ForumJournal Fall 2009 | Vol. 24 No. 1

Broadening Perspectives Current Issues in Preservation The National Trust for Historic Preservation (www.PreservationNation.org) is a non-profit membership organization bringing people together to protect, enhance and enjoy the places that matter to them. By saving the places where great moments from history—and the important moments of everyday life—took place, the National Trust for Historic Preservation helps revitalize neighborhoods and communities, spark economic development and promote environmental sustainability. With headquarters in Washington, DC, nine regional and field offices, 29 historic sites, and partner organizations in all 50 states, the National Trust for Historic Preservation provides leadership, education, advocacy and resources to a national network of people, organizations and local communities committed to saving places, connecting us to our history and collectively shaping the future of America’s stories. ForumJournal

National Trust Forum Peter H. Brink Senior Vice President, Programs VALECIA CRISAFULLI Director, Center for Preservation Leadership Elizabeth Byrd Wood Editor Kerri Rubman Assistant Editor nicole vann Business Manager

National Trust For Historic Preservation Richard Moe President David J. Brown Executive Vice President Peter H. Brink Senior Vice President, Programs Greg A. Coble Vice President, Business and Finance David Cooper Vice President, Development Paul Edmondson Vice President and General Counsel Lauri Michel Vice President for Community Revitalization Dolores McDonagh Vice President, Membership James Vaughan Vice President, Stewardship of Historic Sites Emily Wadhams Vice President, Public Policy Tabitha Almquist Chief of Staff and Executive Director for Media Relations

National Trust Forum Advisory Board Paul Bruhn Preservation Trust of Vermont Pratt W. Cassity University of Georgia Alan Downer National Association of Tribal Historic Preservation Officers E. Renee Ingram African American Heritage Preservation Foundation, Inc. Bruce D. Judd, FAIA Architectural Resources Group Ann Mcglone National Alliance of Preservation Commissions David Mertz National Council for Preservation Education David Morgan Former Kentucky State Historic Preservation Officer Marcel Quimby National Trust Board of Advisors Nancy Miller Schamu National Conference of State Historic Preservation Officers Donna J. Seifert Society for Historical Archaeology John Simone Connecticut Main Street Center de Teel Patterson Tiller Goucher College

Forum Journal, a Journal of the National Trust for Historic Preservation, (ISSN 1536-1012) (USPS Publication Number 001-715) is published quarterly by the Center for Preservation Leadership at the National Trust for Historic Preservation, 1785 Massachusetts Avenue, N.W., Washington, D.C. 20036 as a benefit of National Trust Forum membership. Forum members also receive six issues of Forum News, and six issues of Preservation magazine. Annual dues are $115. Periodicals paid at Washington, D.C. Postmaster: Send address changes to National Trust Forum, 1785 Massachusetts Avenue, N.W., Washington, D.C. 20036. Copyright ©2009 National Trust for Historic Preservation in the United States. Printed in the United States. Of the total amount of base dues, $6.00 is for a subscription for Preservation magazine for one year. Support for the National Trust is provided by membership dues; endowment funds; individual, corporate, and foundation contributions; and grants from state and federal agencies. National Trust Forum Journal is a forum in which to express opinions, encourage debate, and convey information of importance and of general interest to Forum members of the National Trust. Inclusion of material or product references does not constitute an endorsement by the National Trust for Historic Preservation.

The National Trust for Historic Preservation is concerned about the responsible stewardship of the environment and has published this journal on Chorus Art Silk paper which is 50% recycled with 25% post consumer fiber. It is manufactured with non-polluting, wind generated energy and is FSC certified and supported by the Rainforest Alliance. Need IMAGE Contents fall 2009 | Vol. 24 No. 1

Preservation Vision: NYC—Ideas and Actions for a Robust Future Kirstin Sechler and Jon Calame ...... 5

Quantifying the Environmental Benefits of the Maryland Historic Tax Credit Program Evans Paull ...... 12

Adapting Historic District Guidelines for Solar and Other Green Technologies Kimberly Kooles ...... 24

Adaptive Use of 19th-Century State Hospitals for the Insane Thomas J . Balduf ...... 31

Integrating Materials Conservation into the Preservation Mission Diane Ney ...... 38

It’s challenging for a small museum to add collections conservation to its other pressing responsibilities, but the Indian Pueblo Conservation Center in Albuquerque, N.Mex., is now taking some critical steps to protect its artwork and artifacts. photo courtesy Indian Pueblo Cultural Center, © 2006

