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UCLA Electronic Theses and Dissertations UCLA UCLA Electronic Theses and Dissertations Title Politics of Representation and Participation in Federal Historic Preservation Programs Permalink https://escholarship.org/uc/item/38j2b2nx Author Magalong, Michelle Publication Date 2017 Peer reviewed|Thesis/dissertation eScholarship.org Powered by the California Digital Library University of California UNIVERSITY OF CALIFORNIA Los Angeles Politics of Representation and Participation in Federal Historic Preservation Programs A dissertation submitted in partial satisfaction of the requirements for the degree Doctor of Philosophy in Urban Planning by Michelle deGuzman Magalong 2017 ABSTRACT OF THE DISSERTATION Politics of Representation and Participation in Federal Historic Preservation Programs by Michelle deGuzman Magalong Doctor of Philosophy in Urban Planning University of California, Los Angeles, 2017 Professor Leobardo F. Estrada, Co-Chair Professor Lois M. Takahashi, Co-Chair Historic preservation is a significant issue for Asian Americans and Pacific Islanders (AAPIs) seeking to safeguard important historic places, preserve unique cultural practices, and receive official recognition of civic contributions. However, few sites associated with AAPI history and cultures have been recognized as landmarks. There has been substantial movement forward by federal agencies and national organizations in developing a more inclusive and diverse approach to traditional standards and policies in order to reflect the growing numbers of underrepresented sociocultural groups, including AAPIs. To addresses these issues, federal leadership in the Department of the Interior and National Park Service launched the Asian American Pacific Islander Heritage Initiative and Theme Study. The theme study, “Finding a Path Forward: Asian American/Pacific Islander National Historic Landmarks Theme Study,” is intended to help in the identification of buildings, structures, sites, objects, and districts associated with Asian and Pacific Islander history in the ii United States, and facilitate their designation as NHLs and their listing in the National Register of Historic Places. As part of the theme study, the Asian American/Pacific Islander Theme Study Experts Panel was established under the auspices of the National Park Service Advisory Board. The Experts Panel was created to provide advice on the structure of AAPI Theme Study, and identify potential essay authors and major sources of information. This dissertation explores the challenges and opportunities that arise when engaging citizen participation from diverse and traditionally underrepresented groups in federal historic preservation programs. The goal is to understand the political climate that lead to the initiative, the types of citizen participation that lead to the development of federal historic preservation efforts, and ultimately, support better efforts in documenting and recognizing historical and cultural contributions of AAPIs in the US through the NHL and National Register programs. The rationale is if scholars and practitioners can better understand how to document, identify, and preserve historic sites, we can significantly impact historic preservation outcomes by increasing the number of national/federal designations associated with underrepresented groups and improving historic preservation approaches to be more inclusive of and relevant to these groups. iii The dissertation of Michelle deGuzman Magalong is approved. Keith L. Camacho Paul M. Ong Lois M. Takahashi, Co-Chair Leobardo F. Estrada, Co-Chair University of California, Los Angeles 2017 iv To my parents, Salvador and Gloria Magalong, whose sacrifice, love, and support guided me through thick and thin, and to my nieces, Sofia and Ava Villacorta, may you pave your own paths with love, bravery, and grit. v Table of Contents List of Figures and Tables ……………………………………………………………………viii Acknowledgements ……………………………………………………………………………..ix Author Biographical Sketch …………………………………………………………………..xii Chapter 1: Introduction…………………………………………………………………………1 Preserving Asian and Pacific Islander America …………………………….…………….4 Research Goals ……………………………………………………...………………….…4 Organization of the Dissertation ………………………………………………………… 6 Chapter 2: Literature Review …………………………………………………………………. 7 History of Place and Representation in Asian and Pacific Islander America ...…………..9 Citizen Participation……………………………………………………………………...13 Policy Windows and Agenda Setting for Federal Programs and Policy ..……………... 17 Citizen Participation and Federal Historic Preservation Programs for Asian and Pacific Islanders ……..……………………………………………………...18 Chapter 3: Research Design and Methodology ………………………………………………20 Overview of Conceptual Model, Research Design, and Methodology……………….