Historic Structure Reports: A Redefinition

Transcription

1 B U L L E T I N Volume 13: No. 4 Cultural Resoures Management National Park Servie 1990 A Tehnial Bulletin for Parks, Federal Agenies, States, Loal Governments, and the Private Setor Histori Struture Reports: A Redefinition Billy G. Garrett First, and foremost, a Histori Struture Report (HSR) should e a referene doument that an e used in onjuntion with other information to minimize the loss of signifiant material or harater when making deisions that will affet a histori struture. The effort dediated to preparation of a HSR should reflet the level of signifiane of the struture, the potential impat of a pending deision on the struture, and the availaility of information aout the struture. Flexiility should e enouraged in formatting HSRs to allow reuse of existing researh and to maximize ommuniation etween CRM professionals and park managers. In January, hief historial arhitet Mihael Adlerstein and hief historian Ed Bearss onvened a task fore to assess the ways in whih the National Park Servie prepares Histori Struture Reports (HSRs) and to draft reommendations for improvement, for onsideration of the NPS-28 task fore. The HSR task fore was asked to respond to three questions: When are HSRs needed? What information is essential for a HSR? What is the relationship etween HSRs and HSARs? Impliit in reating the task fore was the assumption that either the urrent guideline (NPS-28, Release No. 3) does not adequately answer these questions or the guideline is misunderstood. The hallenge for the task fore was to examine this assumption and identify profitale hanges that might e made in either the guideline or its appliation. Some modifiations were learly in order eause of program developments sine NPS-28 was last revised in For example, Histori Struture Assessment Reports (HSARs) were introdued to the Servie in 1989 as part of the Inventory and Condition Assessment Program (ICAP). Although rereading the guideline was an essential part of the work of the task fore, a more ritial aspet of their work was to judge how it is eing applied. With this in mind, Adlerstein and Bearss rought together a small group of professionals who had first-hand experiene in preparation and review of HSRs, and provided geographi diversity and different institutional ontexts from parks to regions to the servie enters. The following people served on the HSR task fore: Billy Garrett, hair (Southeast Region) Ri Borjes (Golden Gate National Rereation Area) Blaine Cliver (North Atlanti Region) Rik Cronenerger (Roky Mountain Region) Dave Snow (Denver Servie Center) Stephanie Toothman (Paifi Northwest Region) Randy Biallas, assistant hief historial arhitet (WASO), served as staff liaison to the task fore. Ed Bearss; John Deo, superintendent of Cuyahoga Valley National Rereation Area; and Mihael Adlerstein served as an advisory ommittee. The task fore did not approah its work as a theoretial exerise ut as a pratial one. This ias is evident in a numer of asi topis whih were addressed repeatedly y the group: What is the intent ehind reation of a HSR? How are HSRs normally prepared and what new ways might e explored? Why has the existing guideline not een suessful in limiting the sope of HSRs? From the answers to these questions the task fore gradually developed a omprehensive impression of the interfae etween theory and pratie in preparation and use of HSRs. Analysis of this information and resultant reommendations (Continued on page 2) See Speial Insert inside, The Alliane Review

2 Shematis suh as these strutural loading diagrams an provide useful referene data if inluded in the HSR. Histori Struture Reports (Continued from page 1) have een summarized in the form of a oneptual model. The task fore report and four ommentaries omprise a speial group of artiles prepared for this issue of the CRM Bulletin. This author first explains the urrent HSR guidelines and then desries the oneptual model, along with a disussion of the task fore reommendations. The following questions should e onsidered while reading these reommendations. Does the proposed model strike an appropriate alane etween use of the HSR as a referene doument for researhers and use as deision guide for managers? Serviewide, there are massive amounts of fragmented information already in existene aout histori strutures. Would the onept of a "referene file" help give order to that information on a struture-ystruture asis, or would it add to the onfusion y reating another ureaurati lael? The Task Fore proposes that individual HSRs e prepared for interim as well as ultimate treatments, and for uilding features as well as the entire struture. Would this e ost effetive? Would it etter protet histori strutures? After appropriate hanges have een made to the guideline, how should it e implemented? Would training and distriution of exemplary 2 douments really hange the ways in whih managers make deisions and professionals use information? Should the level of effort for a given HSR e determined on the asis of professional judgment or presriptions set out in the guideline? How an we set limits on researh and "design" without loss of professional rediility or adverse effet on the resoures? Should HSRs ontain preliminary drawings or stop at the level of detailed shematis? Would this redue the ost of HSRs? Would there e any "hidden osts"? While the report addresses most of the onlusions of the task fore, it does not ontain all of the issues disussed y the group nor does it represent a onsensus position. Neither does it outline speifi hanges whih might e made in NPS-28. More than anything else, the report is an attempt to provide a omprehensive look at the way this key doument funtions in the preservation proess. Individual parts of the model might e modified efore it is "institutionalized," ut it is hoped that this pratial viewpoint will not e lost. In this spirit, the four artiles whih follow the task fore report address related issues. Randy Biallas provides a rief hronology of the development of the HSR y the National Park Servie with speifi attention to hanges in the organization and ontent of the doument. Mihael Adlerstein updates the ontext of HSRs with a reminder that omputers, dataases, and systems theory are no longer something of the future ut are asi to ontemporary preservation work. Stephanie Toothman disusses the ways in whih HSRs might help address our responsiilities for ompliane with preservation law. And finally, Dave Snow deals in some detail with the levels of design that are appropriate to HSRs. The fat that the task fore did not reah omplete agreement on all of the relevant questions is less of an inditment against the group than it is a refletion of the omplexity and sensitivity of the issues that are involved. All of the partiipants on the task fore agreed that one of the enefits of this assignment was a etter understanding of how our individual praties differed from one another and from the guideline. From these differenes ame a greater appreiation for the variety of irumstanes in whih HSRs are produed and ountless ideas for improvements. The work y the task fore is only a first step toward potential hanges. We urge you to partiipate in this proess y sumitting your omments in the form of letters or artiles to the editor of the CRM Bulletin. Billy Garrett is the hief of the Histori Arhiteture Division, Southeast Region, NPS. He wrote the HSR task fore report and oordinated the preparation and puliation of the related artiles inluded in this issue of the CRM Bulletin No. 4

3 Current Guidelines for HSRs One of the asi planning douments used y the National Park Servie in management of histori strutures is the Histori Struture Report, usually referred to as the HSR. General diretion for preparation and use of HSRs is ontained in NPS-28, the serviewide guideline for ultural resoure management. Release No. 3 of NPS-28 states that an HSR "... is prepared whenever there is to e a major intervention into histori strutures or where ativities are programmed that affet the qualities and harateristis that make the properties eligile for inlusion in the National Register (NPS-28, Chapter 2, Page 21)." Purpose, Content, Restritions The guideline not only states when an HSR is to e prepared, it also lays out what kind of information is to e inluded in the doument and how that information is to e organized. Aording to the guideline, an HSR is to onsist of three elements: an administrative data setion, a physial history and analysis setion, and an appendix. The ontent of eah setion is desried in the Tehnial Supplement to NPS-28 (Chapter 5, Page 12). Beause it is the prevailing referene for preparation of HSRs y NPS personnel, this portion of the guideline is worth reviewing in detail. The administrative data setion is devoted to two topis: institutional referenes and the relationship etween the HSR and other planning douments. Referenes inlude the name of the struture, its management ategory, and struture numer, as well as identifiation of the planning doument in whih the ultimate preservation treatment of the struture was estalished. The setion goes on to address suh issues as storage of arhival material olleted during preparation of the report and justifiation for the proposed treatment or reommendations for hanges in the proposed treatment. The ulk of the HSR is ontained within the seond setion. As outlined in the urrent guideline, this setion is required to address the following topis: 1. The signifiane of the struture and its setting. 2. The appearane, oupation, and use of the struture and its setting. 3. A desription and reord of existing onditions. 4. An evaluation of the impat of the proposed use on the integrity of the struture. 5. An engineering report on safety and load-earing limits. 6. Identifiation and analysis of signifiant fators affeting preservation of the struture. 7. Reommended steps for preservation treatment, the asis for suh reommendations, and preliminary design drawings. 8. The impat of the proposed ation on the struture with reommendations to avoid or mitigate potential adverse effets. 9. Estimates of the ost to arry out reommendations. 10. Reommendations for further study. The appendix ontains information aout materials analysis, assessment of future researh potential, an annotated iliography, and information aout histori furnishings unovered during the study ut unrelated to the treatment disussed in the report. Although a great deal of time would e needed to meet all of the requirements outlined in the Tehnial Supplement, ommon sense suggests that the level of effort devoted to an HSR should vary from one situation to another. In fat, NPS-28 states that researh effort in ultural resoure planning should reflet (a) the adequay of existing information, () the need for additional information, () the nature and signifiane of the affeted resoures, and (d) the extent to whih the resoures may e affeted y proposed plans or ations (NPS-28, Chapter 2, Page 11). To aid in implementation of this onept, the guideline identifies three levels of histori investigation and three levels of struture investigation (Tehnial Supplement, Chapter 4, pages 6 & 8). In oth systems the levels are haraterized as: "exhaustive," "thorough," and "limited." Signifiane, ondition, and level of treatment are given as the primary fators upon whih a level of effort should e seleted. For example, exhaustive struture investigation is to e used when the proposed treatment is restoration or reonstrution, thorough non-destrutive investigation is alled for when the treatment is preservation, and limited non-destrutive investigation is appropriate when "... dealing with a partiular feature or aspet." Interpretation of the Guideline As urrently outlined, NPS-28 provides a road, flexile framework for preparation of HSRs. This framework takes into aount the planning system used y the Servie, the finanial onstraints, and the sometimes disparate needs of managers and their ultural resoure speialists. The lear intent of the guideline is for HSRs to e ost effiient, well defined, and professionally solid. HSRs are also intended to e "ation" douments spanning the gap etween planning and implementation. Unfortunately, these intentions are flawed in two signifiant respets. First, it is hard to limit an HSR using the provisions of NPS-28; they an e read to justify the ontent of almost any HSR. For example, one setion of the guideline seems to all for an exhaustive approah to information gathering, whereas another allows variale levels of effort ased on management needs. This asi ontradition is onfused even further y language in one hapter whih suggests that there should e a single HSR prepared to guide the ultimate treatment of the entire struture and language elsewhere whih suggests (Continued on page 4) 1990 No. 4 3

4 Current Guidelines for HSRs (Continued from page 3) that several HSRs should e prepared to guide a numer of interim treatments on various portions of the struture. The one requirement aout whih there seems to e no question is that the report should e written as an integrated narrative y an interdisiplinary team. In spite of these amiguities NPS staff have produed many HSRs that are of high quality, aeptale to management, and within reasonale udgets. There have also een a numer of HSRs whih were extremely expensive, of questionale value to management, and of poor quality. Beause of these prolem ases, many managers seem to think of HSRs as large, ostly douments that are essentially a ureaurati impediment to their work plans. Given a shortage of funds, limited staff time, and nagging douts aout the value of HSRs, there is a danger that some histori strutures might reeive treatment without suffiient researh and analysis. This would e poor resoure management and put the Servie outside of good preservation pratie, if not in violation of preservation law. Meanwhile, the workload for HSRs shows no indiation of lessening. In fat, with the addition of new units, suh as the Presidio, and the implementation of Serviewide onstrution initiatives, suh as the urrent housing program, the demand for HSRs is likely to inrease sustantially over the next few years. The seond major prolem with the guideline is that it plaes the HSR in a narrow slot etween planning and onstrution. This is perfetly logial given the funtion of an HSR as a deision doument. That is to say, one of the purposes of an HSR is to speify preservation work on a given resoure. But that is not the only funtion of an HSR. It is also a doumented referene aout the evolution of a struture, its historial integrity, the nature of its materials, its harater, and the potential effets of treatments on the struture. Of ourse, doumentation and reommendations for treatment are two sides of the same oin. The physial history and properties of a struture help explain the ondition of a struture and restrit the range of ations 4 that are appropriate for its preservation. This kind of information is useful at a numer of points along the planning-onstrution ontinuum as deisions are made inreasingly more speifi aout the use, treatment, and meaning of a struture in overall park development. Of all speial resoure studies addressed in NPS-28, only HSRs ontain information aout the physial integrity and ondition of a struture whih might limit its development. Yet, aording to the guideline, planning is to e ased on Histori Resoure Studies (HRSs) not HSRs. The potential for initial misdiretion is signifiant and should e a serious onern given the numer of new units with histori strutures that are eing added to the system. In summary, NPS-28 provides a good asis for developing HSRs ut fails in two ritial areas: (1) it does not ontain adequate guidane for setting upper and lower limits on aeptale HSRs and (2) it does not allow for development and use of HSRs in all those situations in whih the integrity of a struture should e a serious planning onern. These prolemati issues are most apparent when dealing with resoures at oth ends of the signifiane spetrum. What is the "minimum" HSR for rehailitation of a ontriuting struture in a loally signifiant histori distrit? When do we have enough information aout a ultural World Heritage site? How an information aout the integrity and ondition of a struture e inorporated in the general planning proess so that proposed uses are appropriate and ompatile? These are the most important of the questions that must e answered if we are to improve the preparation and use of HSRs. BGG A New Coneptual Model Preservation of signifiant qualities is at issue whenever a deision is made that ould affet a histori struture. Determination of use, seletion of paint olors, and approval of measures to provide handiapped aessiility are representative of this type of ativity. Although these deisions an e viewed as simply seletion of a ourse of ation, in pratie deisionmaking usually involves two other ativities initial onsideration of information aout the struture, and susequent development of implementation douments. Contextual Considerations Consider, as an example, the "management issue" of handiapped aessiility to a histori struture. The deision that the park superintendent must make is how est to aomplish this ojetive. Ideally, staff would analyze the prolem in terms of oth aessiility requirements and preservation onerns for the uilding in question. They would then generate alternative solutions to the prolem, evaluate the alternatives, and make a reommendation to the superintendent. The superintendent might follow the suggestions of staff, pik another of the alternatives, or hoose a ourse of ation that was not identified y the staff. One a solution had een approved, staff would refine and develop it to the point that it ould e aomplished. Preparation of design development drawings, onstrution douments, ost estimates, funding requests, and ompliane forms would all need to e done. The point is that although deisionmaking an e viewed narrowly as the seletion of a handiapped lift, it an also e viewed as a roader ativity extending from researh to implementation. The information assoiated with this roadened view of deision making (fat-finding, seletion of ation, implementation) losely parallels the ontent that is expeted in HSRs (physial history, development alternatives, treatment). Yet it is important to note that management of a histori resoure does not onsist of a single deision for example, to install a lift ut is an on-going proess omposed of many deisions 1990 No. 4

5 what use will go in the struture, will it e restored or adaptively used, et. It should also e reognized that the types of information needed in different plaes of deisionmaking are notaly different from one another, in large part eause they are used y people in quite different roles. Two asi onlusions an e reahed after onsideration of the ontext within whih HSRs are used. First, it is apparent that these douments are part of a larger planning proess. This proess is hierarhial and dynami, ut it is also integrated in the sense that past deisions have impliations for future ation and that information generated as part of an earlier deision is availale as akground for susequent onsideration. Seond, the information needs of individuals involved in resoure management vary aording to their respetive positions and their onomitant authority. For example, managers usually need a suint presentation of alternatives and their general impliations, whereas an arhitetural onservator or preservation speialist may require exhaustive, detailed tehnial data. The value of these ontextual insights is that they provide for refinement of the HSR without erosion of its primary values. The great danger in setting limits on the ontent of histori struture reports is that deisions will e made on the asis of inadequate information and that information aout urrent treatments will e lost to future investigators. Related prolems are inherent in any attempt to define when an HSR is needed. These onerns an e effetively nullified if proposed hanges fous on speifi information needs and reognize that HSRs are only one part of the overall information ase availale to managers. What is more, a fous on essential information is inherently eonomial eause, y definition, it redues exessive and redundant material. In onlusion, hanges in the guideline that would improve preparation and use of HSRs should e grounded in an appreiation of the doument as a referene for and reord of deisionmaking. Refinements should attend to the variety of information that is needed in the deisionmaking proess and to the information ase that is generated y the park planning proess. Finally, and perhaps most important, no hange should e onsidered whih would diminish the ultimate purpose of an HSR to maximize retention of histori harater and minimize loss of histori fari. Task Fore Reommendations Given the preeding disussion, how might the National Park Servie revise its approah to preparation and use of HSRs? The task fore on HSRs has identified nine measures as follows: Define an HSR as a referene doument that ontains any of three types of information aout a histori struture: (a) physial history and ondition, () alternative ways of meeting management ojetives, and () speifis of atual treatment. This provision is a diret refletion of the expanded view of deisionmaking disussed aove. There are, of ourse, lose parallels with the ontent alled for in the urrent guideline. What is different is the onept that an HSR does not need to ontain all three ategories of information. This is not to say that a single HSR might not address the entire physial history of a struture, reommend alternatives for its ultimate use, and doument that treatment. However, it would e equally valid for another HSR to fous on one period in the physial history of the struture, or to address just one major management issue. Of ourse, there are a numer of onditions whih would apply to the more restrited HSRs. These onditions are disussed later in this artile. However, as a matter of larifiation, it may e helpful here to point out that limits of ontent should e ased on the signifiane of the resoure, pending management issues, and the availaility of neessary information. For example, in the ase of an HSR that is onerned only with a single management issue, it would have to e assumed that relevant information aout the history and ondition of the struture was readily availale elsewhere. A rief synopsis of that data would e appropriate as akground for the disussion of alternative program developments. The heart of the doument would e the alternatives proposed as solutions for the issue and the evaluations of those alternatives. In effet, that partiular HSR would funtion as a reord of the planning proess. One impliation of this reommendation is that the ontent of an HSR should e organized to reflet the use and nature of the information ategories. This ould e aomplished y dividing the report into three asi setions. The task fore suggests that the first setion should e a management summary. It would ontain a onise summary of the findings, reommendations, or aomplishments elaorated upon in the ody of the doument. The seond setion of the report would fous on one or more of the three HSR information ategories (physial history, program development, and program implementation). The primary emphasis of this setion should e expressed in the su-title of the report. The final setion would e an appendix ontaining tehnial data and researh notes. This is the plae for administrative data, researh notes, materials analysis, et. Restrit the ontent of HSRs to information that ears diretly on histori fari and harater. Earlier guidelines have all disussed the respetive roles of historial arhitets, historians, arheologists, and urators in preparation of an HSR. Sine the interdisiplinary nature of ultural resoure management seems to e well estalished at this time, no speifi hanges appear to e needed in this area. However, all potential ontriutors to an HSR should e guided y a prosription against researh that does not ontriute to an understanding of the ondition and integrity of a histori struture. In partiular, historial researh should fous on the development and use of the struture and restrit roader sale investigations to the minimum needed to estalish or onfirm the signifiane of the struture. Limit the sope of an HSR aording to the availaility of information in other onvenient soures. Every park and regional offie has a ody of existing information aout histori strutures. This information ase might inlude old HSRs or parts of HSRs, researh notes, measured drawings, photographs, ondi- (Continued on page 6) 1990 No. 4 5