ForumJournal fall 2009

ideas and actions for a robust future Preservation Vision: NYC

Kirstin Sechler and Jon Calame

n early 2007, under the leadership of citywide issues seems like a rare indulgence. the Bloomberg administration, New Using the new focus on 2030 created by York City released PlaNYC: A Greener, PlaNYC, a small group of New York City IGreater New York. Touted as “a com- preservation funders and advisors set out in prehensive sustainability plan for the city’s 2007 to orchestrate an organized effort that future,” this document lays out strategies would provide the space and opportunity to reduce greenhouse gases, accommodate for candid discussion within the preserva- an anticipated one million more residents, tion community improve infrastructure, and safeguard the about the future. environment over the next 25 years. While inspired Although not perfect, PlaNYC put by PlaNYC, the forward with unprecedented clarity some effort was not key issues, challenges, and opportunities intended to be a ahead. But the document—while full of direct response analysis on topics such as housing, water to it. quality, transportation, environmental As a result, issues, energy, air quality, and climate the Preservation change—was notably lacking expert input Vision: Planning regarding historic preservation. Why? for the Future While historic preservationists have of Preservation made significant contributions to the pros- in New York perity and growth of New York City over City project was the past 60 years, a question remains about launched in January 2008 as a temporary the ability of the profession to play a major forum for the profession to consider concrete role in citywide planning efforts. With so long-term goals, inspire new alliances, focus many pressing issues facing preservationists on common ground, and compile an “idea on a daily basis, taking time to discuss the bank” of good ideas for the future. The one- future of the field and its contributions to year project asked members of the preserva- tion community in New York to submit, dis- cuss, and develop their most compelling ideas On January 10, 2009, Preservation Vision: NYC hosted a day-long workshop at the Park Avenue to position historic preservation for substan- Armory as the final event of the project. The tial, lasting contributions to the most pressing workshop, titled “The Future of Preservation in New York City: Issues, Ideas, Opportunities, Action!,” issues facing New York City while anticipat- drew 120 participants and employed “open space” ing new collaborations and increased threats meeting design to generate a participant-driven agenda and set of priority issues. to the city’s historic resources.

Photo courtesy of Minerva Partners This project imposed few requirements

ForumJournal fall 2009 5 In late July of 2008 Preservation Vision: NYC hosted an intense weekend retreat at the Pocantico Conference Center of the Rockefeller Brothers Fund. A group of 23 emerging preservation leaders and practitioners, along with members of the project steering committee, gathered to discuss the results of the project’s initial phases and produce their own set of priorities for the future of the preservation field.

Photo courtesy of Minerva Partners

on participants, with two exceptions. First, and encourage candor, many conduits for participants were asked to think beyond exchange were created and often profes- the pressing issues, realities, and limita- sionally facilitated—an anonymous survey, tions of today to consider the broad goals a series of roundtables, a weekend retreat and possibilities of tomorrow. Second, for emerging leaders, and a participant- participants were encouraged to contribute driven one-day workshop. From January as individuals, not as institutional repre- 2008 to January 2009, nearly 500 people sentatives answering for, or advocating on contributed. The results of all phases of the behalf of, their organization or group. project and the final report can be found To maximize opportunities for par- on the project website at www.preservation ticipation, glean “big picture” insights, vision-nyc.org.

6 fall 2009 ForumJournal Project Results and Findings 2. Research. Consistent emphasis was There is no easy way to summarize all the given to the need for research to build a outstanding participant responses collected strong foundation of data and analysis on over the course of the year-long Preserva- which the historic preservation profession tion Vision: NYC project. However, across of 2030 might rest. It was recognized that all phases of this project, 10 key categories the field does not have general research emerged as areas in need of an active, stra- foundations, nor do practitioners have a tegic response from the preservation field shared vocabulary with which to compare in New York City over the next 25 years. findings. Accordingly, there is no obvious In the final project report, published way to resolve or prove many claims of the online at the end of February 2009, rec- “significance” or “relevance” of preser- ommended action items are detailed under vation work without serious research. each key category to compose a Preserva- Producing factual information to back up tion Vision “idea bank” of 102 ideas. intuitive arguments constitutes a pressing Some are new ideas, some twists Throughout the project, the role of preservation in on old ideas, some a citywide response to climate change was among the no doubt are cur- most often repeated future concerns. rently being car- ried out to some extent by groups or individuals—but all need. The absence of a solution poses sig- were sincere expressions that came directly nificant challenges to the field and hampers from participants of actionable steps and its evolution toward greater collaboration ideas to generate forward momentum. and effectiveness. Further, research must be Following is a brief description of each separated from advocacy and regulation; it of the 10 categories, listed in order of must be independent and reliably objective. priority. Setting a New York City preservation 1. Environmental Sustainability. research agenda and priorities could take Throughout the project, the role of pres- many forms, including moving away from ervation in a citywide response to climate the abstract and connecting historic pres- change was among the most often repeated ervation issues to the cause-effect relation- future concerns. Many agreed that the ships of social policy—concerning mental moment is ripe for convergence with health, carbon emissions, productivity, others sharing an interest in environmen- waste management, economics, housing, tally sound, energy efficient, and socially and class and races dynamics. Consider- conscious approaches to housing and real ation should also be given to the options estate development. The need for firm steps for executing a research agenda—done by toward clarity and unity of purpose was a consortium of organizations, a university, often articulated when discussing preser- an existing think-tank in a related field, or vation and sustainability, and may reflect perhaps a newly created entity. more broadly a growing frustration with A first step in tackling any research the lack of tools and capacity within the agenda would have to include compil- historic preservation community to address ing existing data—from the National urgent situations and emerging trends. Park Service; New York City Landmarks

