folio Code	Plan/Folio Number
LOT	15	DP	69475
LOT	16	DP	69475
LOT	17	DP	69475
LOT	18	DP	69475
LOT	27	DP	69475
LOT	28	DP	69475
LOT	29	DP	69475
LOT	3	DP	69475
LOT	30	DP	69475
LOT	A	DP	74976

Boundary:

Eora

All addresses

Street Address	Suburb/town	LGA	Parish	County	Type
121-127 Harrington Street	The Rocks	Sydney	St Philip	Cumberland	Primary Address

Owner/s

Organisation Name	Owner Category	Date Ownership Updated
Place Management NSW	State Government

Statement of significance:


	The Bushells Building and site are of State heritage significance for their historical and scientific cultural values. The site and building are also of State heritage significance for their contribution to The Rocks area which is of State Heritage significance in its own right. The Bushells Building is of heritage significance for its associations with a prominent and important Australian business enterprise, maker of a nationally-ubiquitous staple food product (tea), and whose principal, P H Bushell, is notable for his contributions to Australian commerce, social life and philanthropy in the 20th century. With its occupancy and as an important source of employment for Rocks residents over 50 years, the building remains a physical and social landmark within the historic fabric of The Rocks, providing evidence of the area's later development after the Plague clearances and before modern redevelopment activities. The building's contribution to the streetscape of Harrington and Gloucester Streets is significant in the recognised important townscape character of both those streets. The building still displays its ability to illustrate its designed purpose and use for Bushells, through its retention of a significant amount of the original tea-making equipment, and is of interest for both its design and construction techniques, all of which would appear to be compatible with adaptive re-use. (Moore 1991: 86)
	Date significance updated: 30 Mar 11
	Note: The State Heritage Inventory provides information about heritage items listed by local and State government agencies. The State Heritage Inventory is continually being updated by local and State agencies as new information becomes available. Read the Department of Premier and Cabinet copyright and disclaimer.

Description


Designer/Maker:	H E Ross & Rowe
Builder/Maker:	A C Lewis Constructions (Concrete Constructions)
Construction years:	1924-1925
Physical description:	The building is a seven-storey structure, comprising a basement with six levels above. At basement level the building covers the whole of its site, while from the level immediately above the basement its plan is indented by light wells to the north and south elevations, much the larger of these being the south well. The building uses a typical form of construction for its medium rise, warehouse type and for its date; load-bearing brick perimeter walls, pierced by many window openings, enclose an internal timber frame of heavy but not massive scantlings, which is further stabilised by the two brick-walled, reinforced concrete stair towers, to the eastern and western sides. (Moore 1991: 9 and also 9-27) Storeys: Seven; Facade: Load bearing bonded brickwork.; Roof Cladding: Galvanised iron.; Floor Frame: Timber/Reinforced concrete.; Lifts: Wooden-framed tea chest elevator; steel-framed chest elevator; passenger and good lifts.
Physical condition and/or Archaeological potential:	The building was in good condition considering its age, constituent materials, construction method, and the virtual absence of protective maintenance for almost 20 years. (Moore 1991: 24-27) Extensive work for the adaptive reuse of the building was undertaken in 1999, involving conservation and maintenance work. Much of the archaeology which demonstrates the former use by Bushells Tea Ltd. and the processes involved have been retained. The adaptive resue won four awards in 2002. Archaeology Assessment Condition: Partly disturbed. Assessment Basis: Although the building has basements on the Gloucester St frontage, photographs from c1900 show a retaining wall some 4-5 metres up to Gloucester St, earlier structures being level with Harrington St. Therefore possibly well preserved remains. Investigation: Industrial study
	Date condition updated:03 Nov 99
Modifications and dates:	1936-37: A modernisation of the Board Room. 1950: The 'Voucher Room' was removed to make way for some executive parking on the basement floor. 1962: A formal Development Application for use of the premises for 'tea packing and delivery'. c1970 (with the sale of the building to the Authority) - Some demolition seems to have been pursued on the uppermost floor. Its basement floor with access from Harrington Street was adapted to serve as a commercial carpark. 1999: The building was refurbished to turn it into office accomodation. This adaptive reuse of the building retained significant fabric both of the building and its equipment. This won four awards in 2002.
Further information:	The adaptive reuse of the Bushells Building won the following awards 2002 Australian Property Institute Property Industry Award 2002 Australian Property Institute Heritage Award (Highly Commended) 2002 Property Council of Australia (NSW) Rider Hunt Award for Excellence (Highly Commended) 2002 NSW Urban Taskforce Award for Development Excellence (Highly Commended) 2001 UNESCO Asia Pacific Heritage Award for Distinction