6 A New Coneptual Model (Continued from page 5) tion assessments, National Register nominations, ompliane doumentation, speifiations for preservation treatments, maintenane guides, and ompletion reports for onstrution projets. These information soures an e profitaly thought of as a referene file. To maximize its use the referene file should e well organized and easily aessile. HSRs should not have to repeat any of the information ontained in the referene file exept for suint exerpts or summaries. Require that an HSR e prepared whenever (a) existing information aout the physial history and ondition of the resoure does not provide an adequate asis upon whih to address antiipated management issues and () alternative ourses of ation for impending development ould have a signifiant adverse effet on a histori struture. As stated aove, the requirement for an HSR depends on two fators: a need for speifi, essential information and the availaility of that information. Information needs are likely to e triggered y a numer of management issues that ould effet the harater and fari of a histori struture. These inlude: determination of general use, hanges in use, how to provide handiapped aessiility, how to provide for life safety, how to deal with hazardous materials suh as lead paint and asestos, development or use of adjaent sites, whether any missing histori features should e restored, how est to preserve the struture, how to provide adequate and appropriate mehanial and eletrial systems, how to repair deteriorated elements, when to remove additions, and when to permit demolition. Confronted with any one of these issues, management and staff should try to find the alternative ourse of ation that est meets the respetive program ojetives while minimizing or avoiding adverse effets on histori strutures. To most effetively and effiiently approah this prolem, staff might prepare a ase study whih summarizes availale information and assesses the likely effet of ovious alternatives. In effet, this ase study provides a link etween the tehnial information in the referene file and the deisionmaking proess. The form of the ase study is not important. What matters is that it should state the nature of the management issue, summarize relevant information from the referene file, identify likely ourses of ation, provide a preliminary assessment of effet, and identify any defiienies in the referene file whih should e orreted. In effet, the ase study is a riefing statement. If additional researh or analysis is needed it ould easily e onverted into a task diretive for an HSR; if not it ould eome the asis for ompliane doumentation. Require that an HSR e prepared whenever ations have een taken that diretly effet the harater or fari of a struture. As outlined aove, reommendations 1 through 4 would enourage preparation of numerous, issueoriented HSRs for eah histori struture. Suh an approah would uild on the results of past researh and ontinue the pratie ommon during the 1950s and 1960s of writing narrowly foused reports. It would also omplement the traditional onern for doumentation of preservation treatments. This is at the heart of Artile 16 of the Venie Charter (International Charter for the Conservation and Restoration of Monuments), whih has provided general guidane for preservation ativities around the world. Although the urrent guideline alls for doumentation of treatments, the task fore onluded that greater emphasis needs to e plaed on this funtion. Without suh information, future researh will e hampered in two major respets. First, it will not e possile to adequately assess the long term effets of our preservation work; seond, the distintion etween histori fari and replaement material may e lurred. HSRs that are to serve in this apaity should ontain as-uilt drawings, speifiations, and photographs of work-in-progress. This information would go in the appendix. Take design of development alternatives no further than shematis. While a preliminary purpose of the HSR is to provide information needed for deisionmaking, another funtion is to doument the proess y whih deisions are made. Although the proess from issue identifiation to implementation is a ontinuous flow, a reak needs to e made etween HSRs and onstrution douments. Of late, this division has een made at preliminary design. The Task Fore reommends that the division e moved ak to shematis. This would undersore the funtion of the HSR as a referene doument and help strengthen the importane of deisionmaking at the oneptual level. As a matter of further larifiation, information aout proposed hanges in the form and harater of a struture and information aout materials should oth e inluded in HSRs. Information of the first type is normally presented in the form of shemati drawings and diagrams. Shematis should e produed in an eonomial, informal manner to maximize onsideration of alternatives. They may show plans, elevations, setions, or details. On the other hand, material data should e presented in the form of photographs, analytial tales, and speifiations. Limit the researh effort for an HSR aording to (a) the speifi development issues that an e antiipated for a given resoure, and () the signifiane of the resoure. While there is no simple way to define an adequate level of effort for preparation of an HSR, this should not lead to the same researh strategy for all histori strutures. Every property listed in the National Register must e reognized for its histori qualities during the planning proess, ut this is not to say that a higher level of onfidene is not appropriate for information aout National Histori Landmarks or nationally signifiant strutures. Properties speifially assoiated with the legislated purpose of a park might also deserve a more thorough investigation. Other variations in effort should e ased upon the speifi features of a struture that are likely to e effeted y a proposed undertaking and the information whih is already availale to staff. Although professional judgment should play a major part in estalishing the level of effort for an HSR, some independent guidane might e helpful. With this in mind, the task fore developed an information matrix whih outlines the type No. 4

7 of information whih might e onsidered appropriate for a deision making given speifi types of management issues and various levels of resoure signifiane. One prolem with the matrix is that it may ome aross as umersome and too rigid. Worse yet, use of the matrix ould underut the proess of preparing ase studies, looking into existing referene files, and thinking through atual information requirements. In spite of these shortomings, the matrix is worth serious onsideration eause it learly speifies limits for researh on HSRs. Write for the primary audiene; maximize use of information prepared y other reliale soures; minimize reformatting availale information. The primary onsideration in setting stylisti requirements for an HSR should e the primary readers who are to use the information. These readers onsist of two groups: managers and staff professionals. Managers are onerned prinipally with general issue resolution. The management summary and program development su-setions should e written speifially for them. Staff professionals an e further sudivided into historial arhitets, arhitetural onservators, urators, historians, preservation speialists, landsape arhitets, and arheologists. People in these positions are typially onerned with the physial history of a struture, its treatment, and material omponents. Su-setions and appendies addressing these topis should e tailored to meet their needs. Given this general onstraint, every effort should e make to format new information in suh a way that it an e diretly uploaded into existing dataases. In reent years, the NPS has made a major effort to improve the ways in whih ultural resoure information is reorded and stored. The ageny has also initiated a serviewide omputerized system for management of maintenane ativities, inluding treatment of histori strutures. As a result of these initiatives, a wide variety of information is availale out of omputerized dataases. HSRs should draw from and omplement those systems. Finally, existing information should e used in its original form if at all possile. Reformatting is ostly and should e disouraged in most HSRs. Where material does need to e reworked, traditional standards for graphi presentation and narrative style should e onsidered if it is not to e omputerized. This is partiularly important when the report is to e printed and distriuted. Restrit the numer of HSRs opied and roadly distriuted. Although printing and distriution of HSRs is not a major fator in most projet udgets, the work required in editing and writing for puliation does inflate shedules and inrease osts. Rememering that the purpose of HSRs is to guide preservation, it would make sense to limit the numer of opies made unless the ontent of a partiular report was either exemplary in form or the ontent was roadly appliale. Aordingly, in most instanes, the numer of opies of an HSR might e limited to 10. This would allow for a distriution of three opies to the park, two opies to the region, one opy to the state histori preservation offier, two opies to Washington, and two opies to the Denver Servie Center. The distriution for a model report would depend upon its speial qualities and range of analogous appliation. One speial type of model HSR might e ased on a synthesis of many years of preservation work. This would proaly e appropriate only for major ultural resoures. A more formal style of illustrated text should e employed in suh a doument. Summary and Conlusion The prolem with HSRs today is that they are ommonly viewed as too ostly, irrelevant, and of duious quality. To this end the task fore on HSRs has identified nine measures whih should inrease the timeliness and effiieny of report preparation. The group has emphasized that HSRs must funtion within a dynami, deisionmaking ontext and has refoused the ontent and style of the doument to etter meet its intended use. The effet of these suggestions should e an inrease in quality, an inrease in the numer of HSRs produed, and a derease in average ost. If these ideas meet with general approval, the next step in their realization should e revisions to NPS-28. This is essential, ut taken alone it would not e effetive. Underlying the redefinition of HSRs is a new operational assumption: eah report is a unique doument developed in response to speifi management onerns, foused on the integrity and harater of one partiular histori struture, and limited y the availaility of neessary information. Guidelines alone will not alter existing ways of doing usiness. Old haits will still serve as the asis for interpretation of the guideline and therein lies a potential roadlok to onstrutive hange. The real hallenge inherent in the task fore reommendations is that they are grounded not in reports, as suh, ut in the way information is used. Within this proess-oriented ontext, ultural resoure speialists would have to e highly flexile and responsive, while retaining their dediation to resoure preservation. Expetations for managers would hange too. In partiular, they should onsider frequent strutured disussions with their professional staff, oth efore and after deisions are made aout major management issues. To help advane these hanges, training should e offered for historial arhitets, arhitetural onservators, historians, and managers who produe or use HSRs. In addition, a variety of new model HSRs should e irulated for referene. Although the ojetive of this implementation strategy would e to failitate use of the guideline, it should arry another more asi message. It is that without good information and lear thinking we risk making deisions that will adversely effet our ultural resoures, ut without a proper alane etween thoughtful onsideration and ation the resoures will suffer as well from lak of treatment. This message is entral to the findings and reommendation of the task fore: HSRs are a means to an end, not an end in themselves. BGG (Continued on page 8) 1990 No. 4 7

8 Information Matrix for Histori Struture Reports MANAGEMENT CATEGORIES PROGRAM ACTIONS Threats Rehailitation Reonstrution Restoration DCP Related Programs Preservation Use Deisions GMP Housekeeping Routine Maintenane (for affeted features) Stailization la PH&A a a a a a PD X a a l PH&A a a PD X a Ha PH&A a a PD X li PH&A a a PD X Notes: Management Categories refers to National Park Servie designations of resoure signifiane. Columns under the management ategories refer to major types of information that might e ontained in an HSR. PH&A stands for "physial history & analysis," PD stands for "program development." Items listed under Program Ations are typial management issues that ould effet the harater and fari of a histori struture. Codes for Management Categories la Individually eligile for the National Register, nationally signifiant or National Histori Landmark, l Struture is a ontriuting property within a nationally signifiant histori distrit or national landmark distrit. Ha Struture is eligile for the National Register at the state or regional level of signifiane; may e individually eligile or as part of a histori distrit. li Struture is loally signifiant, eligile for the National Register individually or as part of a histori distrit. Codes for Level of Presentation Expeted under Program Development a. Present several alternatives using drawings or narrative. Assess the effet of eah alternative and develop ost estimate for eah alternative, (e.g., evaluate alternatives for handiapped aess in a multi-storied NHL). Present one approah using existing drawings or narrative. Assess the effet and develop ost estimate, (e.g., evaluate the restoration of a nationally signifiant struture). Present one or more alternatives using skethes or limited narrative. Assess the effet and develop ost estimate to level allowed y skethes or if needed, (e.g., evaluate uses proposed for a GMP on histori strutures) Codes for Level of Effort Expeted in Physial History a. All identifiale soures regardless of loation should e onsulted. Complete engineering analysis may e appropriate. Researh may inlude destrutive tehniques. All histori materials haraterized through formal analysis. HABS Level I reordation needed. Doumentation regarding history, arheology, and setting inluded.. All known, readily availale soures onsulted. These may inlude existing studies as well as primary studies. Formal material testing inluded only as required to answer pertinent management issues. Material investigation is primarily non-destrutive. Reordation needed to HABS Level II or III. Arheologial and site data optional unless needed for imminent deisions.. Easily availale soures are onsulted, mostly seondary soures and existing studies. Material investigation limited to visual inspetion if done at all. Reordation desirale at HABS Level IV; additional doumentation using field skethes, video tape and 35mm slides. x. Not appliale; no researh needed. In all works of preservation, restoration or exavation, there should always e preise doumentation in the form of analytial and ritial reports, illustrated with drawings and photographs. Every stage of the work of learing, onsolidation, rearrangement and integration as well as tehnial and formal features identified during the ourse of the work, should e inluded. This reord should e plaed in the arhives of a puli institution and made availale to researh workers. It is reommended that the report should e pulished. (Artile 16, the International Charter for the Conservation and Restoration of Monuments.) No. 4

9 Evolution of Histori Struture Reports Randall J. Biallas In 1935, following the Moore House restoration at Colonial National Historial Park, Charles E. Peterson prepared a report entitled The Physial History of the Moore House, This report initiated the Histori Struture Report (HSR) onept and was the first ompleted in the National Park Servie. To reord doumentary and physial researh onerning the evolution of a struture, its ondition efore physial work, and finally the physial work itself estalished a NPS preedent. It undersored the importane of doumenting suh projets for future researhers. Although many Histori Struture Reports were prepared in the deades following 1935, it was not until 1957 that the diretor of the NPS sent a memorandum to field offies the sujet of whih was Histori Building Report Form. This estalished a Serviewide organizational struture for preparing the HSR then alled a "Histori Buildings Report." Suh administrative ativity partly developed out of the tremendous growth of the Park System following World War II. Furthermore, historial arhitets were usually stationed in design offies, whereas historians and arheologists worked in parks and regional offies. To assure some professional standard of quality and administrative order throughout a diverse, deentralized organization, a Serviewide organizational struture and approval proess eame neessary. As noted in Lee H. Nelson's retrospetive introdution to Peterson's repulished Moore House Report, many people are not aware of the Histori Struture Report's role in NPS preservation programs. The purpose of this artile is not to present a detailed administrative history of HSRs, ut simply to riefly trae their evolution and strutural development. The 1935 Moore House report was prepared after restoration had een ompleted. However, eginning in 1956, Field Order required that a "Survey Report" outlining the history, ondition, and proposed work on a histori struture e prepared and approved y park management efore the physial work egan. This resulted in the evolution of a rather ompliated HSR approval proess and organizational struture as outlined in the diretor's memorandum of Feruary 12, 1957, the assoiate diretor's memorandum of Otoer 24, 1958, the Inventory with Classifiation and Work Code for Histori Buildings and Strutures... issued in Novemer 1960, and the Histori and Prehistori Strutures Handook issued in April The diretor's 1957 memorandum was the first Serviewide management doument outlining a multidisiplinary approah to the preparation of an HSR. The organizational struture outlined inluded an administrative data setion, historial data setion, arhitetural data setion, arheologial data setion, landsape data setion, and a furnishing and exhiits data setion. The assoiate diretor's 1958 memorandum was the first doument to use the term "Histori Struture Report." The organizational struture of HSRs hanged in 1971 with the issuane of the Ativities Standards. Only an administrative setion, historial data setion, arheologial data setion, and a arhitetural data setion were required. The physial work was to e reorded in a new report alled a "Histori Struture Preservation Guide" whih also ontained information regarding the maintenane of the struture. With the issuane of Release No. 1 of the Cultural Resoures Management Guideline (NPS-28) in Otoer 1980, the organizational struture of a Histori Struture Report was hanged to inlude only three setions: an administrative data setion, a physial history and analysis setion, and an appendix. Release No.2 of this guideline in Deemer 1981 and Release No. 3 in August, 1985 ontinued this pratie. The guideline, in ontrast to the organizational struture of the 1971 Ativities Standards, integrated the three professional disipline setions historial data, arheologial data, and arhitetural data into one physial history and analysis setion. This hange enouraged a multidisiplinary working relationship that would lead to integrated reommendations to park management. From Charles Peterson's preedent setting report, the HSR onept has expanded to fill a ruial role in NPS management. Randall J. Biallas, AIA, is assistant hief historial arhitet for the National Park Servie No. 4 9