ForumJournal fall 2009 7 Preservation Commission; city agencies some historic districts defined by architec- (housing, urban development); New tural significance, some preservation tools York State Historic Preservation Office; and techniques used in other cities are borough presidents’ offices—to create a marginalized. The perceived limitations nonaligned, information-sharing baseline. embedded in NYC’s current regulations, Setting the groundwork for new data specifically associated with landmarking, sources by inserting preservation issues might be eased by exploring and adopt- and questions into ongoing data gathering ing other land-use regulations and policy tools by city agencies and others would adjustments. New land-use tools might also prove advisable. include the creation of neighborhood 3. Incentives. Enhancing incentives to conservation districts with their own, con- encourage preservation work and simpli- text-driven historic ordinances for areas fying the process for their utilization were worthy of protection but not at the level considered key issues for the future suc- of the existing landmarks law; creation of cess of historic preservation. It was rou- written guidelines for aesthetic regula- tinely suggested that a bundle of incentives tion in design districts that are controlled should be developed and presented to the locally with a system of appeals through public in a clear, concrete, and persuasive the zoning board and the landmarks way, invoking the logic of sustainability, commission; or creation of historic asset energy-modeling, and long-term agendas ordinances for outlying areas. In addition, for financial benefit. Some incentives are attention should be given to the need for already in place—federal, state, grant comprehensive zoning reform, more effec- programs, transfer of development rights, tive planning, the adjustment of the rules etc.—but they do not seem to be a major governing the transfer of air and develop- factor in encouraging more preservation ment rights, and adjustments to federal work. Problems with current incentives, rehabilitation tax credits in cities with a designed for average homeowners and population greater than one million. 5. Strengthen- ing the Landmarks Discussion among participants was often Law. Discussion dominated by concerns regarding the future of the among participants New York City landmarks law, considered by many to was often domi- be the centerpiece of the preservation arsenal, and nated by concerns by many others to be a growing liability. regarding the future of the New York nonprofit owners, such as churches and City landmarks law, considered by many schools, seem too complicated, while to be the centerpiece of the preservation payoffs for the added time and trouble are arsenal, and by many others to be a grow- not guaranteed. ing liability. Some suggested that the law 4. Land-use Regulation. In New York should be updated; some suggested that City, unlike many other U.S. cities, the it should be discarded and replaced by an strong landmarks law dominates the entirely new law; and some suggested that preservation tool kit. With abundant it should be strengthened in its current attention given to individual buildings and form. A number of suggestions focused

8 fall 2009 ForumJournal If preservation is seen as Preservation Vision: NYC a positive force for the 10 Key Action Areas creation and perpetuation of affordable housing, it might in turn garner 1. Address environmental sustainability much-needed public 2. Undertake serious research support and increased relevance. Likewise, 3. Expand incentives addressing small-business 4. Implement more land use regulations retention more strate- 5. Strengthen the Landmarks Law gically could expand preservation’s ability to 6. Contribute to community livibility protect neighborhood 7. Focus message and branding character and constituent 8. Expand alliances and diversity communities. 7. Messaging and 9. Identify new sources of funding Branding. Throughout 10. Enhance education the project, serious con- sideration was given to the way historic preserva- tion is perceived by the on expanding the law to provide more general public in New York City today and opportunities for designating cultural how these perceptions can be reframed in a landmarks (often without architectural more positive way. The question of target significance), create a more transpar- audience was discussed and many partici- ent and democratic system, compensate pants observed that a diverse, relatively commissioners, lobby for more funding young audience is highly desirable. It was to hire more staff, and push for required noted that preservationists are often per- review of all demolition permits. ceived as stodgy, elitist, negative, and scold- 6. Community Livability. Affordable ing—not yet associated with flexibility, new housing and small-business retention options, new spaces, new technologies, and were considered to be priorities for New profitability. It was also suggested that there Yorkers and issues to which preservation is a problem with the words “preservation” should make more substantial contribu- and “historic.” These give the impression tions in the future. In these conversations, of old, fragile, and highly important places affordable housing was defined as both and things fixed within the realm of the low-income or subsidized housing as well connoisseur, not the layperson. as general affordability for middle-class 8. Alliances and Diversity. Building New Yorkers. In both cases, it is clear alliances, seeking coalitions, and expanding that the link between affordable housing opportunities for cross-disciplinary collabo- and preservation is important because ration emerged as major concerns for many it draws preservation closer to broader participants. Equal emphasis was given to social issues such as public health, quality the need for more conversation within the of life, social diversity, and social justice. field and to the need for new collabora-

ForumJournal fall 2009 9 tors outside the field. Many participants in to the preservation field, it seems all believe that more structured exchanges, boats rise on the tide, attracting to the pro- like the ones supported by the Preserva- fession younger professionals with diverse tion Vision project, would be helpful, educational and cultural backgrounds, along with deliberate efforts going beyond more members, more donors, and enthusi- crisis response to build common ground astic volunteers. and shared agendas. For the moment, 10. Education. Many conversations in it was frequently observed, the field is the course of this project concluded with a bogged down with infighting between call for enhanced education at all levels— groups. Seasoned voices noted that suc- for children, policy makers, the general cessful collaboration calls for negotiated public, etc. This subject was addressed by trade-offs, well-defined priorities, and participants as a two-way street: The pres- ervation community many agreed that the field is at an important needs to educate juncture—a three-to-five year window of opportunity and to be educated in order to improve opened by the convergence of economic realities and its productivity and popular trends concerning environmental issues. effectiveness. It was observed that low reliable data in hand to support rational “awareness” and a shallow “knowledge comparisons, decisions, and arguments. base” plagued both the general public 9. Funding. Not surprisingly, the need in New York, whose appreciation for to bring more revenue into all aspects of the benefits of historic places and their preservation work in the city—budgets for protection was often characterized as existing organizations, programs, new ini- insufficient, and the preservation profes- tiatives, physical work, and acquisition— sion itself, whose understanding of local was frequently mentioned by participants community needs and the work of allied as a high priority topic. Respondents spoke disciplines is chronically weak. in favor of increased tax revenues accruing to a fund for preservation projects derived Conclusion from various sources. It was noted often As might be expected, New York City’s that strategic planning for expanded practitioners and advocates of historic funding requires knowledge and experi- preservation do not share a plan for how ence that preservation professionals often to make measurable impacts on New lack; here again the need for alliances and York of 2030. Historic preservation pro- collaborations looms large. In addition, fessionals in New York hold convictions serious research and data were considered so diverse—about what the field is, what integral to enhanced funding because it could be, and what it does well—that if steps are taken to support research, one is left to wonder where lively debate the strength of preservation arguments ends and lack of internal coherence improves, and if these arguments improve, begins. previously untapped funding prospects But there is no question that a range could open to the preservation community. of energetic professionals, committed When discussing increased funding flowing players, savvy strategists, and resourceful