Current use:	Offices
Former use:	Aboriginal land, town lot, Industrial: Warehouse / Manufacturing

History

Historical notes:

The "Eora people" was the name given to the coastal Aborigines around Sydney. Central Sydney is therefore often referred to as "Eora Country". Within the City of Sydney local government area, the traditional owners are the Cadigal and Wangal bands of the Eora. There is no written record of the name of the language spoken and currently there are debates as whether the coastal peoples spoke a separate language "Eora" or whether this was actually a dialect of the Dharug language. Remnant bushland in places like Blackwattle Bay retain elements of traditional plant, bird and animal life, including fish and rock oysters (Anita Heiss, "Aboriginal People and Place", Barani: Indigenous History of Sydney City http://www.cityofsydney.nsw.gov.au/barani).

With the invasion of the Sydney region, the Cadigal and Wangal people were decimated but there are descendants still living in Sydney today. All cities include many immigrants in their population. Aboriginal people from across the state have been attracted to suburbs such as Pyrmont, Balmain, Rozelle, Glebe and Redfern since the 1930s. Changes in government legislation in the 1960s provided freedom of movement enabling more Aboriginal people to choose to live in Sydney (Anita Heiss, "Aboriginal People and Place", Barani: Indigenous History of Sydney City http://www.cityofsydney.nsw.gov.au/barani).

The land that was to become the site of the Bushells building formed part of a locale known as Frog Hollow, and area of simple terraces and cottages. The suggestion of a watercourse in the early plans may explain the nickname, which appears to be given to many marshy localities in Sydney and other towns in Australia. From the vicinity of the intersection of Grosvenor and Cumberland Streets originated a small creek, which flowed across the northwest corner of 'Frog Hollow'. In photographs held in Health Department Record there is a record of the appearance of the simple terraces and cottages on the site, including a row skewed across the land on a northeast-southwest line. These were just the sort of development the government was anxious to replace. As a locality it was known for its absentee ownership, slum rental dwellings, poor drainage and lingering stench. Following the outbreak of the plague in 1900, these buildings were demolished by the Rocks Resumption Board and subsequently by the Sydney Harbour Trust. A major redevelopment of the entire area was undertaken.

St Patrick's Church and School were able to expand its site and the State Clothing Factory was developed in 1909 between the Bushells site and the Church lands, Harrington Street was realigned at its junction with Essex Street. Attempts to auction some of the Resumption Lands on a leasehold basis in1905 were unsuccessful.

The Harrington Street site appears to have been acquired by Bushells c.1920 with the building subsequently completed and occupied by 1924-25. The Company acquired the site from the Sunday Times Newspaper Company, which had purchased it the previous year from the Housing Board of NSW. Sydney City Council Archives record Building Application No.136/23 of 15 the February 1923 in respect to a warehouse at this site. Apart from minor changes, the building was to remain virtually unaltered while P H Bushell remained in charge of the business. Changes were made to plant, equipment and servicing, but not to the essential placement of functions within the building.

With sale of the building to the Sydney Cove Redevelopment Authority c.1974 and subsequent departure of the company to new premises at Concord in 1975, the building was vacated. In 1990 the building was occupied as site offices during construction of a nearby commercial project on a site within the Sydney Cove Redevelopment Authority's area. The first level above basement, above Harrington Street but below Gloucester, was appropriated as the principal offices with some temporary amenities and associated plumbing introduced, while two further levels above were partitioned off, had further toilet areas added.

In November, 1998 the a 99 year lease for the property was assigned to a private company by the Sydney Harbour Foreshore Authority, with development consent for refurbishment for its use as offices, in accordance with the requirements of the Conservation Plan. Work commenced on this refurbishment in late 1999. The adaptive reuse of the building and retention of significant fabric won four awards in 2002.

[Archaeology History - The Bushells Building was constructed in 1923-1925 on the site of "Frog Hollow", a collection of domestic buildings dating to the 1820s and demolished as part of the Resumptions in 1900. Bushells remained on the site until 1975.]