10 The HSR: A Stati Report in a "Systems" World Mihael Adlerstein For many of the same reasons that the National Park Servie Master Plan evolved into the General Management Planning proess in the 1970s, the HSR is due for a reevaluation. The HSR should e one of management's most effetive tools for deisionmaking for histori strutures. It should answer management's most pressing onerns what is signifiant aout the struture and why is it signifiant, whih fari has integrity and what is the ondition of that fari, and how will a speifi proposed use or intervention affet the struture. Our present poliies provide exellent guidane to professionals in the preparation of an HSR for a major intervention in the most signifiant histori strutures of the System. But that only aounts for a small perent of the treatment ativities that ontinually affet our inventory of histori strutures. For projets of lesser impat or for less ritial resoures, HSRs often answer far more than required, take too long, and ost too muh. A less exhaustive analysis would have done the jo well, ut guidane for that more preise, effiient produt does not exist. New HSR guidane is needed that retains the integrity of the report, inreases sope flexiility, and redues osts. With this in mind, I asked Billy Garrett to hair the HSR task fore, the results of whih are reported in this issue of the CRM Bulletin. As the realm of histori preservation ontinues to eome more sophistiated, and the numer of histori strutures managed y the NPS ontinues to grow, the tools used y NPS historial arhitets and historians require this ommensurate reevaluation. Even during the next few years, an enormous numer of new HSRs will e required for road initiatives like HUDAT, and for areas like the Presidio. These new HSRs must also e apale of relating to the new data systems driven produts that are quikly eoming the read and utter of histori preservation. NPS Diretor James Ridenour has stressed his elief that the "wave of the future on deisionmaking is having information in a way that you an retrieve it quikly." Computerized dataases are eoming more widespread and user friendly with eah generation of software, and it is essential that all our produts should e apale of enefiting (uploading) from past efforts, and sharing (downloading) with future omputerized efforts. This is espeially true of the oilerplate, fixed data for eah struture suh as names, numers, loation, histori and urrent use, ritial dates, signifiane, and size. The suessful estalishment of the Maintenane Management (MM) program in every park has provided a software standard to whih ultural resoure programs an and must relate. At present, the Park Histori Arhiteture Division (PHAD) manages several programs that are fully oordinated with the MM program. The most ritial is the List of Classified Strutures (LCS), a mandated inventory of all National Register eligile strutures in the National Park System. The lak of a ompleted, updated LCS has een identified as a material weakness in the program of the PHAD. A ompleted LCS dataase would e apale of serving ritial funtions for the park, region and WASO, suh as providing the parks with an inventory of their histori strutures for park planning and programming, providing regions with a traking mehanism for identifying serious regionwide defiienies, and providing WASO with rolled up data on the overall ondition of the histori strutures of the System. A serviewide program for aomplishing this is now eing planned. Other oordinated programs that are ritial to the management of the histori strutures of the National Park System are the ontinued development and implementation of the Inventory and Condition Assessment Program (ICAP), the ontinuation of the program design of the Histori Strutures Preservation Dataase (HSPD), and the ontinuation of the inventory work on the Cultural Resoures Management Biliography (CRBIB). ICAP is a omponent of the Maintenane Management program. It expands the present apaility of MM y identifying individual features of speifi strutures. ICAP presently inludes a major assessment omponent for uildings. An additional omponent for annual inspetion and additional modules for roads and trails, grounds, ruins, fortifiations and outdoor sulpture will soon e under development. The implementation of ICAP will assure that after speial studies or interventions in strutures, proper maintenane proedures are diretly inorporated into the MM program. The HSPD, still in development, is a dataase that will ontain tehnial information aout histori struture treatments and maintenane, thus providing the desription of the work proedures for ICAP. As ICAP surveys are ompleted, HSPD work proedures will e identified for the required work tasks. The standard work proedures in the ompleted HSPD will redue opportunities for aidental damage to histori fari y untrained maintenane staffs. The last of the oordinated software programs is the CRBIB, an on-going iliographi program serving all the divisions of Cultural Resoures. Over 11,000 reports entered in the CRBIB are retrievale y struture numer, park or region. In this systems approah to preservation, a person working on a planning doument that inludes various histori strutures would e ale to retrieve, through the LCS, (Continued on page 12) No. 4

11 Preservation Case Studies and HSRs Stephanie S. Toothman Among the primary onerns of the HSR task fore was to explore ways in whih these reports ould uild on already availale dataases. The projet doumentation prepared in ompliane with Setion 106 of the National Histori Preservation At and its implementing regulations 36 CFR 800 is one soure of suh data. In an ideal world where preservation planning and treatment follow a logial sequene, unfettered y funding or staffing onstraints, the preparation of an HSR would preede the ompilation of any ompliane doumentation. As envisioned in NPS-28, we would thoroughly researh the history and ondition of a struture, arefully onsider a full range of alternatives in onsultation with the State Histori Preservation Offier and the Advisory Counil on Histori Preservation, and then selet a preferred alternative enompassing oth stailization and long-term preservation and maintenane strategies for the struture. In the real world, however, uildings are aquired that need emergeny stailization efore the preservation planning proess an e arried out, funding shortages lead to pieemeal planning and treatment, and "ats of God" require immediate responses to prevent the loss of severely damaged strutures. Preparing full-lown HSRs for eah struture we enounter under any of these irumstanes is out of the question. But, efore we an respond to these situations, we must omply with 36 CFR 800 and our 1981 programmati agreement with the Advisory Counil and the National Conferene of State Histori Preservation Offiers. The initial stage in the proess requires a determination, in onsultation with the SHPO, of whether a proposed ation will affet resoures eligile for the National Register. This an e ahieved only if enough information on the history and integrity of a struture is availale and the National Register riteria an e applied. If a projet area inludes eligile resoures, than the riteria of effet must e applied. A omparison of the requirements for the doumentation of effets (36 CFR 800.8) to the ontents of HSRs, as outlined in NPS-28, reveals a numer of ommon elements. Both require: 1. a desription of the histori properties under onsideration their harater-defining features and ondition, as well as their signifiane; 2. a desription of the proposed ation and any alternatives onsidered, inluding availale plans, speifiations and ost estimates defining that ation; and 3. an analysis of the impat of the proposed ation. The information required for suh reports is even more lengthy when there is disagreement among the onsulting parties. The emphasis for all doumentation is, however, on providing suint statements responding to these requirements "suffiient information to explain how the ageny offiial reahed the finding." A similar emphasis would well serve the preparation of HSRs. The information provided for the "Assessment of Ations Having an Effet on Cultural Resoures," etter known as the XXX form, required y the programmati agreement is muh less detailed. In order to respond to eah of the items on the XXX form, a ertain level of knowledge aout a struture is needed. For example, asi information aout the signifiane and ondition of a struture is ritial to eing ale to disuss the effets of an ation. The ody of XXX forms prepared for any struture over a period of time will provide a asi struture history for that time period. All of us involved in preparing ompliane doumentation know that a tremendous amount of time and effort is expended to meet these requirements, partiularly in the asene of the presried planning and researh douments. The question is, "What are we doing with all of the information assemled for these reports, partiularly after the ompliane proess is ompleted?" For the most part, it appears that this information gets uried in ompliane files. It was the onsensus of the task fore that this information, aquired at signifiant ost, ould e etter used. We need to find a way to integrate this data into the proess of preparing HSRs. At a minimum, we should develop on eah struture a omputerized data ank that an aept and manipulate the data from multiple soures, inluding ompliane ations, into the appropriate format HSRs, HSARs, or whatever serves the speifi need. The task fore agreed that the level of effort for doumentation of histori strutures should vary, refleting (1) the adequay of the existing information; (2) the need for additional information; (3) the nature and signifiane of the affeted resoure; and (4) the extent to whih the resoure will e affeted y the proposed ation. Following this line of thinking, there will e many ases where the data prepared for ompliane ations will equal the appropriate level of doumentation for a struture and the proposed treatment. For many loally and regionally signifiant strutures, partiularly those that are ontriuting elements of larger groups, this level of doumentation will not only suffie, it is all we an reasonaly expet to do for the struture. The ottom line is that we are generating the data to support the preservation of many histori strutures through the ompliane proess. Even if this data is gathered outside of or in lieu of the preferred planning proess, we annot afford to ignore any soure of reliale doumentation that will assist managers in making informed deisions aout histori strutures within a timely and ost-effetive framework. Compliane doumentation, whether in the form of "Assessment of Effet" forms, or full-fledged ase reports, should e onsidered one of the key uilding loks of that framework. Dr. Stephanie Toothman is hief of the Cultural Resoures Division, Paifi Northwest Region, NPS No. 4 11

12 HSRs as Part of the Design Proess Dave Snow Histori Struture Reports have een an integral part of the design proess at the Denver Servie Center (DSC) for many years. They have een used as one of the prime histori struture design douments for reommending treatments, making initial ost estimates for suh treatments, and for omplying with 36 CFR 800 y evaluating the effets of suh reommended treatments. Unfortunately, this has led to development of very umersome and expensive douments for some projets. In many ases, it has also resulted in two phases of preliminary design. The first when the HSR is prepared, and a seond when the projet reeives its funding. On the average there are aout five years or more etween these yles and at least one hange in park superintendent. Design requirements almost always hange with the passing of time, people, politial agendas, negating many earlier assumptions. The opinion I expressed, as a memer of the task fore, was that this proess ould e modified in an operational sense, when preliminary design is initiated. The HSR would still remain an initial, ritial step. However, the proess would eome a more dynami effort, allowed to aumulate additional researh data as time passes. Preliminary design, on the other hand, would eome more foused into a single preliminary design (06) phase, similar to that of a new uilding, using previously assemled information in the HSR as ontinually updated akground data. An entire (exess) phase of work ould e removed from the urrent design proess (see hart). The ost/ time savings would vary depending on the sope of the undertaking, ut on a large projet with an aundane of adaptive use design and reommended treatments, the savings ould e sustantial (50% or more). The hange would not e in what is eing done, ut when it is eing done. Referening NPS-70, "Design Proess Guideline," and the DSC "Operations Manual" (part 1) it learly equates preliminary design with HSRs y stating: The results of the design analysis may e presented in a formal report, or the alternatives may simply e pakaged together with all relevant support data for review and presentation purposes. For histori preservation projets, the preservation doument is usually the draft or final HSR. 1 The funding soures for HSRs is type 35 (Histori Struture Report) and for preliminary design, type 06. Most projets seem to aquire oth types of funding over time, efore they go into onstrution drawings (type 36), and then onstrution supervision (type 37). This would e perfetly aeptale if the HSRs stuk speifially to researh and doumentation, ut as a rule they do not. It would seem important (as is urrently eing pratied on Western Team projets) to always have a onventional design analysis/preliminary design/review phase when treatment to a histori struture is funded and imminent. This way, design treatments proposed for histori strutures ould e far more timely and in synh with more onventional design projets. In this respet, it would require only a minor modifiation of NPS-70, to dovetail with proposed task fore hanges for HSRs in NPS-28. Dave Snow is a historial arhitet in the Denver Servie Center, NPS. 'Design Proess Guideline, Chapter 4, Page 5, Otoer See hart next page The HSR: A Stati Report in a "Systems" World (Continued from page 10) the identifiation of all the potentially eligile National Register strutures and their ondition and status. Through MM and ICAP the team would otain the maintenane history and the identifiation of the major prolems of eah struture with osts, and the speifiations of the repair proedures through the HSPD for the identified prolem areas. For any additional information, the iliographi referenes of other related tehnial douments would e availale through the CRBIB. The geographi oordinates listed on the LCS entry would allow the planner to graphially loate all the strutures on a Geographi Information Systems map for the planning douments, and the aggregated ost in the LCS would give the manager an estimate of the treatment osts of the speified strutures. In this systems world, all this information for a speifi struture would e onsolidated in the HSR file. Mihael Adlerstein, AIA, is the hief historial arhitet of the National Park Servie No. 4

13 Histori Struture Preliminary I )esign Current Speial Insert The Alliane Review Physial history and analysis Develop alternatives Selet reommended alternatives Assessment of effet (ompliane) Plus or minus 5 year s Steps 2, 3, and 4 aove, repeated Develop preferred alternative for preliminary design 35% to 40% onstrution drawings One year or less Histori struture onstrution drawings One year or less HSR (type 35) Preliminary design (06) (type 36) We are pleased to inlude with this issue of the CRM Bulletin a opy of The Alliane Review, pulished y the National Alliane of Preservation Commissions (NAPC). We hope to fous more attention on preservation issues at the loal level, and future ulletins will ontain artiles on loal preservation produed y the NAPC, a national memership organization founded to serve the needs of loal preservation ommissions aross the ountry. Puliation of this issue of The Alliane Review was finaned with Federal funds from the Interageny Resoures Division, National Park Servie, Department of the Interior. However, the ontent and opinions do not neessarily reflet the views or poliies of the Department of the Interior, nor does the mention of trade names or ommerial produts onstitute endorsement or reommendation y the Department. Constrution supervision/onstrution (types 37/91) Proposed Physial history and analysis HSR (type 35) Plus or minus 5 year s Develop alternatives Selet reommended alternatives Assessment of effet (ompliane) Develop preferred alternative for preliminary design 35% to 40% onstrution drawings Preliminary design (06) One year or less Histori struture onstrution drawings (type 36) One year or less Constrution supervision/onstrution (types 37/91) 1990 No. 4 13

14 Boxley Valley, Buffalo National River NPS Histori Distrit in Private Hands Jim Liles Adapted from a presentation efore the fifth triennial onferene of the George Wright Soiety, Tuson, AZ, Novemer 17, When Buffalo National River ame into the National Park System Marh 1, 1972, it inluded a settlement omprised of 24 ottomland farms, with more than 50 inhaitants most desended from the early-19th-entury pioneers who settled the seven-mile streth of river one known as "Big Buffalo Valley" now alled Boxley Valley. Think of Boxley Valley as a Cades Cove, transplanted from east Tennessee to north Arkansas, eause the two valleys are quite similar in size, heritage and historial aspet. However, the human ommunity of Cades Cove was displaed y land aquisition prior to the estalishment of Great Smoky Mountains National Park in As with other units of the National Park System estalished earlier in the entury, little or no reognition was given the value of ultural landsapes or their human reators. Today the little valley of Arams Creek in the Smokies is a "ghost settlement" and, however poignantly attrative to park visitors (as evidened y the numers hiking, motoring and iyling the Cove's trails and roads) that remnant landsape onveys ut a suggestion of the ultural vitality a visitor to the Cove would have experiened etween 60 and 160 years ago. Unlike the legislation estalishing Great Smoky Mountains National Park, Buffalo National River's legislative history atually favored the retention of a living ommunity and its lifeways. To help seure passage of a ill to estalish the national river, former Diretor George B. Hartzog artiulated the onept of setting aside a "private use zone," inluding Boxley Valley, where land ould e left in private ownership and the Servie aquire only seni easements, for maintenane of the rural ommunity and its pastoral landsape. This onept, in addition to eing learly enuniated in the park's legislative history, was iterated in its master plan: "A private use zone ontaining 9407 ares, inluding some farmlands, should ontinue in private ownership sujet to seni ontrols and neessary rights-of-way for roads and trails." In an earlier day, this would e laeled heresy: a unit of the National The "Edgmon Farm" in Boxley Valley was the site of the earliest pioneer homestead in Boxley settled in the 1830's, y the Whiteleys, from Virginia. Park System (and a natural area, at that) authorized to emrae eologially sustainale human ativities, on perpetual private inholdings! Following estalishment, however, for various reasons, fully 75% of the lands within the private zone were aquired in fee y the NPS destailizing the Boxley ommunity and leading to deteriorating relations. The NPS was aout to lose the opportunity to keep the Ozark folkways alive in a seven-mile streth of the Buffalo River, where the rural ommunity of Boxley had flourished for the preeding 150 years. By 1982, 10 years after the national river's estalishment, former Superintendent Ale Gould had deided it was time to ome to grips with the hallenge of perpetuating the park's most impressive ultural landsape, while improving park/neighor relations in Boxley Valley. Many of the homes and farms had een purhased y the Servie, vaated, and negleted some even removed and the remaining population of the valley (some 40 individuals) was unsettled, even emittered, y a deade of land aquisition. Land status in the valley was a "razy-quilt" of vaant NPS-owned farms and strutures; oupied farms aquired y the Servie and leased ak for up to 25 years, under life estates and rights of "use and oupany"; farms on whih the NPS aquired only "seni easements"; and others in whih the servie aquired no interest at all. Beginning in 1983, the NPS Southwest Regional Diretor agreed to support the park in the development of a formal plan to guide the Servie toward improved management of the Valley. With muh input from Boxley itizens and ultural resoures speialists from the Denver Servie Center and the regional diretor's staff, there was ompleted and approved in 1985, a "Land Use Plan and Cultural Landsape Report, Boxley Valley." Out of this planning effort No. 4