10 fall 2009 ForumJournal advocates share a strong interest in seeing Obviously, reliable, independent research the preservation profession evolve. And, is a pressing need throughout the pres- despite differences of opinion, many agreed ervation field, and its continued absence that the field is at an important juncture—a hampers preservation’s evolution toward three-to-five year window of opportunity greater effectiveness. opened by the convergence of economic In the end, the Preservation Vision realities and popular trends concerning project was built on participant-determined environmental issues. content, interaction, and commitments. To step through this window, the field Already several projects, related to specific must be ready—armed with data, part- action steps in the final report, have been ners, and examples—to question assump- developed to further some of these ideas. tions, forge alliances, and seize prospects. Examples include a year-long research To be sure, the big transformative ideas in study on land-use regulations, a university preservation often take decades to enact. course studying two topics in depth from It is the hope of the project coordinators the Preservation Vision findings, a neigh- and steering committee members that this borhood preservation group celebrating its project has provided a first, tentative step 25th anniversary by creating a vision for its on the route forward—demonstrating future, and discussion groups being formed in the process new forms of engagement to continue the dialogue. It remains for in constructive conversation within the other stalwart individuals with exception- preservation community. ally keen vision to extend this exploration, And while this project was carried out taking from these deliberations whatever with New York City’s specific political, may be of use along their way. FJ professional, legal, and cultural issues as its context, it might provide a model for Kirstin Sechler and Jon Calame are with Minerva Partners (www.minervapartners.org), similar efforts as well as a few insights a nonprofit preservation organization based in transferable to other communities. For New York. Minerva works in the United States and around the world on historic preservation example, a surprising amount of discus- as it relates to professional development and sion and consensus in this project focused community strengthening. on the need to undertake serious research.

ForumJournal fall 2009 11 Quantifying the Environmental Benefits of the Maryland Historic Tax Credit Program

Evans Paull

altimore’s historic downtown district heating and cooling system (an center of commercial activity at energy-efficient way to capture waste heat Howard and Lexington streets from Baltimore’s waste-to-energy plant) so is now at the center of the the energy that is required is delivered with Bcity’s economic and green resurgence. The low-carbon efficiency. Hecht’s and Stewart’s department store While these two projects are in the shoppers have long since departed, now forefront of the nexus between preserva- replaced by the luxury Atrium Apartments tion and sustainability, a recent analysis residents and world headquarters Catholic of Maryland’s tax credit program also Relief Services (CRS) office workers. indicates that historic tax credit projects, in The transformation of that intersec- general, even though they may not feature tion into an emerging vibrant West Side green design, can legitimately claim sub- mixed-use community is due in great part stantial climate benefits that are attributable to the Maryland Heritage Structure Reha- to reduced vehicle miles traveled (VMTs). bilitation Tax Credit Program (here after The analysis finds that tax credit projects referred to as the Maryland Historic Tax reduce VMTs by 30 to 40 percent relative Credit Program). But the intersection can to suburban norms, at the high end of the also be dubbed “climate change central,” 20 to 40 percent range for VMT reduction exemplifying the types of changes needed generally attributed to “compact develop- to set Maryland on a sustainable path for ment” and smart growth locations. These future growth. VMT reductions have been converted into Most Atrium residents and CRS office a finding that the state historic rehab tax workers are probably unaware that their credit projects (counting all projects since

choice of a place to live and work is about program inception) are now reducing CO2 as close to “climate neutral” as you can emissions by between 15,900 and 21,200 get on a developed piece of real estate in metric tons annually, which is the equivalent the state of Maryland. The occupants of of taking 2,900 to 3,800 cars off the road these buildings drive at least 40 percent for one year. less than regional norms, since residents and workers can walk or take public Background transit to everything from baseball games The Maryland Historic Tax Credit Program to movies. Both buildings have been is intended to encourage the redevelop- renovated to LEED or LEED equivalent ment of historic properties in the state by standards, saving about 30 percent of offering developers tax incentives equal to energy use within the building. In addi- up to 20 percent of eligible rehabilitation tion, the area is also served by Baltimore’s costs for rehabs that meet the Secretary of

12 fall 2009 ForumJournal Catholic Relief’s $18 million rehab of the former Stewart’s building in downtown Baltimore (leveraged by $4.5 million in Maryland Historic Tax Credits) has gained LEED certification for energy efficiency and other sustainability elements. With 47 percent of employees accessing work via non-automobile means, the project can be estimated to reduce vehicle miles traveled (VMTs) by about 50 percent relative to regional norms. Further, the project is also served by Baltimore’s carbon-saving district heating and cooling services. Data provide by Ron Kreitner, Westside Renaissance.