…20 Conceptual Model ………..……………………………………………………………...20 Research Design and Methods…………………………………………………………...24 Chapter 4: Federal Historic Preservation Programs and Efforts …………………………..30 Historic Preservation: Whose Histories Are Worth Saving? …………...……………….30 Federal Agencies and Programs in Historic Preservation ...……………………………..31 Disparities of Representation in National Landmarks and Monuments ………………...34 Chapter 5: Politics of Representation ………………………………………………………...38 Introduction ……………………………………………………………………………...38 History of Federal Government Heritage and Historic Preservation Efforts …………....39 Historic Preservation during the Obama Administration ………………………………..43 National Park Service Heritage Initiatives…..…………………………………………...45 American Latino Heritage Initiative and Theme Study …..……………………………..46 Women’s History Initiative………………………………………………………………51 LGBTQ Heritage Initiative and Theme Study ……………………….………………….51 Commemorating Historic Preservation ……………………….…………………………54 Federal Leadership in Historic Preservation ……………………….……………………54 Federal Resources and Staffing in Historic Preservation ……………………………….56 Problems, Politics, and Policy influencing the National Park Service AAPI Theme Study ……………….……………………………………………………57 vi Chapter 6: Participation in Preservation……………………….………….…………...…….59 Introduction ……………………….……………………………….…………...………..59 Participation in Federal Historic Preservation Programs ………………….…………….59 National Park Service Staff ……………………….………………….………………….62 Experts Panel ……………………….…………………………………………………...70 Chapter 7: Representation in Preservation ……………………………….………………….89 Introduction ……………………….……………………………………………………..89 Process of Developing the NPS AAPI Theme Study ……………………………….…..90 Shaping the Content of the NPS AAPI Theme Study ……………………………….…108 Challenges in Developing the Content ……………………….………………………..131 Summary ……………………….………………………………………………………132 Chapter 8: Politics of Dissemination ……………………………….………………………..134 Introduction ……………………….……………………………………………………134 Use and Dissemination of the NPS AAPI Theme Study ………………………………134 Significance/Importance of the NPS AAPI Theme Study ……………………………..136 Intended Uses and Audiences ……………...……………………….………………….140 Dissemination Plan …………………………………….………………………………146 Challenges in Dissemination the NPS AAPI Theme Study ……………………………156 Chapter 9: Summary and Recommendations ……………………………….……………...160 Summary of Findings ……………………….………………………………………….161 Policy and Planning Implications ……………………….……………………………..164 Conclusion ……………………….…………………………………………………….168 APPENDIX A. Code Book ……………………….…………………………………………..171 APPENDIX B. List of Interview Participants Information …….………………………….174 APPENDIX C. List of National Park Service National Historic Landmarks Theme Studies …………..…….………………………………………………………175 APPENDIX D. Table of Contents for National Park Service Asian American Pacific Islander Theme Study ……………………….……………………………….178 APPENDIX E. Timeline of Events Associated with the National Park Service Asian American Pacific Islander Theme Study ……………………………181 APPENDIX F. List of National Park Service Asian American Pacific Islander Theme Study Experts Panel ……………………….………………….........183 APPENDIX G. Roles and Responsibilities in the Asian American/Pacific Islander Heritage Initiative/Theme Study ……………………….………………….185 APPENDIX H. Potential Calendar/Potential Products for AAPI Theme Study ……………………….………………………………………………….188 APPENDIX I. AAPI Theme Study Structures of Essays Options ………………………...190 References ……………………….…………………………………………………………….206 vii List of Figures and Tables Figure 2.1. Arnstein’s Ladder of Citizen Participation (p. 15) Figure 3.1. Conceptual framework for policy, planning, and participation in the National Park Service Asian American Pacific Islander Theme Study (p. 21) Figure 6.1. Composition of AAPI Theme Study Experts Panel by ethnicity/race (p. 60) Table 3.1 Data Collection Plan (p. 24) viii Acknowledgements This dissertation has been inspired and supported by a community of mentors, scholars, preservationists, and community members that believe in the power of place as social justice, as well as my family and friends, to all of whom I give my most heartfelt gratitude. Although it is impossible to repay them or fully express my gratitude, I offer the following acknowledgements: I was honored to have an amazing dissertation committee. Lois Takahashi believed in my potential as a scholar and researcher, and supported me financially, academically, and professionally during years of exploration and inquisition as a doctoral student. Leo Estrada inspired me to first take his undergraduate course in Urban Planning at UCLA, which then sold me to then receive my M.A. in Urban Planning at UCLA. Leo’s supportive nature has carried me through thick and thin. Both have been instrumental in my success
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