15 grew the realization that Boxley Valley was eligile for the National Register of Histori Plaes, as a distintive ultural landsape. Boxley Valley ontains over 200 strutures ontriuting to its historial signifiane. Some of its houses and arns, a grist mill and a ommunity uilding are onsidered fine examples of vernaular arhiteture; many date from the last entury. In 1987, Boxley Valley was entered on the National Register as Big Buffalo Valley Histori Distrit. The two years of resoures assessment, meetings and informal talks with the Boxley itizens onfirmed park managers' early inlinations that those Boxley Valley ottomland farms and assoiated homes aquired y the Servie should indeed e returned to private ownership. With approval of the Boxley land use plan, the stage was set for offering the former landowners those who stayed on as life or term tenants the opportunity to reaquire their former lands, exept for the forested slopes and the river itself. The NPS would also retain easements for farm management, water quality protetion, histori strutures preservation and appropriate visitor aess. (The valley ontains several histori features of value for interpretation, as well as a eautiful natural area, known as Lost Valley, aessed y a very popular hiking trail from a trailhead ampground.) The intent of the plan is not to require the people in Boxley Valley to rearrange their lives to serve any roader puli interest, ut to preserve the opportunity for the ontinuation of a population that has developed distintive ties to the land, as manifested in the valley's ultural landsape. Far from eing a stati landsape, the histori distrit is home to 14 families and 4 individuals, with the population expeted to inrease y 4 additional households, as the Servie returns 4 vaant histori farms to private ownership in the near future. Sine the plan's approval, negotiations have proeeded with a dozen families interested in uying ak their farms and homes. The first suh onveyane was suessfully ompleted in June 1987, and two more "land exhanges" were exeuted in January (An "exhange" ours Boxley Community Building, a hurh property, is maintained with private funds. The struture dates to the last entury. when the right of use and oupany a legal interest is quitlaimed, in exhange for fee title, after a ash payment is made to the United States, equalizing values set y an appraisal.) Four more suh exhanges are awaiting appraisals, as are four "sellaks" of vaant, Park Servie-owned farms, whih are expeted to e sold on the open market y 1991, sujet to protetive ovenants (easements). Not all the valley is to e returned to private ownership. Along a onemile streth at the valley's north end, there are no oupied farms; rather, there are open fields overlooked y uninhaitale histori strutures of interpretive value, inluding two log houses pre-dating the Civil War. Near the valley's enter stands the two-story grist mill uilt in 1870 and the log house and arn of the first miller. The lands assoiated with these signifiant resoures will e kept in Park Servie ownership, made aessile to the visitor, and maintained y histori leasing, pursuant to the National Histori Preservation At, as amended in Three suh leases omprising 100 ares were awarded Feruary 1988, and three more omprising 96 ares were awarded in Feruary This mehanism for land management is resulting in visile improvements in histori struture and landsape maintenane, eause histori leasing's terms are an inentive for performane y the lessees. An equally gratifying effort is eing put forth y the Boxley ommunity, on lands and histori strutures in private ownership. Owners of lands under the new histori preservation and farm onservation easements have worked in partnership with park staff to not only rehailitate histori strutures, ut to onstrut new arns, fenes and other farm strutures and in one ase, a fine new family home. (The Boxley Plan allows for onstrution of a limited numer of additional houses, on seleted sites and in aordane with several restritions in the easement, promoting onstrution that is in harmony with the traditional landsape features.) With ownership of land omes more pride and effort in its aretaking. Whereas the population and level of are given its strutures and farms had delined for 15 years, things are definitely looking up in this 5% of Buffalo National River alled Boxley Valley, a striking ommunity of farms and homes, oupied y hard-working, intelligent and outward-thinking individuals whose land ethi derives from their anestry. Thanks to the on-going effort to keep alive the story of the river's people and their relationship to the land an effort permitted y the national river's non-traditional legislative history some of the river's pioneer tradition lives on. Jim Liles is assistant superintendent, Buffalo National River. He guided implementation of the Boxley Plan, at the park level, over the past five years. Just as several people ontriuted to developing the "Boxley Plan," several have undertaken extra effort to make the plan work. On Novemer 10, 1989, at an awards eremony in Washington, D.C., Jim and Ri Alesh, park planner with the Denver Servie Center, o-aepted on ehalf of the National Park Servie, a Presidential Design Exellene Award for the Boxley Valley Land Use Plan and Cultural Landsape Report. The first suh report for any area in the National Park System, it desried an innovative resoure management onept for preserving the speial, living ultural landsape of the Boxley Valley while proteting ritial natural resoures at Buffalo National River No. 4 15

16 Histori Mining Resoures Conferene Roert L. Spude The rise of gold pries in the 1970s and the reopening of old mines in the West, oupled with the Government's initiative to lean up aandoned mine lands, has reated a ompliane nightmare for anyone managing lands with mining-related histori resoures. The requirements of the National Histori Preservation At have een interpreted and reinterpreted without onlusive guidane. The deade of the '80s rought muh ativity oth in mining and preservation ompliane in formerly quiet, somnolent mining amps. In January 1989, a week-long onferene on mining sites issues was held at Death Valley National Monument. The onferene was open to the National Park Servie, other Federal and state agenies, and the general puli. Bakground Mining site preservation dates ak to shortly after the days of the '49ers, when pioneers uilt monuments to the "Grand Event." By 1900, pioneers were ereting monuments to James Marshall at Coloma, California, estalishing historial soieties in Arizona, and setting aside the founder's ain at Skagway, Alaska, reent Klondike Gold Rush oom town. Similar ommemorative events ontinued with statues uilt and ains set aside more often than not distant from their original site to rememer the pioneers, whose delining numers hastened the proess in the 1930s. Shops, too, were opened to sell mementos of those times to an inreasing numer of travelers more interested in the legends of desperadoes than the mines or milling relis. In 1924, with the eginning of the annual "Days of '76" eleration in Deadwood, South Dakota, the miners in the gulh and hills were ignored in favor of shoot-outs, the death of "Wild Bill" Hikok and the antis of legendary "Deadwood Dik." Mining site preservation and interpretation had not aught on. Histori preservation on the mining frontier had ome to e misrepresented y a ias toward the thrilling, the vigilantes or the uran amenities. Suh plaes as Georgetown and Central City, Colorado, and the California Mother Lode towns along Highway 49 did preserve exeptional examples of arhiteture, ut this arhitetural ias left the mining-related resoures the mine shaft houses, the stamp mills, and smelters as derelit ak drops. Any interpretation of the mining industry was omitted or given token display in museums, in "artifat gardens" where mahinery was drug in and displayed like so many ojets d'art or in a quik underground tour of a short adit. The desire to see the fantasy West led to the reation of theme parks suh as Ghost Town at Knott's Berry Farm, California; Old Tuson, Arizona; Bukskin Joe, Colorado; and a host of other ukaroo rereations far removed from the original events and any of the mines. A more sholarly approah to the study of western history, espeially y the 1960s, led to a hanged view on the western frontier and the resoures onsidered worth preserving at eah mining amp/site. Sine the 1930s, the Federal Government had a system to inventory signifiant ultural resoures. The Histori Sites At (1935) authorized "a survey of histori sites, uildings, and ojets for the purpose of determining whih possess exeptional value as ommemorating or illustrating the history of the United States." The National Survey of Histori Sites and Buildings resulted in the evaluation of hundreds of histori properties whih fit into defined themes. The histori sites and uildings inventory looked at over 100 mining sites and seleted 17 as potential National Histori Landmarks. The study was pulished as Prospetor, Cowhand and Soduster (National Park Servie 1967). Unfortunately, the NPS evaluation system refleted the popular view of looking only at the towns rather than mines or mills. Industrial sites were not inluded unless adjaent to the amp. Thus, signifiant mine strutures or mills standing at the time were not reognized. The Histori Sites At laked a mehanism to preserve the resoure. Although the intent ehind surveying properties was to onsider eah site for possile inlusion in the National Park System, the survey resulted in few properties eing estalished as parks, and none related to mining until the 1976 estalishment of Klondike Gold Rush National Historial Park at Skagway, Alaska, a oom-town on the trail to the gold fields. Thus, a need was identified to help other signifiant properties. In 1960, the National Histori Landmarks program was estalished to list the nationally signifiant sites, whih reeived additional protetion with the National Histori Preservation At of Sine then the NPS has set priorities for NHLs to reeive doumentation, tehnial assistane, and evaluation through ondition assessments. Grants were provided when funds were availale. A few ommerial properties reeived tax redits. In 1976 a separate monitoring proess was estalished to protet NHLs from mining impats. In addition, NHLs are to reeive lose monitoring, and information aout potential threats are to e reported to Congress, as required y Setion 8 of the General Authorities At, Otoer 7, The majority of mining sites reeived some protetion through the National Histori Preservation At and the Setion 106 proess. During this period, private and state initiative provided additional protetion. At Virginia City, Montana, the Bovey family aquired half the near-ghost town and preserved uildings otherwise ound for demolition; similarly, the Cain family pathed and raed the uildings of Bodie, California, until the state ould aquire the property. California had ompleted several important preservation projets throughout the Mother Lode, most outstandingly at Coloma, Columia, Sutter's Fort, and Grass Valley in the 1940s-1950s, during the entennial of the gold rush. Nearly every other far western state followed suit with at least one state park dediated to the mining theme at Tomstone and Jerome, No. 4

17 Arizona; at Bannok, Montana; and at South Pass City, Wyoming. Again, the fous of these parks was the towns, not the mines. Finally, in the 1970s a few parks were reated whih showased industry in the west the hydrauli mining at North Bloomfield, California; the silver mill at Berlin, Nevada; and the railroad and mines at Georgetown, Colorado. The NPS, too, egan preserving the industrial west, preserving sites within its large natural parks whih represented mining history Harmony Borax works and the Keane Wonder tramway at Death Valley National Monument; the Terlingua quiksilver mines at Big Bend National Park; and the Coal Creek dredge, Yukon-Charley Rivers National Preserve. Outside the parks the story was different. In 1974, Congress lifted the an on private ownership of gold; market pries jumped from the regulated $32 per oune to over $600, then settled down to the $300 to $400 range during the 1980s, making formerly aandoned gold mines profitale. At Virginia City, Nevada, Cripple Creek, Colorado, and other areas new mines were initiated using new tehnologies of open ut and heap leahing. This tehnology has reated massive, large sale threats to the histori sene. In 1977, Congress passed the Surfae Mining Control and Relamation At whih provided grants through the Offie of Surfae Mining (OSM) to states to lose dangerous mine openings and remove lifethreatening hazards. Western states estalished aandoned mine land programs and initiated leanups, often within histori mining distrits. The Environmental Protetion Ageny also reeived new mandates, espeially the Comprehensive Environmental Responsiility, Compensation and Liaility At of 1980, as amended, whih will greatly impat suh landmarks as Butte, Montana and Leadville, Colorado, and a host of lesser sites. These Ats reated a mehanism for destrution of histori mining resoures efore Federal agenies ould reat to and put in plae systems to evaluate and protet or mitigate the loss of signifiant resoures. The legislation also reated a lot of work in the ultural resoure management field. It fored preservationists interested in mining heritage to shift their attention from the arhiteture of the mining amp to the mines themselves, many of whih had reverted to puli ownership. Also, the new extensive mining operations, with their large open uts and pits, reated massive tailings whih ended up on puli land. Thus, ompliane with Federal preservation laws ame into play. Federal agenies and their ontrators egan to ask questions aout how est to inventory and doument mines, how to mitigate impats, and how to interpret or display ojets or sites. The South Dakota State Histori Preservation Offie was the first to try to grapple with the prolem in a holisti approah. In 1982, the Homestake Mining Company had reopened the Open Cut at Lead, an at that would raze part of the National Register towns of Lead and Terraville. The South Dakota SHPO worked with the U.S. Forest Servie, the Homestake Company, and other agenies to omply with histori preservation law. They also hosted a workshop in 1987, the results of whih were pulished as the "Proeedings of the Workshop on Histori Mining Resoures, Defining the Researh Questions for Evaluation and Preservation" (availale from the State Historial Preservation Center, Box 417, Vermillion, South Dakota 57069). It rought up questions aout defining terms, inventory, historial arheology, and doumentation. While new mine operations, EPA leanups, and OSM initiatives ontinue, additional threats loom. The Forest Servie must deal with inreased visitor use on its lands. For example, the ski industry of Colorado has hanged the amiene of Aspen, Crested Butte, Brekenridge, Telluride, and other former mining amps. Similarly, off road vehile use on Bureau of Land Management desert lands has inreased in numer and destrutiveness. The weight of these threats prompted the NPS to oordinate the workshop on histori mining resoures at Death Valley National Monument. A group of onerned individuals and ageny representatives met to share information aout the preservation of histori mining sites. They disussed many areas of mutual onern, of how to survey and evaluate sites, how to inventory and doument, how to restore and rehailitate sites and how to interpret and manage those signifiant remnants of Ameria's mining past. Papers Presented Beause of new mining ativities in histori mining areas, ontrators and agenies are onerned aout how est to survey and nominate properties to the National Register of Histori Plaes as well as how est to mitigate any adverse ations on signifiant resoures. Other partiipants were onerned with managing histori mining sites old mills or sites of amps, mine adits or waste piles on puli lands. Representatives from private, state, and Federal parks and museums were interested in the interpretation and display of mining materials. The onferene papers have een ompiled and pulished: Leo Barker and Ann Huston, Proeedings of the Histori Mining Conferene, January 1989, Death Valley National Monument, California (San Franiso: NPS, 1990). Copies are availale from the editors at National Register Programs, Western Region, National Park Servie, 450 Golden Gate Avenue, P.O. Box 36063, San Franiso, CA The proeedings are divided into eight parts. Duane Smith, longtime resident of the mining regions of Southwestern Colorado and history professor at Fort Lewis College, Durango, presents a rief overview of the impat of mining on the West. He sets the stage for understanding the widespread appearane of mining, and the onsequent aundane of sites, in varying states of repair and ruin, aross the landsape. Leo Barker prepared a iliography for further reading, whih is appended to the proeedings. Setion 2 addresses a ritial question aout whih mining resoures are signifiant and whih are not. Land managers and ultural resoure professionals are hallenged y the aundane of remains and must make deisions aout how est to identify and evaluate them. The papers outline the preservation planning proess, methods of inventory, and the National Register guidelines. Speial topis inlude ultural landsapes, engineering works, and underground resoures. (Continued on page 18) 1990 No. 4 17

18 Looking for the Mother Lode: Hard Lessons Learned y the NPS Ronald W. Johnson John C. Paige On a snowy Roky Mountain night in early Feruary 1989, 300 people raved the mountain winter weather to reah a small high shool gymnasium. They went to onfront representatives from their ongressional delegation, town, and the National Park Servie on the future of their ommunity. In late 1988, the NPS egan preparing a new area study for the National Histori Landmark (NHL) distrit loated in Georgetown and Silver Plume, Colorado. Two years earlier, loal politiians and preservationists had mounted an effetive loying ampaign with the U.S. Congress to fund a study of alternatives to e prepared y the NPS. Although the histori preservation agenda motivated the initial groundswell for the NPS involvement, the moriund loal eonomy later eame the primary reason for the study. The NPS planning offie in Denver prepared the study in a timely and professional manner, ut the study led to turmoil and a itter struggle for the ommunities' future. Now the attle ehoes from the small mountain ains to the halls of Congress. This artile will desrie how this happened as well as what lessons the NPS learned aout politially- and eonomiallydriven new area proposals. A Study of Two Hard Rok Communities Having Hard Times The Georgetown-Silver Plume Histori Distrit is aout 50 miles west of Denver on 1-70 loated in a seni high mountain valley. Gold was disovered in 1859 near presentday Georgetown, and in 1864 miners disovered silver. Later, a settlement to the west named Silver Plume egan to develop. Histori Mining Resoures Conferene (Continued from page 17) Setion 3 desries the methods and state of mining site historial arheology. Beause mining sites were often ephemeral and easily removale, frequently all that remains is the deris and ruins of former ativity. In Setion 4, the Histori Amerian Engineering Reord (HAER) is desried. HAER reordation is often used as part of mitigating the adverse effet of removing a histori struture. Setion 106 of the National Histori Preservation At requires Federal agenies to take into onsideration their ations on histori properties, and thus may require mitigation ations. In Setion 5, the 106 proess and example mining site mitigations are desried, suh as videos and films, artifat salvage, puliations, plaing markers, and stailizing histori strutures. Setion 6 inludes papers on how Federal land managers must make resoure management deisions with advie from interested parties, the SHPO and the Advisory Counil on Histori Preservation. They must deide how est to protet and interpret histori mining properties, to provide for multiple demands from visitors, mining ompanies, and other pressure groups. Examples of suessful preservation are disussed in Setion 7. The papers range from one aout the first steps in researhing a potential heritage tourism site to two papers aout the management of parks estalished to ommemorate mining events. Often histori mining sites are loated within parks set aside for their natural resoures. Park managers must take into onsideration ultural resoures in their parks and oasionally take ation to preserve and interpret them. Three of the papers disuss options for suh management on state and Federal lands. In Setion 8, the final paper disusses the Western Mining Museum, in Colorado Springs, Colorado. It is a unique mining museum whih displays operating mahinery, inluding a omplete ten stamp mill, steam drills, and a Corliss engine. Agenda for the 1990s During the onferene several resolutions were passed in support of further work. First, we must ontinue to look at mining sites, not just the legends and arhiteture of the mining frontier. Federal agenies must ontinue responsile management, and those out of line need to e made aountale. There should e no more over-zealous leanups. Mining interests an ontinue while still eing responsive to puli onerns and Federal requirements. Massive mining operations an quikly erase the historial remnants of a entury efore, and preservation should e enouraged. Resolutions were passed in support of a National Mining Initiative to identify and protet mining resoures. This ation would inlude Congressional diretives to agenies responsile for management of mining sites; the ompletion of National Register guidelines for mining sites; the ontinuation of Advisory Counil and SHPO guidane to agenies on appropriate mitigation or avoidane; and the estalishment of HAER guidelines for mining sites. Roert L. Spude is the hief, Branh of National Preservation Programs, Division of Cultural Resoures, Roky Mountain Regional Offie, NPS No. 4