Photo Courtesy of Design Collective © Anne Gummerson Photography the Interior’s Standards. In the 1996–2002 per property, apportioning awards geo- period, the Maryland program was a graphically, instituting competitive ranking leader nationally in the number and scale for scarce credits—all of which limited its of commercial projects which it enabled. desirability for developers. The success of the program, however, led Because the program needed to be to concerns about the unpredictability of reauthorized by the Maryland General annual tax credit outlays. Over the 2002– Assembly, there was an opportunity to 2004 period, the commercial program make the case for program improvements. was progressively cut back: capping total With funding from the Abell Founda- program expenditures and expenditures tion (www.abell.org), Lipman Frizzell &

ForumJournal fall 2009 13 Mitchell, LLC, and the Northeast-Mid- (assuming an average of $100 per square west Institute collaborated to produce a foot in rehab expenditures). The non– report on the economic and environmental energy-related economic and environmen- impacts: Heritage Tax Credits: Maryland’s tal benefits of the Maryland Historic Tax Own Stimulus to Renovate Buildings for Credit projects are summarized below: z Economic Devel- Preservation projects save between 50 and opment. Over 12 80 percent in infrastructure investments relative to years, completed suburban greenfields development. commercial projects have generated a Productive Use and Create Jobs, an $8.53 total economic impact on the Maryland Return on Every State Dollar Invested, economy of more than $1.74 billion (in available at www.abell.org/pubsitems/ 2009 dollars) in total economic activity, arn309.pdf. The analysis went beyond employing an estimated 15,120 persons conventional economic impact reports, earning $673.1 million (2009 dollars). and quantified the smart growth–related Construction labor on the job sites totaled environmental and energy conservation an estimated 9,248 workers earning $443.4 benefits of the tax credit program. million (2009 dollars)—over three-fifths of This paper concentrates on the energy the total economic impact. conservation and climate benefits. The z Fiscal Impact. During their construction other environmental impact findings are periods alone, the 404 projects generated summarized below and are available in an estimated $83.7 million (2009 dollars) greater detail at www.nemw.org/images/ in state and local taxes—effectively paying EnvEnergyImpactsMDHistTaxCredit.pdf. down more than one-third of the state’s total $213.9 million tax credit investment. The Summary of the Economic and greatest return on the state’s investment, Environmental Impacts, Other however, comes from the long-term increase Than Energy in employment and property taxes at the Preservation projects contribute to numer- historic properties and their neighbors. ous public benefit objectives, from creating z Saving Infrastructure Investment. Pres- jobs in distressed areas to saving landfill ervation projects save between 50 and 80 space and lowering the infrastructure percent in infrastructure investments rela- investments required to accommodate tive to suburban greenfields development. growth. The Maryland study attempted to The historic tax credit program, in effect, quantify the full range of public benefits. counterbalances the public subsidies that All program impacts estimated in this continue to exacerbate sprawl by virtue of report correspond to 404 completed com- publicly funded infrastructure and flat rate mercial projects receiving the Maryland charges for utilities. Historic Tax Credit between 1996 and z Landfill Space Saved. Rehabilitation of 2008, representing $1.02 billion in total tax credit properties has “saved” 387,000 eligible rehabilitation expenditures. This tons of material from landfills. This level of rehabilitation expenditures has amount of landfill material is the equiva- been calculated to correspond to 10.2 lent of filling a football stadium to a depth million square feet of renovated space of 50 to 60 feet.

14 fall 2009 ForumJournal z Lowered Run-off. Run-off from preserva- 1920 are approximately equivalent to tion projects is estimated to be 30 to 40 per- buildings built from 2000 to 2003, and the cent less than alternative low-density sprawl, worst energy offenders are actually those with resulting benefits for water quality. built in the 1970s and 1980s. z Natural Resources Conserved. Because The reasons that historic structures preservation projects use less building are relatively energy-efficient have to do materials than new construction, historic with the use of materials that are superior tax credit projects have conserved an esti- insulators, use of natural ventilation, and mated $100 million in natural resources siting/orientation for efficient heating (relative to new construction). and, especially, cooling in the pre-air z Saving Greenfields. Preservation projects, conditioning era. due to their urban locations and densities, have preserved an estimated 1,053 acres of VMTs and Smart Growth—New greenfields that otherwise may have been Urbanism without the “New” developed for sprawl. Climate change experts are drawing The discussion below concentrates on attention to the salient facts: Americans the energy and climate impacts. have been increasing their driving rates at a pace that will likely nullify gains in fuel Are Old Buildings Energy efficiency, making greenhouse gas reduc- Hogs? tion an elusive objective. Without a strat- The first point in a discussion of preserva- egy to also lower vehicle miles traveled, tion and energy is to dispel a basic myth: mandated fuel efficiency standards will There is a common misperception that only succeed in lowering the projected older buildings are less energy efficient than increase in greenhouse gases, not lower buildings built in more recent times. Data them.1 The primary public policy mecha- from the U.S. Energy Information Admin- nisms that can reduce VMTs are those istration indicate that buildings built before that relate to smart growth—encouraging