Historic themes

Australian theme (abbrev)	New South Wales theme	Local theme
1. Environment-Tracing the evolution of a continent's special environments	Environment - naturally evolved-Activities associated with the physical surroundings that support human life and influence or shape human cultures.	Changing the environment-
3. Economy-Developing local, regional and national economies	Commerce-Activities relating to buying, selling and exchanging goods and services	(none)-
3. Economy-Developing local, regional and national economies	Commerce-Activities relating to buying, selling and exchanging goods and services	Developing discrete retail and commercial areas-
3. Economy-Developing local, regional and national economies	Commerce-Activities relating to buying, selling and exchanging goods and services	Developing Commercial Enterprise-
3. Economy-Developing local, regional and national economies	Commerce-Activities relating to buying, selling and exchanging goods and services	Storing goods-
3. Economy-Developing local, regional and national economies	Environment - cultural landscape-Activities associated with the interactions between humans, human societies and the shaping of their physical surroundings	Developing local, regional and national economies-National Theme 3
3. Economy-Developing local, regional and national economies	Environment - cultural landscape-Activities associated with the interactions between humans, human societies and the shaping of their physical surroundings	Landscapes of urban amenity-
3. Economy-Developing local, regional and national economies	Industry-Activities associated with the manufacture, production and distribution of goods	Extracting and processing botanical compounds-
3. Economy-Developing local, regional and national economies	Industry-Activities associated with the manufacture, production and distribution of goods	(none)-
3. Economy-Developing local, regional and national economies	Industry-Activities associated with the manufacture, production and distribution of goods	Manufacturing beverages-
3. Economy-Developing local, regional and national economies	Industry-Activities associated with the manufacture, production and distribution of goods	Factories-
4. Settlement-Building settlements, towns and cities	Accommodation-Activities associated with the provision of accommodation, and particular types of accommodation – does not include architectural styles – use the theme of Creative Endeavour for such activities.	Building settlements, towns and cities-National Theme 4
4. Settlement-Building settlements, towns and cities	Accommodation-Activities associated with the provision of accommodation, and particular types of accommodation – does not include architectural styles – use the theme of Creative Endeavour for such activities.	A Picturesque Residential Suburb-
4. Settlement-Building settlements, towns and cities	Accommodation-Activities associated with the provision of accommodation, and particular types of accommodation – does not include architectural styles – use the theme of Creative Endeavour for such activities.	Federation era office building-
4. Settlement-Building settlements, towns and cities	Land tenure-Activities and processes for identifying forms of ownership and occupancy of land and water, both Aboriginal and non-Aboriginal	Early land grants-
4. Settlement-Building settlements, towns and cities	Land tenure-Activities and processes for identifying forms of ownership and occupancy of land and water, both Aboriginal and non-Aboriginal	Changing land uses - from suburban to urban-
4. Settlement-Building settlements, towns and cities	Land tenure-Activities and processes for identifying forms of ownership and occupancy of land and water, both Aboriginal and non-Aboriginal	Resuming private lands for public purposes-
4. Settlement-Building settlements, towns and cities	Land tenure-Activities and processes for identifying forms of ownership and occupancy of land and water, both Aboriginal and non-Aboriginal	Changing land uses - from rural to suburban-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	Early Sydney Street-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	19th century suburban developments-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	20th century Suburban Developments-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	Developing suburbia-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	Role of transport in settlement-
4. Settlement-Building settlements, towns and cities	Towns, suburbs and villages-Activities associated with creating, planning and managing urban functions, landscapes and lifestyles in towns, suburbs and villages	Developing ports-
7. Governing-Governing	Government and Administration-Activities associated with the governance of local areas, regions, the State and the nation, and the administration of public programs - includes both principled and corrupt activities.	State government-
7. Governing-Governing	Government and Administration-Activities associated with the governance of local areas, regions, the State and the nation, and the administration of public programs - includes both principled and corrupt activities.	Colonial government-
7. Governing-Governing	Government and Administration-Activities associated with the governance of local areas, regions, the State and the nation, and the administration of public programs - includes both principled and corrupt activities.	Suburban Consolidation-
7. Governing-Governing	Government and Administration-Activities associated with the governance of local areas, regions, the State and the nation, and the administration of public programs - includes both principled and corrupt activities.	Developing roles for government - administration of land-
7. Governing-Governing	Government and Administration-Activities associated with the governance of local areas, regions, the State and the nation, and the administration of public programs - includes both principled and corrupt activities.	Developing roles for government - town and country planning-
8. Culture-Developing cultural institutions and ways of life	Creative endeavour-Activities associated with the production and performance of literary, artistic, architectural and other imaginative, interpretive or inventive works; and/or associated with the production and expression of cultural phenomena; and/or environments that have inspired such creative activities.	Industrial buildings-