19 In 1868 Georgetown ontained 1,500 residents (eventually growing to 5,000 persons) with hotels and usinesses, and numerous ative mines. One of the ountry's first narrow-gauge railroads the Colorado Central whih originated in Golden, Colorado, reahed Georgetown in Also during this time, tourists disovered an area onsidered to e a pituresque and typial Roky Mountain mining town. In 1893 silver pani rought the virant eonomies of Georgetown and Silver Plume to a stop, and the areas egan to deline in population. These ommunities remained eonomially stagnant throughout most of the first half of the 20th entury. After World War II, tourists ame in inreasing numers; and a few people ought vaation homes. Today, the valley ontains a omined population of more than 1,000, an integral part of whose eonomy relies on tourism. However, most Colorado visitors drive past these 19th entury mining ommunities on 1-70 to the 20th entury mountain resorts of Keystone, Cooper Mountain, and Vail. The Seretary of the Interior designated the Georgetown-Silver Plume Histori Distrit as a NHL on Novemer 13, The histori distrit, nearly 5 miles long, strethes from Georgetown Lake to aout 3/4- mile west of Silver Plume. The tangile remains of the mining frontier inlude various houses uilt for mine managers or workers, merhants' houses, ommerial uildings, shools, hotels, ounty and ity offies, jails, hurhes, firehouses, ore proessing mills, mines, and a railroad. In 1979, the NPS egan the first phase of a reonnaissane survey of Georgetown and Silver Plume. The Georgetown-Silver Plume survey (Novemer 1980) reaffirmed their national signifiane, ut ontained no reommendations. The study identified three options for further investigation inluding a study of alternatives to develop future management, preservation, and interpretive strategies. For the last two deades, the loal ommunities as well as the state of Colorado have een ommitted to preserving this signifiant resoure. Sine 1980, the state, loal governments, philanthropi foundations, and private individuals have invested nearly $6 million in the ommunities to preserve and enhane their rih heritage. Behind the impetus for additional external assistane was the growing reognition that the grassroots support and existing soures of funding may soon e depleted in the development and promotion of Georgetown-Silver Plume as a ultural resoure attration. Loal itizens and eleted offiials have een onerned aout eing ale to preserve ultural resoures when the finanial reserves of the towns, ounty, and state have een seemingly exhausted. One the NPS ompleted the reonnaissane survey nothing happened until the 1987 Colorado General Assemly passed House Joint Resolution No to support further study. Then in Septemer 1988, Congress direted the NPS to prepare a study of alternatives. On Otoer 20, 1988, staff from the NPS Denver Servie Center (DSC) and the Roky Mountain Region attended a meeting alled y Clear Creek County offiials and representatives from Georgetown and Silver Plume. The leaders announed they intended to estalish in onjuntion with the ongressional offies of Senators Timothy Wirth (D) and William Armstrong (R), and Representative David Skaggs (D) an Ameria's Mining Frontier Task Fore. The task fore provided some akground information to the NPS planning team, ut its ativities aused signifiant prolems as the study unfolded. Between Novemer 1988 and Feruary 1989, the NPS planning team traveled to Georgetown and Silver Plume to ollet data and ondut puli meetings. During the meetings, some individuals pleaded for NPS assistane in preserving the deaying 19th entury strutures and in attrating vitally needed tourist dollars. Others expressed fear that the NPS would stop or ontrol mining (whih is virtually nonexistent in the histori distrit), ondemn their homes, and enourage "strangers" to visit their ommunity. As the study progressed, Armstrong, Wirth and Skaggs requested that memers of the study team attend a speial puli meeting in Georgetown on Feruary 1, The meeting ourred a day after a National Inholders Assoiation representative spoke at the request of the newlyformed Friends of an Independent Georgetown. The study advaned rapidly during the winter and spring of In June, the NPS issued a press release summarizing the alternatives ontained in the draft study. In addition, The Clear Creek Courant newspaper reprinted the entire summary doument and distriuted 4,000 opies. The six alternatives presented to the puli offered a road range of strategies for the management, preservation, interpretation, and use of the study area's signifiant ultural, natural, seni, and rereational resoures. Alternative 1 emphasized maximum loal ontrol over the future of the two ommunities. Alternative 2 proposed streamlining preservation groups in order to etter protet resoures and inrease visitation without NPS involvement. Alternative 3 reommended new eonomi development and diversity to enourage the preservation of ultural resoures, again without NPS presene. In Alternative 4, management would ontinue at the loal level, ut a foundation or ommission would e reated to onsolidate and prioritize preservation needs and proposals for development; and the Federal Government would provide one-time funding for the most urgent preservation needs. Alternative 5 suggested that development of the two ommunities from 1859 to the present e emphasized and interpreted. This alternative advoated the designation of the Georgetown-Silver Plume National Historial Park. The physial presene would onsist of a leased or purhased site from a willing seller or donated to the NPS for administrative headquarters/visitor enter and preservation/maintenane uildings. The majority of park ativities would e onduted y ooperative agreements with state, ounty, and loal governments, private organizations, and individuals, and other Federal agenies. Alternative 6 proposed seleting a ore area within eah ommunity for restoration and/or reonstrution as a museum entity y either NPS (Continued on page 20) 1990 No. 4 19

20 Looking for the Mother Lode: (Continued from page 19) or the private setor with heavy emphasis on interpretation through living history. The ore areas would e physially defined to interpret the expanse and extent of the types of usinesses and servies found during the mining heyday etween 1859 and The last two alternatives would require a major ommitment of Federal dollars. To present these alternatives to the puli, the planning team held open meetings in July, where the NPS explained the alternatives and distriuted opies of the summary doument to the puli. The Georgetown partiipants favored either alternative 1, 2 or 3, all of whih onstituted no NPS involvement with the ommunity; the Silver Plume partiipants favored alternative 4 with some support for alternatives 5 and 6. During the puli omment period the NPS reeived 41 responses. The general omments reeived from individual itizens indiate a majority of those responding preferred no NPS involvement. The strong opposition to NPS involvement seemed to stem from fear that property owners may lose ontrol, homes and/or usinesses would e ondemned, property values would deline, and revenues lost. Conerns were expressed aout the towns' aility to handle inreased tourism, a lak of parking areas, and the diffiulty in walking etween the two ommunities (whih is virtually impossile to do at the present). Crime, pollution, dislike of tourists, and the strain plaed on loal servies were other reasons ited against NPS involvement. Comments refleted town pride and western self-suffiieny. A few individuals suggested that loal preservation efforts are exellent, and elieve that these ommunities will ontinue to raise neessary preservation funds. While several itizens praised the autonomy of the towns in having thus far independently preserved their heritage, they felt it was inevitale that external assistane would e neessary. This deate eventually raged in oth loal and metropolitan newspapers. Several respondents disussed the future of mining laims. Mine owners feared the NPS would halt mining throughout the ounty or, at least, plae mining under intolerale regulations. They argued that the future for the two ommunities lay in mining, not tourism. The two ommunities voted on Novemer 21, 1989 to determine puli opinion on NPS partiipation. The people in Georgetown voted 352 to 257 in favor of limited or full NPS ativity. Silver Plume voted 57 to 40 in favor of limited or full NPS involvement. The eleted offiials of Georgetown took the eletion as a mandate to loy Congress for additional NPS assistane in the mining ommunities. These efforts ontinue to the present. What Atually Happened Supporters of additional NPS involvement in the Georgetown-Silver Plume ommunities onvined the Colorado ongressional delegation to mandate a study of alternatives without first investigating potential puli support or opposition. The reation of a loal task fore to provide information for the planning team ated as a atalyst for opponents who effetively onfused the roles of the group and NPS study team. The loal task fore went far eyond its mandate with suh ativities as attempting to design a visitor enter for the ommunity, a step not even suggested in the study of alternatives. In addition, due to these diffuse efforts, those who may have supported the NPS study eame worn out and despondent due to the inessant arping and misinformation transmitted y opponents. When these opponents rose in fore at puli meetings, the advoates remained relatively silent. When the need ame to support the study of alternatives, few stood to e ounted. Also the dislosure of a draft ill purporting to all for the estalishment of a Georgetown- Silver National Historial Park aused irreparale damage and loss of rediility to the study proess. The Friends of an Independent Georgetown opposed any loal NPS presene. From the outset FIG attempted to delay or even stop the study. As the study advaned, there were two predominant issues fear of ondemnation of private property y the NPS and fear of further Federal ontrols over the delining mining industry. Although the NPS explained its urrent poliy at meetings, pulished information on NPS guidelines, and met with onerned itizens and groups, the planning team never effetively silened those ritis who exploited the two issues. In addition, the negative attitude toward a possile role for the NPS in Georgetown refleted the traditional western view of rugged individualism versus Government regulations spawned in Washington, DC, and the onern that the growing tourism industry in mountain ommunities will plae pressure on limited ommunity resoures in suh plaes as Georgetown and Silver Plume. The Broader Issue Despite the site-speifi alternatives ontained in the 1989 study, there is a question whether Georgetown-Silver Plume Histori Distrit is the est plae to interpret the western mining frontier. In Colorado alone there are a half dozen other NHLs that illustrate this theme. Although the resoure is a National Histori Landmark and, y definition, of national signifiane a divided puli at Georgetown illustrates the limitations of Federal protetion. Also, a roader study is needed to determine the est plae or plaes to present the gold and silver mining frontier story. There are many other andidate areas throughout the western US whih require sare Federal dollars and expertise to preserve equally signifiant resoures whih have more supportive pulis. This study illustrates the need to advane eyond the traditional riteria of national signifiane and threats to resoures in the estalishment of a new National Park Servie unit. Puli interest and sentiment toward reation of an NPS unit in small ommunities must e gauged aurately efore the NPS is requested to undertake suh a study. This is an appropriate role for Congress to assume. In the ase of Georgetown and Silver Plume, the NPS' puli involvement proess proved ritial in determining the lak of loal support for future Federal ation. After all, Congress must diret sare Federal funding to those ommunities with nationally signifiant resoures whih support the mission of the NPS. Ron Johnson is the supervisory planner and John Paige is a ultural resoures planner for the Central Team, Denver Servie Center, NPS No. 4

21 Reonfiguring the Cultural Mission: Trial Histori Preservation Programs Dean B. Suagee Karen J. Funk The Amerian people love to elerate history, ut those parts of Amerian history that feature Amerian Indian and Alaska Native peoples are prolemati. 1 Many of these hapters are so shameful that ignoring them has een an aepted pratie. But there is muh in the histories of Amerian Indian and Alaska Native peoples and their dealings with the dominant Amerian soiety that is glorious, and muh of what is shameful is nevertheless instrutive. We elieve that an essential part of the solution to the prolem of Indian and Alaska Native peoples in Amerian history must e for Indian and Alaska Native peoples to preserve their own histories and to present their histories to the dominant soiety from their own perspetives. Aordingly, we have orrowed our title of this artile from the reent onferene "Cultural Conservation: Reonfiguring the Cultural Mission" sponsored y the Amerian Folklife Center of the Lirary of Congress. This notion onveys our sense of the ways in whih our Federal histori preservation program must hange if it is to meaningfully aommodate Indian and Alaska Native interests in histori preservation and ultural onservation. The National Park Servie (NPS) has a pivotal role in the effort to ring tries into full partnership in our histori preservation program. That role is twofold: 1) through its "external" program NPS is the administrator of the National Histori Preservation grants to tries and will have a ritial say in the development of the trial programs; and 2) through its "internal" program the NPS administers and designs resoure management and interpretive programs for millions of ares of puli lands whih inlude a great many areas that are important to Indian and Alaska Native peoples for histori and ultural reasons. The NPS internal poliies also affet other Federal land managing agenies praties, sine the NPS is onsidered the "lead ageny" in the field of ultural resoures management. NPS responsiilities inlude the sensitive areas of arhaeologial exavations and poliies onerning matters suh as disposition of human remains and arhaeologial resoures. These are matters in whih the religious eliefs of Indian and Alaska Native peoples have often een negleted. There are many ways in whih the NPS ould help to address the "prolem" of Indian and Alaska Native peoples in Amerian history. The sope of this artile, however, is limited to trial partiipation under the National Histori Preservation At. Bakground The 1980 amendments to the National Histori Preservation At of 1966 (NHPA) enated two important provisions relating to Indian tries. First, Setion 2 of the NHPA, the delaration of poliy, now lists Indian tries among the entities whih are to e inluded in a partnership for arrying out the Federal histori preservation program. 2 Seond, the NHPA now authorizes the Seretary of the Interior to make grants to Indian tries "for the preservation of their ultural heritage." 3 The fisal year 1990 udget for the Department of the Interior inludes $500,000 for grants to tries from the Histori Preservation Fund, the same soure of funds from whih grants are made on a reurrent asis to help fund the operations of the State Histori Preservation Offies (SHPOs). This marked the first time that funds have atually een appropriated for trial histori preservation purposes. The NPS soliited appliations from tries for these grants, and reently announed that 15 of the 270 proposals have een seleted for funding. We are enouraged that Congress has finally started the proess of ringing Indian tries into the partnership for arrying out our national histori preservation program. However, the initial appropriation of $500,000 must e regarded as only a eginning. Through the more than two deades in whih the states have reeived histori preservation grants, the funding needs of Indian tries for histori preservation have een almost entirely negleted. If Indian tries are to eome real partners in this program, as we elieve they must, the level of appropriations for grants to tries must e sustantially inreased and must e provided on a reurrent asis. The message of tries seems to e having an impat with regard to histori preservation. The Seretary of Interior's 20th Anniversary Report on the National Histori Preservation At says that tries should e given the option of operating their own programs under the At. 4 The National Conferene of State Histori Preservation Offiers testified in eah of the past two years in favor of funding for trial governments under the NHPA, and that organization has also inluded tries in their legislative efforts to revise the National Histori Preservation At. We also are enouraged y the fat that the Administration's proposed FY91 udget requests $750,000 in funding for trial histori preservation programs. While this amount of funding would arely egin to meet the needs, the fat that the Administration requested even a modest inrease over the FY90 appropriated level is a politial gain. The FY90 Interior Appropriations At also requires the NPS to report to Congress on trial histori preservation needs, and further requires that the NPS onsult diretly with tries in developing the report. We ommend the NPS for its efforts in working with tries to arry out this mandate and for the quality of the report entitled "Keepers of the Treasures." Important Role for Tries Indian tries are different from other ethni groups in the United States in two fundamental ways. First, in ontrast with all other ethni groups in the present day (Continued on page 22) 1990 No. 4 21

22 Reonfiguring the Cultural Mission (Continued from page 21) United States, whose ultural roots reah ak to other lands, the ultural traditions of Indian tries have their roots here in North Ameria. The traditional material ultures of Indian tries were quite literally part of the natural environments in whih they lived. This an readily e seen from the ways in whih Indian people provided for their sustenane, the tools, and lothing and shelters that they made, and the ways in whih they ornamented their material possessions. The nonmaterial aspets of trial ulturesreligious elief systems and eremonial praties, oral history and folklore, languages are also losely tied to the natural world. As we enter the last deade of the 20th entury, the soiety at large should ear some responsiility for helping to preserve these indigenous ultural traditions. Suh responsiility is appropriate eause the ultural disintegration that exists today in many Indian ommunities is largely a result of the westward expansion of the United States and the Federal poliies that followed expansion, poliies whih were intended to fore (or, in the enign era of the Indian Reorganization At of 1934, not to fore ut rather to enourage) Indian people to eome assimilated into the dominant Amerian soiety. The assimilationist thrust of Federal poliy was finally aandoned in the 1970s, when the urrent poliy of "self-determination" ame into favor in oth the Exeutive Branh and the Congress, ut Indian people must still ope with the legay of generations of assimilationist laws and poliies. Looking to the future as well as to the past, the larger soiety should want to help the tries preserve their ultural heritage eause, in the ontext of the environmental rises the world faes today, the larger soiety may e ale to learn something of pratial value from these trial ultures whih have evolved in a lose relationship with the natural world. Ultimately however, itizens of the dominant soiety and their eleted offiials must rememer that trial ultures are living ultures that annot e preserved exept in the ontext of the ommunities that arry them on. The larger soiety an and should help, ut the responsiility for the preservation of trial ultural traditions must e orne y the tries themselves. The other fundamental way in whih Indian tries are different from other ethni groups in the United States is that Indian tries are units of government whose sovereignty predates that of the United States. The governmental authority of Indian tries has een limited y treaties, y ats of Congress, and, in ertain limited instanes, y neessary impliation from their dependent status. Exept for suh speifi limitations, Indian tries possess the full range of governmental authority that is inherent in the onept of sovereignty. Indian tries may also exerise powers delegated to them from the Federal Government and from the states. As sovereign entities, tries are distint from oth the Federal Government and the states. Within the oundaries of Indian reservations, trial governments are inreasingly funtioning as the primary governmental authority, as the roles of Federal agenies have eome more seondary in nature. The Bureau of Indian Affairs (BIA) and Indian Health Servie (IHS), whih formerly had a dominating presene in Indian ommunities, have eome little more than funding soures on many reservations, as trial governments have ontrated to perform their funtions pursuant to the Indian Self- Determination and Eduation Assistane At of State governments have only limited governmental authority within Indian reservations, espeially with regard to Indian people and Indian lands. In keeping with the priniples of trial sovereignty, if the tries are to eome real partners in our national histori preservation program, as the NHPA delares to e the Federal poliy, tries need to have the option to deide for themselves whether or not they want to perform the lead role in the administration of the Federal histori preservation program on lands within their territorial jurisdition. As a pratial matter, this means having appropriately qualified trial staff to identify properties within trial jurisdition that appear to e eligile for listing on the National Register of Histori Plaes, to plan and implement appropriate measures to preserve suh properties, and to partiipate in the onsultation proess estalished pursuant to 106 of the NHPA (and 36 CFR Part 800) for proteting suh properties from damage or destrution as a result of ations taken, or assistane provided, y Federal agenies. The fat that the SHPOs have een given suh a major role in the 106 onsultation proess has ontriuted to frition etween tries and SHPOs, and the proper way to alleviate suh frition, the only way that is onsistent with trial sovereignty, is to offer tries the option of performing the role of the SHPO within Indian reservations. We must note, however, that it is not enough to provide this option for tries, even if the level of appropriations is inreased suh that the option is truly availale to those tries that want to exerise it. Trial programs that are operated parallel to state programs will not e enough to serve the roader national interest in histori preservation unless there is genuine oordination and ooperation among trial and state programs. Tries in the ontiguous 48 states of the United States today have governmental jurisdition over only 3% of the land, yet they maintain interests in, and indeed are vitally affeted y, lands and other natural resoures outside of their reservation oundaries. Tries have oth histori and ontemporary interests in knowing aout, proteting, interpreting, and having aess to properties that are outside their reservations. The SHPOs an perform a key role in preserving suh properties and assuring trial aess to them. Similarly, tries ould provide for the protetion of histori properties within their reservations that, although not of great signifiane in trial history, may e signifiant in state or regional history. Tries an play an important role in helping to expand the fous of our national histori preservation program y reognizing the signifiane of histori properties whih do not inlude histori uildings. A sustantial measure of suess in preserving the historially signifiant uilt environment has een ahieved during the first quarter entury sine the enatment of the National Histori Preservation At of 1966, ut we have had less suess in preserving historially signifiant plaes and have arely egun to address the hallenge of reognizing the historial signifiane of nonmaterial ulture. As trial governments eome integrally involved in No. 4