Figure 1. Commercial Buildings—Average Energy Use per Square Foot by Time Period

120,000

100,000 100,077 94,968 90,234 90,976 88,834 80,000 80,127 80,198 79,703

60,000

40,000

er square f oot tu’s p er square 20,000 b

0 before 1920 1920–45 1945–59 1960–69 1970–79 1980–89 1990–99 2000–03

ForumJournal fall 2009 15 development patterns that make driving minants listed below.8 The factors that are less necessary. positively correlated with VMT reduction A comprehensive review of the litera- are, generally in rank order:9 ture by the Urban Land Institute con- z Density cluded that “compact development” saves z Mixing uses in the range of 20 to 40 percent of VMTs z Proximity to public transit relative to sprawl.2 Backing this finding, z Proximity to city center or job centers a study in Atlanta found that the travel z Connectivity of the streets and the pedes- patterns of residents of the area’s “most trian friendliness of the public thorough- walkable neighborhoods” accounted for fare (grid streets) 30 percent lower VMTs relative to the least These data are leading environmental walkable communities.3 A King County, and city planning experts and advocates Wash., study concluded that urban to support “new urbanist” mixed-use, “interconnected neighborhoods,” defined walkable communities. One of the ques- by density, frequency of intersections, and tions posed by this analysis is: Do we need the “new” in “new density data would tend to indicate that tax urbanist”? Can credit projects are reducing VMTs at rate of between efforts to revitalize 30 and 40 percent. older communities meet the same criteria grid street patterns, reduced VMTs by and function to lower greenhouse gases, 26 percent relative to a suburban spread while having the additional benefits of development model.4 preserving the historic fabric of our cities? At the high end of the VMT reduc- tion spectrum, an analysis of the highly Historic Preservation VMT urbanized, dense, and historic North Beach Case Study area in San Francisco (100 households There is one case study of a historic per residential acre)5 found VMTs per preservation project that was modeled for household were 75 percent lower than the VMT reduction: the “Lamar on South low-density suburb of San Ramon (three Side” redevelopment of the former Sears households per residential acre). Studies of catalogue center, one mile south of down- the dense, mixed-use Atlantic Station proj- town Dallas. The development includes ect in Atlanta, Ga., found that residents 455 loft apartments that occupy 900,000 average 73 percent lower VMTs per day square feet, 120,000 square feet of office relative to Atlanta region norms.6 space, and 34,000 square feet for retail The factor that has proven to be most and other arts-related uses in a ground- highly correlated with VMT reduction is floor retail arcade running the length of the density. Several studies found that doubling building along a former railroad tunnel. density corresponds to a 25 to 30 per- Federal and state historic rehabilitation cent reduction in VMTs.7 One model for tax credits were the key financing source. predicting VMT reduction and greenhouse The U.S. Environmental Protection Agency gas impacts employs density as a sole input (EPA) examined the project in 2001 and variable, because density is also highly cor- compared it to a greenfields site in the related with all of the other VMT deter- outer suburbs. The findings projected a 23

16 fall 2009 ForumJournal to 38 percent reduction in VMTs due to areas within one-half mile of the historic the infill/historic preservation project. EPA tax credit projects. Note that tax credit projected parallel reductions in air pol- projects include some rural and suburban lutants such as nitrous oxide (NOx) and projects, but the vast majority are urban volatile organic compounds (VOCs).10 and some of the more suburban and rural projects actually have urban densities. Maryland Preservation Three population density measures Project Characteristics were calculated for the tax credit project Preservation projects tend to be located areas—mean, median, and weighted aver- in smart growth and energy-efficient age (weighted for eligible rehabilitation locations. This simply reflects the urban expenditures). Tax credit project area den- form of the pre-suburban era: Density, sities were approximately three times the mixing uses, access to public transit, grid Baltimore County developed area densities: streets, and proximity to the city center all 2.7 (median), 3.0 (weighted average), and reflected the historic/economic need for 3.2 (mean).11 See Figure 2, page 18. proximity to jobs and services at a time As discussed above, research indicates when car ownership was a luxury. that a doubling of density corresponds to a Of the five VMT reduction character- 25 to 30 percent reduction in VMTs. These istics outlined above, researchers for the density data would tend to indicate that Maryland study were able to definitively tax credit projects are reducing VMTs at quantify three: density, proximity to job rate of between 30 and 40 percent. centers, and mixing uses. Because access to Job Density. Researchers used employ- public transit is highly correlated with den- ment per acre data (also from the Mary- sity, and connectivity is strongly associated land Department of Planning) comparing with the historic urban form, the lack of the tax credit project areas to the devel- data in these two areas is not a fatal flaw. oped area in suburban Baltimore County, Nevertheless the VMT reduction estimates using a similar methodology to the popula- should be characterized as “order of mag- tion density analysis. In this instance the nitude” estimates. differences between tax credit areas and Population Density. A methodology the suburban Baltimore County area are was developed for this study Preservation projects tend to be located in smart (using Maryland growth and energy-efficient locations. Department of Planning demographic data) to compare typical more pronounced, with wider variations suburban densities to the densities of the between mean, median, and weighted aver- historic rehab tax credit project areas. age. Tax credit area median job densities For the suburban norm, the methodology were 3.7 times the Baltimore county job isolated the developed (non-rural) parts of densities; tax credit area mean job densities Baltimore County, an area that includes were 13 times Baltimore County’s job den- both older (somewhat dense) and newer sities; and the weighted average (weighted low-density tract development. These den- for eligible rehabilitation expenditures) sities were compared to the densities of the tax credit project job densities were 19

