A decision on the controversial World War I and World War II memorials proposed for Anzac Parade is unlikely before 2013.
The National Capital Authority released its report on the development yesterday but said it would not submit the report to the Canberra National Memorials Committee until the government responded to a review of national memorials.
The final decision on whether the memorials can go ahead will be left to the Canberra National Memorials Committee headed by the Prime Minister.
But the NCA report recommends that any decision about the memorials consider the mandatory assessment criteria in the Guidelines for Commemorative Works in the National Capital (2002) that say, ''A commemorative proposal must not duplicate the themes or subject matter of an existing commemorative site''.
Chief executive Gary Rake said the Australian War Memorial and RSL were split on the issue.
''The Australian War Memorial believes there is duplication with the themes and subject matter of the proposed memorials, while the RSL has a long-standing policy to support proposals for all war memorials,'' Mr Rake said.
''[Our] advice will be that you have to consider duplication. The NCA didn't give advice to the committee when it first considered the matter, we are now giving that advice and that advice is: the AWM believes it's duplication and it will be for the committee to decide if the project proceeds or not.''
But spokesman for the Lake War Memorials Forum, David Stephens, said the view of the national RSL did not reflect the views of local servicemen and women.
''The ACT RSL passed a motion in April 2011 not supporting the proposed new memorials in Canberra,'' Dr Stephens said.
''We are against the proposed memorials and in favour of the existing role of the Australian War Memorial.
''In 2005, the NCA ignored its own rules and now finally in 2012 they are drawing the attention of the CNMC to these guidelines that prohibit new projects duplicating the themes and subject matter of an existing commemorative site.''
The proposed 20-metre-high memorials originally had an approved design and site allocation at Rond Terraces at the foot of Anzac Parade.
Following a public outcry about the size and location of the monuments, their proponents, a group called the Memorials Development Committee, reduced the design of the monuments from 20 metres to 15 metres, then a 12-metre-high cap was imposed.
Mr Rake said the NCA consultation received 29 written submissions and more than 400 comments.
''We would hope to put this report before the National Memorials Committee before the end of 2012. We are waiting for the government to respond to the Etched in Stone report prepared by the joint standing committee on the national capital and external territories into the administration of national memorials - we think it would be appropriate to wait until after government has responded,'' he said.