23 our national histori preservation program, these hallenges an e expeted to reeive more attention, eause trial governments will not let them e negleted. The virtual exlusion of Indian tries from the Nation's histori preservation program has een a loss not just to Indian and Alaska Native peoples, ut to all Amerians. All of the land whih is urrently within the United States is the aoriginal territory of Amerian Indian and Alaska Native peoples. For Native peoples, the failure to preserve ulturally signifiant properties and make them aessile for Native use results in the weakening of trial ultural traditions and threatens the aility of Native peoples to preserve their self-defined identities. The general puli's relative lak of knowledge aout Indian history and ontemporary Indian soieties is an intangile loss whih ontriutes to misunderstandings etween Indian peoples and their non-indian neighors. All Amerians would enefit from a national histori preservation program in whih trial and state programs work together. Grants to Tries The statutory language that authorizes grants to tries states that suh grants may e made "for the preservation of their ultural heritage." Cultural heritage is a very road onept, and, aordingly, this language appears to authorize a road range of ativities within the trial grants program. The NPS has adopted suh a road interpretation in its guidane to tries. We ommend the NPS for taking this approah, and we urge that the NPS resist any temptation to overregulate the trial grants program. Some tries with relatively large reservations and well-estalished governmental institutions ould make the emphasis of a histori preservation grant the development and implementation of a trial law for the protetion of histori properties, with the intention of replaing the SHPO within reservation oundaries. For other tries, the Setion 106 proess may e of less onern, ut they may still e quite interested in preserving histori properties. Still other tries may e more interested in preserving their non-material ulture, espeially their language and oral tradition. A review of the 280 trial grant appliations for the $500,000 in availale FY90 monies shows that trial histori preservation differs signifiantly from the general pereption of what onstitutes histori preservation. Of the projets proposed for funding under the FY90 trial histori preservation grants there were 137 proposals for development of trial histori preservation plans, ordinanes and/or offies. There were 139 eduationrelated proposals inluding oral history, language preservation, trialspeifi urriula and arhives and museum-development. Thirty-one appliations requested funding for training trial memers in preservation and arhaeologial skills designed to lessen the reliane on non-indian outsiders and 64 proposals requested funding for identifiation of on- and off-reservation sites of religious and historial signifiane. Inluded among these 64 appliations were requests for assistane to estalish dataases on sites and areas whih ould, in turn, e used in trial, Federal and state land managing and planning ativities. Appropriations for Trial Programs There are more than 500 federally reognized Indian tries in the United States, inluding Alaska Native villages. While we wish for a level of appropriations that would e suffiient so that every trie ould reeive funding for a trial histori preservation program, we do not realistially expet Congress to provide this amount of money, at least not in the seond year of the program. We annot state too strongly that the preservation of its ultural heritage is a matter of vital importane for virtually every Indian trie in the United States. More than 65 tries sent representatives to the two onsultation meetings whih the NPS held in January 1990 and many others have ommuniated via telephone and/or letter. Tries have een struggling to preserve their ultures against formidale odds for generations. Indeed, it is largely eause of their perseverane that the numer of tries in existene today is as high as it is. However, if tries are to eome real partners in our national histori preservation program, they need to e ale to hire staff to interat with state and Federal agenies and to perform at least some of the funtions within their reservations that the SHPOs perform in their states. If our Nation as a whole is to realize the enefits that ould flow from the partnership of tries in the histori preservation program, the appropriations for trial program grants must e more than a token level and must e provided on a reurrent asis. The authors reommend that in oth FY91 and FY92, the level of appropriations for trial programs e at least $5 million, and that this level e gradually inreased in susequent years. Furthermore, we reommend that the appropriations for trial programs not e simply deduted from funds that would otherwise have een appropriated for state programs. Our national histori preservation program needs to uild ooperative working relationships etween tries and states, and to make it appear that trial programs are in ompetition with state programs for the same funds would e ounterprodutive. Conlusion The National Histori Preservation At of 1966 is the asi Federal legislation pursuant to whih our national histori preservation program has een fashioned. The 25th anniversary of the NHPA will e oserved in The aomplishments of the first quarter entury will e elerated, and some of the hallenges of the next quarter entury will e disussed. It is our hope that, during the next quarter entury of the NHPA, the dominant Amerian soiety will ome to terms with the "prolem" of the Amerian Indian in Amerian history. We reognize that this is a lot to hope for and that it will likely take longer than a quarter entury. We elieve, however, that the Amerian soiety must try to ahieve suh a reoniliation, and we know that a neessary step toward suh a reoniliation is to estalish a prominent role for trial governments in our national histori preservation program. (Continued on page 24) 1990 No. 4 23

24 The Cost/Benefit of Making an ARPA Case Tom Des Jean Looting arheologial sites for relis on the Cumerland Plateau has een a ommon pratie for at least 70 years. Big South Fork National River and Rereation Area (BISO) is espeially targeted y reli hunters eause of its estimated 4,000 visile prehistori rokshelter sites and its 103,000 ares of rugged terrain whih is diffiult to patrol. The Visitor Protetion Division at BISO was aware of on-going looting prolems within the area, and eletroni surveillane equipment (ESE) had een installed at an arheologial site known to e frequently looted (an arheologial sites monitoring program developed etween 1987 and 1989 provides information on atively looted sites). On Deemer 23, 1988 rangers disovered three adults and a juvenile illegally digging at the prehistori site. They were taken into ustody and harged with a felony violation of the Arheologial Resoures Protetion At. While this may sound like a pretty straightforward "ust," there was a lot of work and expense involved. The osts inurred y the area to make this "ust" were high and so was the ost of proseution. The relatively light sentene meted out appeared, initially, to e too unalaned to justify suh an expense out of a limited enforement udget. Arrest Expenses ESE gear $5, Installation Alarm responses Arrest & site seurity Total $5, Proseution Costs NPS arheologist $1, Consultants (U of KY) Rangers ase work Court appearanes & asework. 1, Travel, typing, postage, et Total $3, Proseution osts inurred y BISO inluded rangers salaries and support. They also inluded an initial impat assessment y an NPS arheologist who had to e flown in, and a susequent, independent assessment y a non Federal, "ojetive" onsultant. The total ost to the National Park Servie to make this ase was approximately $9, The result of adjudiation was that the three defendants pleaded guilty to a misdemeanor. The juvenile, as is ustomary, was not harged. For this onvition the defendants were all fined $474.00, and were given two years proation and two years anishment from the area. If left at this point the NPS got a 6.5:1 ratio of dollars spent to atual fines. The total ost to the Federal Government, inluding ourt osts, proseutor, and defense attorneys, would push this ratio muh higher; proaly on the order of 10:1. Other results that ame out of this ase were more rewarding and did more for proteting the finite ultural resoures at the Big South Fork than any other methods. The Deemer 23 ARPA inident was nationally puliized and eame a featured news item in many small loal newspapers and in national newspaper hains in Louisville, KY, and in Nashville, TN. The ase was still eing referened in major newspapers a year after the inident. It was also reported at the time y two television news programs in Knoxville, TN. While muh of the value for this ase annot e demonstrated in monetary amounts, some idea of dollar values an e estimated y omparing the media overage expended in reporting this inident with the ost of advertising spae of similar size and time duration. Cost of Media Coverage National Press (wirenews) $1, Louisville (national newspaper hain) 1, Nashville (national newspaper hain) Loal newspapers Knoxville-TV 2, Knoxville-TV (estimated) 2, Loal radio stations Total $9, These rates indiate that the peripheral or spinoff values of ARPA ases tend to even-up the ost/enefit ratio. When enforement expenses ($9,184.18) are ompared to the puliity value ($9,078.90) a more evenly alaned ost/enefit ratio (1:1) ours. However, merely quantifying the value of media overage (expressed as advertisement osts) misses the real impat of suh puliity on the puli at large. Consider that the average leture given y the Interpretation Division to shools and ivi organizations ontats aout 30 individuals at a ost of approximately 54 ents per person. If the NPS were to ontat the same numer of individuals that the ARPA media overage ontated (aout 513,000) then we would have had a muh larger expenditure. Numer of People Reahed y Media Louisville (national newspaper ir.) 200,000 Nashville (national newspaper ir.) 70,000 Loal newspapers (ir) 35,000 Knoxville-TV (estimated viewers) 100,000 Knoxville-TV (estimated viewers) 100,000 Loal radio stations (est. listeners) Total persons ontated (estimated) 513,000 Value of Media Coverage 513,000 x $.54 = $277, While the seond and third ARPA usts in an area will not generate the same degree of media attention that the first one will, the value of puliity (measured in terms of estimated numers of persons ontated) illustrates how making an ARPA ase an raise puli onsiousness and justify the expense that ultural resoure law enforement requires. Tom Des Jean is an arheologist at the Big South Fork National River and Rereation Area, Oneida, TN. Reonfiguring the Cultural Mission (Continued from page 23) The authors are with Hos, Straus, Dean & Wilder, a law firm in Washington, D.C. speializing in Amerian Indian and Alaska Native law. Dean Suagee is an attorney and Karen Funk is the governmental affairs oordinator for the firm. This artile was adapted from testimonv written on ehalf of three of the firm's trial lients, the Three Affiliated Tries of the Fort Berthold Reservation, North Dakota, the Miosukee Trie of Indians of Florida and the Metlakatla Indian Community of the Annette Islands Reserve. 'See generally The Amerian Indian and the Prolem of History (C. Martin, ed., Oxford University Press, 1987) U.S.C U.S.C. 470a(d)(3)(B). 4 Seretary of Interior's 20th Anniversary Report on the National Histori Preservation At (1986). 5 See generally F. Cohen, Handook of Federal Indian Law (1982 ed.) 6 Pu. L , odified as amended at 25 U.S.C n No. 4

25 PRESERVATION TECHNOLOGY UPDATE The Great Reonstrution Deate: the Moment in Time Dear Editor, I was intrigued to see the artiles on reonstrution in CRM Bulletin, Vol. 13, No. 1, eause the very same issues are ausing deate in Britain. The onflits arise in the same way: the interpretive motive eroding the very information it seeks to display. My own government ommission, English Heritage, operates on the general priniple that monuments should e "onserved as found," i.e., maintained in the state they were when they ame into governmental are. In pratie, this has to e qualified eause monuments require ative onservation through repairs and management. Beause I work with landsapes, whih annot e onserved as found eause their materials grow and die, I need a version of this priniple that reognizes the dynami equilirium etween natural deay and repair. I work on the axiom... that repairs should seek to return a site to its state following its last signifiant hange. The deate then eomes one of deiding whether late hanges are signifiant. The asis of any suh philosophy is that ertain monuments should e removed from the stream of evolution, as this is the est way to avoid any further signifiant loss of arheologial information. This is valid, I feel, for monuments whih are taken into are for the purpose of retaining that information. What is not aeptale at suh sites is reonstrution to an early "high point," as William J. Hunt phrases it. This neessarily involves loss of arheologial information ut gives the false impression of when the evolution of that monument eased. The onept of restoring gardens to the high point of their development is understandale, eause that is when they were of most historial interest. The gardens of Williamsurg and the early restorations y the Garden Clu of Virginia were, despite oasional arheology, sustantially the inventions of the landsape arhitets involved. One British example, y an Offie of Works inspetor who had worked in the USA, followed. This was Kiry Hall, in Northamptonshire, where urrent arheology reveals not only the inauray of the reonstrution ut also how muh arheologial information must have een lost during it. The 1970s parterre at Kenilworth Castle, in Warwikshire, is merely there to give the right atmosphere to set off the Tudor uildings neary. The reonstrution at Het Loo, in the Netherlands, looks well, ut the possiility of heking its auray has proaly een lost eause the learane of the overurden was aomplished rudely y ulldozer. For suh reason, reonstrution is no longer the first refuge for the garden onservator. It might e of interest if I ran through some of the reent ases on oth sides of the Atlanti where diffiult prolems with multi-layered landsapes were solved y the "last signifiant date" guide: Hampton Court, Greater London, UK. The gardens here are of two main phases, Henry VIII and William and Mary. Despite the temptation to suggest reonstrution of some Tudor gardens to math the Tudor palae, a study ompleted in 1982 reommended that restoration should e to the William and Mary period on the asis that the whole gardens would regain their unity of expression, and that nothing of the remaining Tudor fari would e lost y this approah. Stowe House, Bukinghamshire, UK. This famous garden evolved ontinuously from the end of the 17th entury until aout Just after that date the gardens were well reorded y a series of waterolors y an artist alled Nattes. Instead of returning the gardens to some heyday, perhaps in the 1730s when the Charles Bridgeman gardens were made, the ommittee under George Clarke deided in the mid 1980s that restoration should e to the late 1790s. The Fens, Boston, MA. The Fens were originally designed y the Olmsted offie. In the 1920s there was a redesign y Arthur Shurtleff, later to eome a prominent Boston landsape arhitet. Finally, the "Vitory" gardens were made during the Seond World War and a war memorial was uilt. For a while, the onsultants struggled with the impliations of returning the Fens to the Olmstedian form, ut this would have involved a great deal of reonstrution. Then they aepted that the park had evolved. Gettysurg, PA. This 1860s attleground was hanged within months y a large emetery for those slain. Then the attleground was made a visitor site, and roads were laid out and wardens houses uilt. The last signifiant hanges were in the period After muh heart-searhing, the NPS has aepted that returning the attleground to the day of the attle would e so destrutive that it is not a viale option. Instead, the aim is the date. Bellevue House Kingston, Ontario. Sir John A. Madonald, Canada's first prime minister, rented the house in 1848 for a year at an important stage of his areer, and this is why it was aquired y Parks Canada. The garden that survived was predominately that made y later oupants of the 1860s and no evidene as to what it was like efore is availale. Although the house was furnished to interpret Madonald's oupany, diretives to do the (Continued on page 26) 1990 No. 4 25

26 same for the garden were resisted y the site superintendent and others. John Stewart reports that "It was felt that although the site ommemorated Sir John A. Madonald, the real worth of the garden is as a doument of a Vitorian garden, estalished y a well-to-do family of the 1860s whih had evolved and whih was worthy of preservation.... The approah taken was to repair as well as possile those elements whih had een damaged or lost and to restore only those features whih ould e doumented." Knole, Kent, UK. The Wilderness at Knole was walled in Tudor times, and improved in several phases. It was engraved y Johannes Kip aout 1705, altered again in 1711, and reengraved y Thomas Badeslade in There was more planting in the 1730s, and a good deal more in the 1760s. The first good mapping dates from the 1860s. It is likely that what was then shown had not hanged signifiantly sine the 1760s and no major hanges have ourred sine. No major hanges, that is, exept for the storm of 16 Otoer 1987 whih devastated the area. Comparison of mapping and field arheology reveals the loations of most of the 1860s paths, ut only a few of those shown on the Badeslade. The onsultant wants to restore to Badeslade, ut English Heritage refuses to agree to the plan on the ground that a speulative reonstrution onveys little valid historial information and may even destroy some. I hope that these few examples show that speulative reonstrution of landsapes appears to e on the way out on oth sides of the Atlanti. Instead, repairs to the last date of signifiant hange onserve all historial information and tell a more honest, if more omplex, tale. Yours sinerely, David Jaques Inspetor of Histori Parks and Gardens, English Heritage The following response was prepared y Lauren Meier, ASIA, Historial Landsape Arhitet, Preservation Assistane Division, National Park Servie. David Jaques has raised thoughtful issues regarding the future of our signifiant histori landsapes: How does one hoose an appropriate preservation treatment? The Department of the Interior has developed definitions and standards for seven asi treatments: aquisition, protetion, stailization, preservation, rehailitation, restoration, and reonstrution. Choosing an appropriate preservation treatment may e ased on a variety of fators, inluding the existing ondition of the property, present and future threats, eonomis, existing or proposed uses, or how the property is to e interpreted. Regardless, for those histori properties that are signifiant, we should strive to protet surviving histori fari and to provide interpretation in a lear and honest way. The Seretary of the Interior's Standards for Rehailitation state: Most properties hange over time; those hanges that have aquired histori signifiane in their own right shall e retained and preserved. Both restoration and reonstrution, however, may require removal of later layers in order to produe an image of an earlier period. Deisions to restore or reonstrut a histori property should e ased on two premises: 1) when the interpretive ojetive for the property outweighs the issues related to destrution of later layers; and 2) when sustantial and adequate doumentation exists to eliminate the hane of speulative onstrution. National Register riteria state that ordinarily reonstrutions are not eligile for the National Register. Reonstrutions, however, do qualify "if they are integral parts of histori distrits that do meet riteria, or... are a reonstruted uilding when aurately exeuted in a suitale environment and presented in a dignified manner as part of a restoration master plan, and when no other uilding or struture with the same assoiation has survived." Regarding the examples presented y Mr. Jaques, it may also e interesting to note that two other events ontriuted signifiantly to the histori ontext of the Fens. In 1910, the Charles River was dammed whih altered the eology of the water system, from an estuary to a fresh water ourse. In 1907, onstrution of the Museum of Fine Arts was egun adjaent to the parkway. Thus, Arthur Shurtleff had to deal with major hanges in the history of the ity whih have onsequently aquired signifiane in their own right. Today, the City of Boston praties ongoing "rehailitation" of the histori landsape, whih preserves the histori harater of the system, and allows for modest new onstrution to aommodate future use. In the ase of Gettysurg, the site is interpreted and managed as a ommemorative attlefield in reognition of the importane of the later additions. From the perspetive of the Seretary of the Interior's Standards, this is an appropriate treatment. In onlusion, we onur with the position that we as preservationists must e sensitive to the many layers of history assoiated with our ultural resoures. We hope that existing and new guidane materials produed y the National Park Servie will ontinue to help histori property managers in the U.S. make informed and appropriate deisions regarding the treatment of our Nation's histori landsapes. Update No. 4