ForumJournal fall 2009 17 times the Baltimore County developed area z 0–24 = Car-Dependent (Driving Only): densities.12 See Figure 2, below. Virtually no neighborhood destinations Mixing Uses and Walkable Communi- within walking range. You can walk from ties. The best measure for mixing uses is your house to your car! Walk Score. The website www.walkscore. Project researchers ran Walk Score com explains the measuring and scor- on 397 of the 404 tax credit commercial ing as follows: “Walk Score calculates projects (the other six did not have geo- the walkability of an address by locating codable addresses). The results were: nearby stores, restaurants, schools, parks, z Median Walk Score – 91 etc. Walk Score measures how easy it is z Mean Walk Score – 82.2 to live a car-lite lifestyle—not how pretty z Weighted average Walk Score (weighted the area is for walking.” The Walk Score for eligible rehabilitation expenditures) for an address “is a number between 0 – 86.9 and 100: z 85 percent of tax credit projects ranked z 90–100 = Walkers’ Paradise: Most in the top “walker’s paradise” category or errands can be accomplished on foot and the “very walkable” category many people get by without owning a car. Thus, almost all tax credit projects are z 70–89 = Very Walkable: It’s possible to in highly walkable communities; i.e. where get by without owning a car. there are alternatives to using automobiles z 50–69 = Somewhat Walkable: Some to access services. stores and amenities are within walking dis- tance, but many everyday trips still require a Model for VMT Reduction Due bike, public transportation, or car. to Tax Credit Projects z 25–49 = Car-Dependent: Only a few Researchers for this project used the above destinations are within easy walking range. data to set up a VMT reduction model, For most errands, driving or public trans- designed to define, within a range, the portation is a must. likely VMT reduction attributed to each

Figure 2. Maryland Historic Tax Credit (MHTC) Project Area Densities Compared to Baltimore County Developed Areas

Population per 70 Jobs per acre 60 Jobs + Population per acre 50

40

30

20 de n sity p er acre 10

0 Balto . Co . developed area mHTC median MHTC mean mHTC weighted average

18 fall 2009 ForumJournal table 1. Weighting and Ranking to Predict VMT Reduction Tax credit project area as a multiple of suburban Baltimore County

>6 X Balto Co 4 to 6 X Balto Co 2–4 X Balto Co 1.25 to 2 X Balto Co

Population density 4 3 2 1 Concentration of jobs 4 3 2 1 Job and population combined density 4 3 2 1

Walkscore

Walk Score 90–100 80–89 70–79 60–69 Walk Score ranking 4 3 2 1

table 2. Historic Tax Credit Projects and VMT Reduction

Percentage reduction—historic tax credit projects relative to suburban norms

Exceeding 40% Between 20 Between 0 Neutral total and 40% and 20% % of all eligible rehab expenditures 47% 23% 26% 4% 100% % of all projects 36% 39% 11% 14% 100% Number of sites meeting criteria 138 150 43 56 387 Expenditures represented by these sites $393,936,947 $92,446,142 $216,365,947 $30,886,529 $733,635,565

tax credit project. Projects were ranked 2 times the Baltimore County densities according to the four variables and the are likely reducing VMTs by less than 20 weighting system outlined in Table 1. percent, but greater than zero. The total score is the sum of each The point system, then, is as follows: project’s ranking on each of the four fac- z Total score of 13 to 16 – reduce VMT by tors. Because the research indicates that more than 40 percent doubling density corresponds to a 25 to 30 z Total score of 8–12 – reduce VMT by percent VMT reduction, projects that have between 20 and 40 percent densities that are a multiple of Baltimore z Total score of 4–7 – reduce VMT by County density by a factor of four or more between 0 and 20 percent are candidates for VMT reduction greater z Total score less than 4 – no effect on VMT than the 20 to 40 percent attributed to The result of this ranking system is compact development. Projects that are 2 shown in Table 2 above. to 4 times the Baltimore County densities Almost half (47 percent) of eligible are generally within the 20 to 40 percent rehabilitation expenditures have taken reduction range. Projects that are 1.25 to place in projects that have been esti-

ForumJournal fall 2009 19 z mated to reduce VMTs by more than These VMT and CO2 reductions 40 percent. When the measuring rod is represent: number of projects, instead of expen- z 1.7 million and 2.3 million gallons of ditures, the results are not as strong—a gasoline, or plurality (39 percent) of projects are in z 2,500 and 3,800 cars from the road the 20 to 40 percent reduction category, for a year. followed closely by those (36 percent) From a future investment point of in the higher over-40-percent reduction view, using the same assumptions, but category. From these data the project calculating the savings for $1 million in researchers conclude that historic tax new historic tax credits, results in: credit projects are, on average, in the z 198,000 to 264,000 VMTs “saved;” z high end of the 20 to 40 percent VMT 92 to 123 metric tons of CO2 “saved.” reduction generally attributed to com- pact development; that is, in the 30 to 40 Avoided Energy Use— percent part of the range. Embodied Energy and Other Sources of Energy Savings