Assessment of significance


SHR Criteria a) [Historical significance]	First and foremost the building was built for and occupied by one of the most high-profile Australian food manufacturers, maker of some of the most popular and ubiquitous brand-name staple products in the nation. In addition to the associational value of that link, the building and its contents provide direct evidence of the operations of that Company and of the attitudes and approach of its principal figure. The building's location and occupation in The Rocks provide further evidence of the historical development of the area, across the 20th century. (Moore 1991: 81-82) The historic significance of the building is derived from its historic associations, architectural historical value, industrial archaeological value and social historical value. The Bushells building has historic associations with the archetypal Australian food manufacturer whose brand name has become a national identity. The buildings location and occupation in The Rocks provides further evidence of the historical development of the area. In terms of architectural value the building is significant for its associations with the prominent architects of commercial buildings of the day, HE Ross and Rowe. The building is of a simple 19th Century utilitarian warehouse style dressed in a Classical styling to the main facades. The building is similar to a number of industrial building built at the same time, however many warehouses have been lost to redevelopment in Sydney. The Bushells building provides a rare example of a warehouse that has remained unusually intact in it original ownership and with its original intended use. Its timber construction is a remnant of 19th century building technique, which was soon to become less common with the introduction of more economical reinforced concrete frame. The industrial archaeological value is derived from the buildings capacity to illustrate the former function for which it was built and which it served to house for over fifty years. The main elements of industrial archaeological value are found in the modest evidence of former packing line activities seen in the buildings floors and in the extensive evidence of the materials handling methods, as shown in the loading and receiving docks, the horizontal conveyor, the lifts and chutes and especially the two purpose built tea chest elevators (which would be the buildings most significant artefacts). An understanding of the social historical value of the Bushells building can still be gained through its special remnant qualities, which can demonstrate the attitudes and approaches to the workplace throughout its history. The interpretation of the social value may be possible through the conservation of the unique fabric, particularly the surviving signage inside the building and historical signage.
SHR Criteria b) [Associative significance]	The Bushells building is of cultural significance for its association with a prominent and important business enterprise, maker of a nationally ubiquitous staple food product -tea, and whose principle, PH Bushell, is notable for his contributions to Australian commerce, social life and philanthropy in the 20th century. The company was an important source of employment for Rocks residents over 50 years, the building remains a physical and social landmark with the historic fabric of the Rocks, providing evidence of the area's later development after the plague clearances and before modern redevelopment activities. The building's contribution to the streetscape of Harrington and Gloucester Streets is significant in the recognised important townscape character of both those streets
SHR Criteria c) [Aesthetic significance]	The building's simple, massive form, coupled with all its material characteristics which identify it as 'an old building' is distinctive within its context and appreciable from many viewpoints in The Rocks vicinity; The interiors or the building together with its massive timber framing are very impressive and almost universally encourage discussion of what new use might be made of them. Parts of the surviving equipment have an abstract quality and they make to the impression that the building's interiors give, of a former working industrial warehouse/factory. (Moore 1991: 81) The aesthetic significance of the building is clear in that it is a distinctive landmark building in the context of the Rocks. Its simple massive form is impressive and is complemented by the industrial warehouse spaces of the interior, which are large, will lit open expanses with expressive timber framing. The surviving equipment provides a unique sculptural quality and contributes to the interpretation and understanding of the former industrial warehouse.
SHR Criteria d) [Social significance]	The building had landmark status as one of the commercial institutions of the Rocks, and the Company enjoyed community and employee regard as a benevolent employer. Bushells as a Company retains symbolically Australian connotations despite offshore ownership, and the place held by the building, particularly with its prominent signage on the north wall, in the collective imagination of Sydney could be easily underestimated. Moore 1991: 84) Attempts to gain an understanding of the social value (contemporary, community esteem) of the Bushells building would be difficult. However, Bushells has become a symbolically Australian name, arousing a sense of nostalgia in the general community. This may be gained particularly from the prominent signage on the exterior of the building.
SHR Criteria e) [Research potential]	The principles capacities of the Bushells Building to inform must lie within the historical and archaeological information that its fabric retains and displays, although there may be some interest in the physical performance of its components parts and structure. (Moore 1991: 84) The building is similar to a number of industrial building built at the same time, however many warehouses have been lost to redevelopment in Sydney. The Bushells building provides a rare example of a warehouse that has remained unusually intact in it original ownership and with its original intended use. Its timber construction is a remnant of 19th century building technique, which was soon to become less common with the introduction of more economical reinforced concrete frame. The industrial archaeological value is derived from the buildings capacity to illustrate the former function for which it was built and which it served to house for over fifty years. The main elements of industrial archaeological value are found in the modest evidence of former packing line activities seen in the buildings floors and in the extensive evidence of the materials handling methods, as shown in the loading and receiving docks, the horizontal conveyor, the lifts and chutes and especially the two purpose built tea chest elevators(which would be the buildings most significant artefacts). The surviving archaeological objects; tea chest lifts, chutes and tea mixing hopper provide intriguing and powerful three dimensional artefacts of the past process of tea manufacture.
SHR Criteria f) [Rarity]	The Bushells building is a landmark within the historic Rocks area. The bulding is important for its industrial character and its historical association with the Bushells company. The building is important as it maintianed the same use for the same company for 1923 to 1975 and retains many of its industrial manufacturing features. The builgins is important in the understanding of the development of local industry in Sydney, it contains rare evidence that all forms of manufacture and food production once occurred with the industrial fringe of Sydney's Central Business District.
Integrity/Intactness:	Archaeology partly disturbed.
Assessment criteria:	Items are assessed against the State Heritage Register (SHR) Criteria to determine the level of significance. Refer to the Listings below for the level of statutory protection.