27 Notes on Histori Flooring An 18th Century Method for Making High Quality Wooden Flooring from Boards of Irregular Thikness Lee H. Nelson The sujet of flooring is a very omplex one, that involves a numer of regional variations, differenes of taste and eonomi level, raft praties, materials, and variations within a given uilding, depending on the importane of the room. This training aid fouses on only one aspet of assuring that a highquality wooden floor would e smooth and would require no hand planing or sanding after the floor was laid all this at a time when there was no quality ontrol method for the sawing of oards to a uniform thikness, whether y pit sawing or mill sawing. Before the age of modern mahinery, logs were either pit sawn into oards using hand laor, or were mill sawn; ut, as with other uilding materials, suh as handmade riks, onsiderale variation ourred in produing oards of a speifi thikness. For example, if the desired oard thikness was 1" thik, oards that ranged from 1" to 1 3/8" would e aeptale as meeting the intended size. This variation in the thikness of individual oards presented a prolem-solving hal- View showing the under side of flooring oards, exhiiting the method desried in this Training Aid for making wooden flooring from oards of irregular thikness. This view is looking up from the ellar of the Dudley Digges House, a. 1750s, Colonial National Historial Park, Yorktown, Virginia. Photo y Thomas L. Williams, for the National Park Servie, Negative Colonial NHP. lenge to the raftsmen to fashion suh oards into a smooth and flush floor. After pit sawing or mill sawing the log into oards, the following steps were required to produe a high quality flooring jo: 1. Hand plane the top surfae of the oards to produe a smooth surfae. (Continued on page 28) "Notes on Histori Flooring," was developed as an example for partiipants in the Skills Development Plan for Historial Arhitets and Others with Histori Preservation Responsiilities [see CRM Bulletin, Vol. 9, No. 4, 1986]. The Skills Development Plan provides an opportunity for National Park Servie histori preservation professionals to gain jo-related knowledge in a hosen area and to share that knowledge with others. The method of ommuniation is left up to the partiipant, ut may inlude an oral presentation or slide/tape presentation, a graphi presentation suh as a poster, photographs or slides, videotape, or model; or, a written artile or report. Lee Nelson prepared several short training aids in an attempt to show how useful preservation information ould e presented in a very rief format with simple freehand skethes. This one is ased on the author's experiene working on National Park Servie projets in Yorktown and Philadelphia. The Skills Development Plan was developed jointly y the NPS Park Histori Arhiteture Division and the Preservation Assistane Division in onsultation with the Employee Development Division. In 1988, the NPS was awarded a Citation for Outstanding Eduation in Pratie y the Amerian Institute of Arhitets for the Skills Development Plan. For additional information aout the Skills Development Plan, ontat Emogene A. Bevitt, Preservation Assistane Division, National Park Servie, U.S. Department of the Interior, P.O. Box 37127, Washington, DC (202/ , FTS ). EAB Update 1990 No. 4 27

28 Notes on Histori Flooring (Continued from page 27) 2. Hand plane oth edges of the oards with a very slight evel to assure tight joints at the top edges of the oards. 3. Using a raet plane, hand plane raets on eah lower edge of the oards using a hand made gage or aliper to estalish a onstant dimension or referene line as to the desired uniform thikness. The raet is the quality ontrol aspet of this proess to assure a flush floor. 4. Hak out (using a tool like an adze) the under surfae of the floor oards down to the raet lines, so that there is a onstant flooroard thikness at eah joist intersetion, thus assuring a flush surfae (see aompanying skethes). 5. Lay the floor oards on joists and hammer "lind" nails through the edges of the floor oards into the joists. Even if the floor oards were fae nailed (exposed nail heads), the aove steps were usually followed. Note: Floor oard examples that demonstrate some of the information in this artile exist in the Independene National Historial Park Arhitetural Study Colletion. This artile does not attempt to address those types of flooring that used tongues and grooves, splines, or joints at the ends of floor oards. For illustrations of early tools suh as pit saws, adzes, raet planes, et., see A Museum of Early Amerian Tools y Eri Sloane, 1964, New York. Lee H. Nelson, FAIA, was a historial arhitet with the National Park Servie for 32 years. He retired as hief, Preservation Assistane Division, in Feruary Emogene A. Bevitt and Marilou Reilly, Preservation Assistane Division, assisted in the development of this artile. Reommended Reading See The Rules of Work of the Carpenters' Company of the City and County of Philadelphia, 1786, annotated y Charles E. Peterson, FAIA, Prineton, 1971, [pages 10-11], whih suggests floors of four distint levels of quality, eah with several levels of refinement, the finest of whih onsisted of "1 1/4 inh stuff, oards from 3 to 6 inhes road, square edge and straight joint... [and add ost] if suh oards are grooved... [and add more] if suh floors are nailed in the edge, the heading joints tongued... [and add one fourth more] if suh floors are dowel'd..." Update No. 4

29 ARCHEOLOGICAL ASSISTANCE PROGRAM The Many Pulis for Arheologial Puli Eduation Franis P. MManamon This artile first appeared in the Federal Arheology REPORT, June More and more individuals and organizations reognize the need for a national, high-profile effort to promote arheology throughout the ountry. Leaders in Amerian arheology pereive that etter puli understanding aout arheology will lead to more preservation of sites and data, less site looting and vandalism, greater support for the uration of arheologial olletions and reords, and a demand y the general puli for more interpretation of and partiipation in arheology. Many government agenies- Federal, state, trial, ounty, and muniipal already have emraed puli eduation efforts and egun to promote them. The Arheologial Assistane Division (AAD) has reated a dataase of summary information aout puli eduation efforts in arheologial projets. This learinghouse the Listing of Eduation in Arheology Projets (LEAP) has aout 1,200 entries. As puli eduation eomes a more ommon onern, we want it also to e as effetive and effiient as possile. This means that we must ome to know our audiene etter, to sharpen the fous of our messages, and to use appropriate media. We an distinguish several "pulis" among the audiene for puli eduation. Eah requires a different message and means to reah them. They are not mutually exlusive, nor are they of the same size, ut eah is important and merits attention. The General Puli We do not have detailed survey data that an e used to divide the general puli in terms of varied interests in arheology. Proaly well elow 5% of the puli may e truly "arheologially literate," suh as some avoational arheologists INFORMATION REPORT and deeply interested, well-read lay persons. Some 25% to 30% may e interested enough to read magazine artiles on the topi, visit arheologial parks or exavations, or perhaps even take part in an exavation as volunteers. The alane of the general puli proaly gets its arheology, to the extent that it gets any, from Indiana Jones or the nightly news. We ought to expand our efforts toward reahing the more interested and informed people, espeially in the area of partiipatory experienes suh as volunteer ativities, open houses, and tours. Additionally, there are important sugroups within these ategories who appreiate arheology, atively support arheologial projets, and even volunteer time and servies in a variety of ways that assist arheologial ativities. Boy Souts, Girl Souts, ommunity puli servie organizations, natural resoure onservation organizations (e.g., the Auduon Soiety, the Sierra Clu, and the Nature Conservany), and retired persons organizations an e moilized for arheology. Mass media eduation projets and programs are needed. Efforts to reah the majority of the general puli should e positive, short, and sweet. Most of the puli seems to e inherently supportive of arheologial preservation when it is not presented as a hoy for rih and famous dilettantes, grave roing, or a wildly expensive and misguided government oondoggle. Students and Teahers Students and teahers are a "puli" that deserves speial attention eause they present speial opportunities. If teahers an instill in their students an appreiation of arheology and arheologial resoures, efforts to provide those teahers with akground knowledge will e exponentially fruitful. But how do we reah teahers effiiently? There is intense ompetition for teahers' attention and interest. Geographers, aked y the sustantial resoures of the National Geographi Soiety, and historians urrently have major initiatives for improving the teahing of their disiplines in seondary and elementary shools. Siene eduation also is a topi of reent onern and attention. This makes it unlikely that ourses devoted exlusively to arheology will eome ommon in elementary or even seondary shools. However, eause of the wide range of disiplines to whih arheology is related, there are opportunities for using arheologial examples, lessons, tehniques, and onepts in a variety of ourses at all eduational levels. Congress and the Exeutive Branh A third puli onsists of memers of Congress, their staffs, and staffs of Congressional ommittees, and politial appointees in the Exeutive Branh of the Government. One asi message for this group onerns the great value of arheologial resoures to all Amerians and the importane of the preservation of this reord for future generations. Another message is aout arheologial ativities. When Congress asks questions aout these ativities it ehooves agenies to respond as omprehensively as possile and offer a national perspetive on the prolem or topi eing onsidered. Until reently, most suh questions required hurriedly olleted data and resulted in little or no analysis. (Continued on page 30) 1990 No. 4 29

30 The Many Pulis for Arheologial Puli Eduation (Continued from page 29) Sine 1986, thanks to efforts y Federal ageny arheologists in the field and headquarters offies, the AAD of the NPS has een ale to ompile governmentwide statistis for the Seretary of the Interior's Annual Report to Congress on Federal Arheology. One reent example of the effetive use of suh information y Congress and the Exeutive Branh is the 1988 amendments to the Arhaeologial Resoures Protetion At (ARPA). Efforts to formulate and enat these amendments inluded two ongressional studies and one General Aounting Offie proe. Anedotal aounts of the looting prolem aound in the reports of eah of these studies, ut it was the quantitative summaries of the extent of known looting and the small numer of reported proseutions under ARPA that served to oalese opinion aout the need for the amendments. Native Amerians It is ironi that the segment of the puli diretly onneted to the past soieties that most Amerian arheologists study has not een a primary audiene for arheologial puli eduation. Although there are some notale and promising exeptions, lak of attention and onern aout Native Amerian puli eduation has een the rule. Those onerned with the preservation of arheologial olletions linked to modern Native Amerian groups may pay a severe prie for this past inattention. Inreasingly, Indian groups and tries are insisting on the repatriation of all or parts of suh olletions. Arheologists must move swiftly to reognize their legitimate onerns and to try to provide more information aout their pasts to them. Native Amerians inreasingly seek training and tehnial information and themselves serve as instrutors in oursework on protetion and preservation of arheologial and ethnographi resoures. NPS ourses in uration, interpretation, arheologial protetion, and ethnography programs have enefited from Native Amerians' partiipation as teahers and students. Conern aout the ontents and are of ojets in arheologial olletions has fostered an interest y Native Amerians in museum methods and tehniques as well as soures for training in museology. Attorneys, Managers, and Arheologists Government attorneys, land and program managers, arheologists and other ultural resoure speialists may not view themselves as an audiene or a distint puli; however, there are many ways in whih arheologial preservation ould e improved through effetive training for this "puli." US attorneys and their staffs and Federal, state, trial, and loal land managers need asi information aout arheologial looting and how they an help fight it through their ativities and programs. For those who will e involved diretly in ase investigations and proseutions, the Federal Law Enforement Training Center provides a 40-hour ourse. This is designed for field law enforement, ultural resoures personnel, and proseutors. For others who oversee or fund ativities, NPS has developed a ourse on arheologial protetion that provides akground information and guidane for effetive program management. The Arheologial Assistane Program nationally offers week-long professional arheologial seminars on arheologial field onservation and site stailization, and regionally on related topis. There are plans for this training to e expanded. It may inlude arheologial sampling, arheologial analysis methods, the appropriate use of arheologial preditive models, and other ontemporary topis. Conlusion Arheologists in aademi institutions must rely on the general puli's interest in arheology to fill their ourse offerings so their departments remain strong and grow. Arheologists involved with the puli rely on lay people to support Federal, state, trial, and loal arheologial resoure preservation ativities and programs. All arheologists depend on individual memers of the puli to protet arheologial resoures that they find on their land, in their jos, on their vaations, or in other situations. Dr. Franis P. MManamon is hief of the Arheologial Assistane Division, National Park Servie, WASO No. 4

31 A National Strategy for Federal Arheology Franis P. MManamon This is the seond of a series of artiles that present ations to improve Federal Arheology. A proposal for the development of a national strategy was disussed in Volume 13, No. 2 of the CRM Bulletin. On Marh 20, Seretary of the Interior Manuel Lujan, Jr., announed a national strategy for the preservation of arheologial sites and a new poliy governing treatment of sared ojets and human remains on Federal lands. In a memorandum to heads of ureaus and heads of offies within the Department of the Interior, Seretary Lujan identified four areas of speial emphasis: (1) puli eduation and partiipation; (2) ooperation in fighting arheologial looters; (3) more interageny information exhange; and (4) inreased site inventories and olletions uration. Seretary Lujan stated, "Ameria's arheologial heritage, the sites from her historial and prehistori past, needs more protetion. Like rare ARCHEOLOGICAL ASSISTANCE PROGRAM INFORMATION REPORT and endangered speies, some kinds of arheologial sites are threatened with extintion. Puli eduation is extremely important eause it is very effetive in uilding a sense of stewardship toward Ameria's arheologial heritage. "I am herey direting eah of you to emphasize these (national strategy) ativities in your ureau arheology and ultural resoures programs and in related programs, suh as interpretation, law enforement, and puli affairs. This emphasis may involve developing new ativities as well as assigning higher priority to ativities already eing undertaken at a more modest level. The results of these new emphases should e apparent in the information that eah ureau sumits for the Seretary's report to Congress on Federal arheology at the eginning of the next fisal year." He said that he plans to send letters to other Cainet-level offiials urging the adoption of this strategy in their departments and agenies. Seretary Lujan drew upon his reent report to Congress on Federal arheologial ativities (Federal Arheology: The Current Program, 1989*) in developing this national strategy. He also was aided y omments from arheologists and histori preservation offiials throughout the Government who joined in a disussion of this issue during a meeting of histori preservation offiials in Denver last Deemer. Availale through GPO, S/N , $10.00 per opy. Capitol Contat Brue Craig Shenandoah Valley Study Bill The Senate Energy Commission onluded hearings on S. 1770, legislation designed to diret the National Park Servie to assess the suitaility and feasiility of estalishing a Civil War Battlefield Park in the Shenandoah Valley of Virginia. During the hearing, NPS Diretor James Ridenour stated, "we question whether the study should e so narrowly foused as alled for in this ill." Partly in response to the diretor's onern, Chairman Dale Bumpers (D-AK) offered an amendment to the ill estalishing a 13 memer Presidential Civil War Sites Advisory Commission. The Commission would survey Civil War related sites, assess threats to their integrity and suggest alteratives for their preservation. While Senators Malolm Wallop (R-WY) and James MClure (R-ID) ojeted to several provisions of the ill partiularly the "exessively road" language direting the Commission to study "other sites and strutures assoiated with military ation during the Civil War" most oservers feel that given the degree of i-partisan support that exists for suh a attlefield ommission, some version of the Bumpers amendment will pass the Senate. No hearings have een sheduled in the House Suommittee on National Parks and Puli Lands. Weir Farm National Histori Site Two years ago, National Parks and Conservation Assoiation doumented in its Investing in Park Futures: The National Park System Plan that the National Park System was defiient in sites illustrating Amerian ulture, partiularly in sites assoiated with Amerian art movements. In an attempt to retify this defiieny, earlier this year, Senator Joseph Lieerman (D-CT) introdued S. 2059, legislation seeking to designate the farm of J. Alden Weir, one of the leaders of the Amerian Impressionist Movement, a National Histori Site. Loated in Wilton/Ridgefield Connetiut, the Weir Farm is losely assoiated with most of the Amerian Impressionist painters of the late 19th and early 20th enturies. For example, Child Hassam, John Twahtman, Theodore Roins and many more all painted at the Weir Farm. The proposed park unit inludes the artist's intat home and studio, arns and outuildings, a four-are pond, fields, woodlands and stonewalls depited in his and other paintings of the Amerian Impressionists. The site retains a high degree of integrity and is (Continued on page 32) 1990 No. 4 31

32 Computer News Betsy Chittenden Automation in the States The Interageny Resoures Division (WASO) reently ompleted two studies of automation efforts in state offies. The results of the studies are eing ompiled and will e pulished in late summer. The preliminary results give a fasinating glimpse of a portion of the ultural resoures ommunity that has a strong investment in automation. One study done under ontrat y Lisa Warneke, gathered road information aout the urrent use of Geographi Information Systems (GIS) in state government for all types of state funtions, not just ultural resoures. This study showed interest and some progress in aquiring and using GIS in all states, although use of GIS for ultural resoures is learly in its infany. Many states have formal GIS groups or offies to oordinate development of a tehnology that is used in mapping, natural resoures, and ultural resoures, transportation, and numerous other areas of state government. The other study was a detailed survey of automation in all State Histori Preservation Offies. The information gathered is permanently stored in a small dataase alled AIPS, the Automated Information Programs System. It is hoped that the AIPS data an e updated annually, and expanded in future years to inlude Federal agenies and other ultural resoures organizations. The results of the AIPS survey showed extensive use of omputers for ultural resoures management in state preservation offies, and environments and experienes remarkaly similar to that in the NPS. All SHPO offies urrently use omputers in some apaity. Like the NPS, the SHPOs are heavy users of MS/DOS miroomputers, dbase software, and WordPerfet. A numer use miros in omination with larger minis or mainframes. Aout two thirds use miroomputers (80% of whih are MS/DOS), aout one fifth use miniomputers; aout one fourth use mainframes. A ommon omination is the use of a state or university operated mainframe for a dataase of arheologial sites, and miroomputers for other ultural resoures dataases. The most popular dataase management software is dbase III Plus, whih is used for at least one system y nearly half of the SHPOs. Other popular software used inludes Informix, RBASE, and dbase IV. More than half of the SHPOs use WordPerfet 5.0 for wordproessing; no other word proessing software is used y more than one in eight SHPOs. Automation of ultural resoure inventory data is well underway in the states. Aout three quarters have arheologial site data automated, aout two thirds have automated Setion 106 data, two thirds have automated National Register properties data, two thirds have automated histori strutures data, half have automated data on histori distrits, and nearly half have automated data on preservation tax inentives projets. Information on ultural resoures that SHPOs are generally not interested in automating inlude photographs, maps, development and aquisition grants, ertified loal governments, and preservation volunteers. Overall, there are more than 270 individual dataases under development or operational in State Histori Preservation Offies. There is a wide variety of interest in omputerized mapping and drafting tehnologies. While 10% of SHPOs have omputer assisted design (CAD) systems under development or operational, nearly two thirds are not interested in aquiring CAD systems. Aout one quarter of the SHPOs have GIS systems already under development or operational, yet aout a third are not interested in GIS. While automation is learly inreasing in importane in SHPO offies, it is still generally managed y ultural resoures professional staff and administrators who may or may not have speifi training in information management. Most dataase administrators are ultural resoure professionals (often arheologists) with some omputer skills or on-the-jo training, rather than omputer speialists who have reeived training in ultural resoures. Nor is information management a primary responsiility for those whose jo it is: nearly two thirds of the dataase managers do this task as a seondary jo funtion. Prolems? Comments revealed that at least one in five SHPOs have funding prolems that affet their aility to purhase and develop systems and to do data entry. Many SHPOs also indiated that they do not have ontrol over the hardware and software they use. A ommon omplaint heard aout state- or university-owned mainframes is that the SHPO offies generally have less ontrol over, or aess to, their data. Dissatisfation with this situation is shown y the numer of SHPOs that are "voting with their feet": four states indiated that they had reently onverted, or are in the proess of onverting, from mainframe to miroomputer systems. Despite the prolems, and a hroni lak of ommuniation among ultural resoures organizations on automation issues, the SHPOs have developed remarkaly similar information management systems. The pulished results of the survey will inlude details on SHPO dataases, their automated data, their hardware and software, and ontat names and phone numers. We hope that making this type of information availale to the ultural resoures ommunity will engender more ooperation and information exhange among the entire ommunity. Capitol Contat (Continued from page 31) desried in a NPS Suitaility/Feasiility study as, "the Nation's only intat, pulily aessile, home and workplae of a major Amerian Impressionist painter." In his testimony efore the Senate Energy Committee Senator Lieerman stated, "The landsapes and domesti senes painted at Weir Farm provide testimony to a onservation ethi, and an interpretation of one relationship to the land ommon to New England: that of stewardship, ultivation and nurturing." While the NPS opposed the legislation "as eing premature" the Interior Department's position was that the proposal still needed to e reviewed in ontext with new unit riteria under development y the Administration the legislation has the strong support of virtually every major histori preservation and onservation organization. Some ontroversy exists over a provision in the ill authorizing the NPS to purhase paintings and arhival materials with Government funds; the NPS position is that suh aquisition should e made only y donation or purhase with donated funds. It is expeted that this and other minor issues will e resolved efore the ill is advaned to the Senate floor. One estalished, the Weir Farm will e the first national park unit in the state of Connetiut. Congressional hearings have een onluded in the Senate and were sheduled to our in the House in mid-june. If you would like additional information on these legislative efforts drop me a line at NPCA, st Street, NW, Washington DC No. 4

33 Dogwath James P. Delgado "Dogwath" is the term traditionally used for the two-hour wath during whih half the ship's rew eats supper and swaps stories^ Restoring Grae Bailey The 1882, Long Island-uilt twomasted shooner Grae Bailey had a long life in various maritime trades. Renamed Mattie in 1906, the shooner was resued from olivion y Capt. Frank Swift in the early 1930s. Capt. Swift's dream was to take old shooners, then eing laid up in the passing of the days of sail and the onset of the Great Depression, and operate them as a "dude" fleet, ringing the sea and the rugged Maine oast to passengers who would pay for the privilege of a rereational passage y sail along the islands and inlets of New England shores. Through the years, a numer of histori shooners were employed in this new form of maritime trade and rereation, whih now, more than 50 years later, in itself is histori. There are presently several old vessels working in the Maine Windjammer fleets of Rokland and Camden Isaa H. Evans, Stephen Taer, Lewis R. Frenh, J.&E. Riggin, Merantile, and Amerian Eagle as well as modern vessels uilt in the traditional style, suh as Heritage. Two of these vessels date to the eginning of the onept and Frank Swift's original dream Merantile and Mattie. Sanding and shaping a lodging knee, used to reinfore the deks. National Maritime Initiative Photograph y J. Candae Clifford, Marh Laying eiling planking in the hold: exept for the sander in the foreground and the eletri extension ord, the work illustrated here mathes what was done in National Maritime Initiative Photograph y J. Candae Clifford. Marh Tired and worn after long areers, Merantile and Mattie were sold in 1986 to Capt. Ray Williamson of Camden, Maine. Williamson and a few investors have sine ompletely restored Merantile and are now undertaking the restoration of Mattie. The work, eing done under over in a shipyard shed, is eing aomplished in the traditional style, and well illustrates the asi premise of the reently ompleted Seretary of the Interior's Standards for Histori Vessel Preservation Projets ommon-sense, waterfronttested standards and guidelines that reflet a hands-on approah to the restoration and preservation of histori ships in the orrosive, harsh marine environment. Nearly 80% of Mattie has een replaed. Suh a high perentage of replaement is not inongruous in maritime preservation only 15% to 20% of USS Constitution, "Old Ironsides," remains in the ship that dates to her 1797 onstrution. Apart from wear and tear on the remaining timers and planks, the new onstrution in Mattie is idential to her 1882 uilder's work. Williamson and his rew dug hakmatak roots out of swamps to fashion the shooner's knees, and working y hand with a few modern aids eletri saws, sanders, and drills they are reuilding the shooner with wooden treenails and iron spikes, using the same type of timer originally employed. This in-kind approah to the shooner's reuilding has preserved the lines, materials, and workmanship, and hene aptures the feeling and assoiation of the vessel's histori period of signifiane. In a final fitting gesture, when launhed this spring, the shooner one again ore her original name, Grae Bailey, as she reentered a histori trade. Preserving one form of maritime skill through her restoration, Grae Bailey also keeps the traditions of the sea, and the histori windjammer fleet's tradition alive as she sails the Maine oast No. 4 33

34 Using the ANCS for Natural History Colletions Garry Davies Produer, y: US Army CERL, Champaign Illinois Software: GRASS NATURAL HISTORY COLLECTION SITES 103 SITES LOCATION Bering Land Bridge National Preserve SCALE: 1 : NATURAL HISTORY The aove map plots data input from Bering Land Bridge National Preserve (BELA) natural history olletions proessed on the Alaska Regional Offie Geographial Information System (GIS) equipment. Even though the plot does not represent all of the olletion points for BELA, it does give some indiation of the powerful omination of the Automated National Catalog System (ANCS) dataase and GIS for planning future natural history olletions. Suh plots give a visual representation of the area where olletions have een onduted and thus where olletions ould e made in the future. Plant range distriutions as well as threatened and endangered speies, ould e plotted if enough information were availale. The plot ould only e made eause BELA requires UTM grids with all of its work. The more information requested of researhers in the parks, inluding NPS personnel, the more useful the data. Physial points on a map, UTM, or latitude and longitude are a neessity. Garry Davies is a museum tehniian in the Alaska Regional Offie, NPS No. 4

35 The National Endowment for the Humanities administers several grant programs of interest to ultural resoure managers. Humanities Projets in Museums and Historial Organizations. Grants assist museums, historial organizations, and other similar ultural institutions in the planning and implementation of interpretive programs that use ultural and artisti artifats to onvey and interpret the humanities to the general puli. Reent awards in this ategory inlude: $20,505 to Cliveden, a histori property operated y the National Trust for Histori Preservation, to support a selfstudy that will examine its potential for interpretive exhiitions and puli programming; $27,962 to the Mississippi State Historial Museum to plan an exhiit on the history of Mississippi, ; $15,085 to the Old South Assoiation in Boston to doument Old South's olletion of histori artifats and the analysis of their use in exhiitions and eduational programs. Preservation. Grants support ooperative preservation mirofilming at a numer of institutions, as well as the preservation of important single olletions; the onservation of original materials in ertain speial instanes; professional training in preservation administration for lirarians and arhivists; the work of regional preservation servies and the NEH Grants development of statewide preservation plans; researh undertaken to improve preservation tehnology and proedures; and projets designed to inrease puli understanding of prolems in humanities resoure preservation. U.S. Newspaper Program. Supports projets in states and U.S. territories for the iliographi ontrol and preservation of U.S. newspapers. Ativities funded inlude statewide planning, the ataloguing of newspapers and the entry of iliographi information and holding reords in the Lirary of Congress CON SER dataase, and preservation mirofilming of endangered newspapers onsidered important to humanities researh. National Heritage Preservation Program. Supports efforts to stailize material ulture olletions through the housing and storage of ojets, improved limate ontrol and the installation of seurity, lighting and fire-prevention systems. Grants will also e availale to estalish national training programs for onservators of material ulture olletions. Proposals requesting support are expeted to reflet the findings of a onservation assessment of the olletion and must e aompanied y ompleted plans and ost estimates for work to e undertaken. Awards will not e made for projets that involve new onstrution; however, renovation osts inurred in order to stailize an institution's olletion are eligile for support. Appliations will not e aepted for the onservation treatment of individual items. Institutions may apply for grants up to $700,000 in this ategory and are expeted to ontriute a minimum of 50% of the projet's total expenditures. The grant period may last up to five years. All proposals for grants from the National Heritage Preservation program will e judged on the national signifiane of the materials to e preserved for researh and eduation in the humanities, the soundness of the projet's plan of work, and the training and experiene of the staff and organizations that will e responsile for direting or implementing the projet. For further information on these and other programs of the National Endowment for the Humanities, write National Endowment for the Humanities, 1100 Pennsylvania Avenue, NW, Washington, DC 20506, or all the Offie of Puliations and Puli Affairs: 202/ Mihael J. Auer Preservation Programs Speialist Preservation Assistane Division New in WASO Anthropology Timothy MKeown has joined the WASO Anthropology Division. Tim is an applied ultural anthropologist and strategi planner. He earned his Ph.D. in anthropology from Northwestern University where he speialized in the development of systemati methods for the olletion and analysis of qualitative data and the study of ultural aspets of planning. He has worked as a resoure manager for the Navajo Nation and Jiarilla Apahe Trie; onduted researh at the International Institute for Applied Systems Analysis in Laxenurg, Austria; een a senior assoiate at the Institute for Alternative Futures, an Alexandria, VA, onsulting firm o-founded y Alvin Toffler; and taught at Northwestern and DePaul Universities and, as a Fulright Professor, at Janus Pannonius University in Pes, Hungary. Tim has pulished in Announements various researh and planning journals and is a ontriuting author to Systemati Researh (Sage 1986), whih outlines a strutured approah to qualitative researh. Enzyme Treatments Seminar A two-day seminar, entitled "Enzyme Treatments: The Siene & Appliations in Conserving Artisti/Histori Works," will e held at the Massahusetts Institute of Tehnology in Camridge, Mass., on Otoer 27-28, It is designed for onservators; museum, historial soiety, and art gallery diretors and urators; arhivists; preservation lirarians; and onservation sientists. The seminar will provide a road overview of the asi hemistry and working properties of enzymes and proteins useful in onservation proedures and will desrie how to selet the appropriate system for speifi needs. For further information, ontat Tehnology & Conservation, One Emerson Plae, Boston, MA 02114; Phone: 617/ , or Roert Hauser, New Bedford Whaling Museum, 18 Johnny Cake Hill, New Bedford, MA 02740; Phone: 508/ New Puliation National Register Bulletin 38, "Guidelines for Evaluating and Doumenting Traditional Cultural Properties," is now availale. The guidelines are meant to assist Federal agenies, SHPOs, Certified Loal Governments, Indian Tries and other histori preservation pratitioners who need to evaluate suh properties. Copies are availale from the (Continued on last page) 1990 No. 4 35

36 Announements (Continued from page 35) U.S. Dept. of the Interior, National Park Servie, National Register Branh, PO Box 37127, Washington, DC Courses Offered The National Preservation Institute has announed its eighth season of ontinuing eduation for histori preservation. The fall program will fous on the identifiation, researh and protetion of histori properties. The following ourses are sheduled: Amerian Arhitetural History, Sept Researhing of Histori Buildings, Ot Restoration and Rehailitation, Nov Terra Cotta in Histori Buildings, Nov. 16 For more information, all or write Peggy Bouher at the National Preservation Institute, National Building Museum, Judiiary Square, NW, Washington, DC 20001; (202) The Getty Conservation Institute is offering a ourse in the preservation and management of rok art sites from Feruary 25 to Marh 1, The losing date for appliations is Otoer 20, Contat The Training Program, The Getty Conservation Institute, 4503B Glenoe Avenue, Marina del Rey, CA ; Phone: 213/ ; Fax: 213/ AASLH Workshops The Amerian Assoiation for State and Loal History (AASLH) is elerating its 50th anniversary y sponsoring a series of workshops on praties and theories of historial agenies and museums. The program has een santioned as a National Park Servie Employee Development Opportunity. For information all AASLH at 615/ IN Km* mrrh TO: H2415 (RMR-PR) Memorandum To: From: Sujet: United States Department of the Interior NATIONAL PARK SERVICE ROCKY MOUNTAIN REGIONAL OFFICE W. Alameda Parkway P.O. Box Denver. Colorado JUL Editor, CRM Bulletin. WASO-400 Staff Arheologist, Roky Mountain Region Destrution of Histori Arheologial Resoures The reent artile in CRM Bulletin (13(3):23-27) "Rising Damp In Histori Buildings II: Case Studies" y Sharon C. Park ontains two items that require omment. Photo 1 shows a "sloped drain pipe...plaed at the ase of a foundation wall." It is ovious from the photograph that the soil along the wall/foundation was exavated to plae this drain. In so doing, the well-intended preservationists have destroyed one of the important areas used y histori arheologists in dating and interpreting the site: the original uilder's trenh. Historially, it was (and still Is) a very ommon pratie for house uilders to use the foundation trenh as a onvenient trash dump whih was overed up as the house was made ready for oupation. The ontents in the uilders trenhes reflet diretly on the uilding tehnology and other ultural/historial aspets at a very partiular point In time, i.e., they are "time apsules." The aption to Photo 8 mentions that the "rawl spae was leared of deris..." Materials aidentally lost or purposefully plaed in rawl spaes or underneath a wood floor have proven extremely important in interpreting the history of the uilding in question: "deris" to the restorer is a treasure o the arheologist. In sum, the entirety of a National Register property must e onsidered in any preservation or restoration program -- and that inludes the arheologial omponents... Call efore you dig! William B. Butler, Ph.D. Response to memo from William B. Butler William B. Butler rings up an important point in his memo to the editor regarding the potential loss of arheologial history through rehailitation ativity on histori strutures. This inludes the areless digging of footing trenhes and the disturane of histori sites without proper researh and investigation of site onditions. While the reent artile on rising damp in histori uildings did not speifially address arheology as a omponent of the work, the Seretary of the Interior's "Standards for Rehailitation" require protetion of signifiant arheologial resoures and proper mitigation treatments if suh resoures must e distured. The guidelines that aompany the Standards ontain a speifi setion entitled "Building Site" whih addresses the protetion of arheologial features. Sharon C. Park, AIA Preservation Assistane Division, NPS Volume 13: No. 4 Pulished y the National Park Servie for parks, Federal agenies, states, loal governments, and the private setor to promote and maintain high standards for preserving and managing ultural resoures. Diretor: James M. Ridenour Assoiate Diretor: Jerry L. Rogers Managing Editor: Ronald M. Greenerg Assoiate Editor: Mihael G. Shene Prodution Manager: Karlota M. Koester Cultural Resoures, Washington, D.C.