Recommended management:

Bushells Building should be conserved and used for purposes compatible with the importance and significance of its fabric. The Exterior of the building should be conserved and presented in accordance with the maintenance and presentation of the building c.1924-1974 by Bushells Ltd. Use and adaptation for use of the building's interiors should have the utmost regard to the conservation of the building's fabric and the evidence of the building's previous use by Bushells Ltd. All decisions with regard to the management of the building should be made with reference to the Burra Charter. Above ground archaeological remains: A conservation plan is recommended. Below ground archaeological remains: An archaeological assessment is recommended.

Procedures /Exemptions

Section of act	Description	Title	Comments	Action date
57(2)	Exemption to allow work	Standard Exemptions	HERITAGE ACT 1977 ORDER UNDER SECTION 57(2) TO GRANT STANDARD EXEMPTIONS FROM APPROVAL I, Penny Sharpe, the Minister for Heritage, on the recommendation of the Heritage Council of New South Wales and under section 57(2) of the Heritage Act 1977: revoke the order made on 2 June 2022 and published in the Government Gazette Number 262 of 17 June 2022; and grant an exemption from section 57(1) of the Act in respect of the engaging in or carrying out the class of activities described in clause 2 Schedule A in such circumstances specified by the relevant standards in clause 2 Schedule A and General Conditions in clause 3 Schedule A. This Order takes effect on the date it is published in the NSW Government Gazette. Dated this 29th day of October 2025 The Hon Penny Sharpe MLC Minister for Heritage For more information on standard exemptions click on the link below.	Nov 7 2025

Standard exemptions for engaging in or carrying out activities / works otherwise prohibited by section 57(1) of the Heritage Act 1977

Listings

Heritage Listing	Listing Title	Listing Number	Gazette Date	Gazette Number	Gazette Page
Heritage Act - State Heritage Register		01534	10 May 02	85	2865

Study details

Title	Year	Number	Author	Inspected by	Guidelines used
SCA Register 1979-1998	1998	B093, AR107	Sydney Cove Authority (SCA)		Yes

References, internet links & images

Type	Author	Year	Title
Written	Higginbotham, Kass & Walker	1991	The Rocks and Millers Point Archaeological Management Plan
Written	National Trust of Australia (NSW) I Hayes	1995	National Trust Register
Written	Robert A Moore P/L	1991	A Conservation Plan for The Bushells Building, 121-127 Harrington Street, The Rocks
Written	Rooney Bye (Philip Butcher)	1998	Dilapidation Report
Written	SCA	1991	Bushell Building - Development Brief
Written	Sydney Harbour Foreshore Authority	1999	Annual Report
Written	Tanner & Associates	2002	Heritage Impact Statement. Proposed Partition of Office Space. Bushells Building Redevelopment
Written	Tanner & Associates	2001	Management Plan: Bushells Building Redevelopment, 121-127 Harrington St

Note: internet links may be to web pages, documents or images.

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Data source


The information for this entry comes from the following source:
Name:	Heritage NSW
Database number:	5053149

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