VMT Reduction and CO2 Aside from VMT reductions, there are This 30 to 40 percent VMT reduction can several additional ways that preservation be translated into carbon dioxide reduc- projects conserve energy. Two have been tion as follows:13 quantified for the Maryland analysis and z There have been $1.02 billion (2009 four others have not—a follow-up analy- dollars) in eligible rehabilitation expendi- sis that would be more like a “carbon tures that have been leveraged by the tax footprinting” study is recommended. credit over the period of 1996 to 2008. The calculations below are based on These expenditures are assumed to be a conversion of the total rehab dollars to renovated space as historic preservation saves energy by follows: $10.2 billion in eligible rehabilitation avoiding demolition. expenditures corresponds to 10.2 million square feet producing reuse projects that are 50 per- of renovated space, based on an average cent commercial and 50 percent residen- of $100 per square foot. tial. Using rules of thumb, this represents: First, the Maryland analysis includes a z 2,548 dwelling units, and calculation of embodied energy—energy z 20,382 employees. already expended and therefore “not z Using the 30 to 40 percent reduction wasted” by virtue of retaining rather than range (conclusion from above) these demolishing historic structures. This is an households and employees have reduced impressively large number—11.2 MBTUs their travel by between 34.3 million and (Millions of British Thermal Units) or a 45.8 million VMTs annually, relative to little more than one MBTU per square regional norms. foot of renovated space.14 However, z CO2 emissions have been reduced by because consideration of embodied energy between 15,900 and 21,200 metric tons is backward looking, some contend that annually. embodied energy has less legitimacy in

20 fall 2009 ForumJournal the energy-climate debate. Without taking because new infrastructure does not need sides in this debate, this analysis gives to be built and maintained. greater attention to the other energy and 3. Residential preservation projects climate benefits claimed (but never quanti- are usually multifamily dwellings, and fied) by preservationists. multifamily dwellings are associated with Second, historic preservation saves energy efficiencies in heating and air con- energy by avoiding demolition. If we make Because rehabilitation is less “materials- the simplifying assump- intensive” (and more labor intensive) than new tion that every tax credit construction, preservation projects save energy project is one that, absent the tax credit, would expended in the construction phase. have been a demolished building, we can also calculate energy ditioning due to fewer exposed walls. “saved” by avoiding demolition. There 4. Many preservation projects are are two internet calculators for the energy served by Baltimore’s downtown district conservation impacts of avoided demoli- heating and cooling systems. Nationally tion. One, www.thegreenestbuilding.org, these facilities—known as Combined calculates the energy saved for 10.2 million Heat and Power—are associated with 30 square feet of space to be 107,005 MBTU. to 60 percent lower carbon emissions, This can be roughly calculated to represent relative to centralized fossil-fuel–burning

5,000 metric tons of CO2. An alternative power plants. EPA calculator for energy lost in landfilling material (see www.epa.gov/climatechange/ Historic and Green—The Dual wycd/waste/calculators/Warm_home.html) Benefit of Energy-Efficient calculates the MBTUs at 205,000 MBTU, Buildings in Energy-Efficient or 10,900 metric tons of CO2. Locations It should be noted that there are four The preservation community is increas- additional potential sources of energy ingly embracing sustainability principles, conservation attributable to preservation. including energy efficiency. The question These were all beyond the scope of the then becomes, if you have energy efficien- Maryland study and could not be easily cies within the building structure, as well quantified, but a full accounting of pres- as VMT reduction, what is the total cli- ervation projects would need to address mate benefit? The analysis below projects these additional factors. a total greenhouse gas reduction from one 1. Because rehabilitation is less “mate- project that exhibits this dual benefit: the rials-intensive” (and more labor intensive) H. F. Miller Tin Can and Box Company.15 than new construction, preservation proj- With $4 million in state and federal ects save energy expended in the construc- historic tax credits providing the key tion phase. financing, developers Donald and 2. Similarly, because preservation proj- Thibault Manekin (Seawall Development) ects need between 50 and 80 percent less are undertaking a $19 million redevelop- infrastructure investment relative to green- ment of the former H. F. Miller & Sons fields development, there are energy savings Tin Box and Can Manufacturing Com-

ForumJournal fall 2009 21 Rehabilitation of the H. F. Miller Tin Can and Box Company in Baltimore demonstrates the dual benefits of an energy-efficient building in an energy-efficient location. Planned as a LEED Gold facility, it will provide office space and apartments in easy walking distance of public transit and urban amenities.

Photo courtesy of Marks, Thomas Architects

pany building (also known as the Census of 100 points on www.walkscore.com. The Building) at 26th and Howard streets in project also has other VMT reduction char- Baltimore. The redevelopment is planned acteristics—urban density, access to public as a LEED Gold facility and is projected transit, and “interconnected” grid streets. to save energy at a rate that is 34 percent The project can be predicted to be on the below a code-compliant baseline, accord- high end of the 20 to 40 percent reduc- ing to architect Tom Liebel of Marks, tion in VMTs that is attributed in national Thomas Architects. research to “compact development.” The project will provide 30,000 square If this building achieves its internal feet of office space for nonprofits such energy objectives and reduces VMTs by

as Teach for America and the Baltimore 40 percent, it will lower CO2 emissions Urban Debate League, as well as 40 by 296 metric tons, relative to norms (the apartments targeted for new teachers in majority—55 percent—of the savings com- the Baltimore City public school system. ing from VMT reduction). Employees and residents will be able to Policymakers are only beginning enjoy the benefits of locating in a highly to understand the significance of this walkable community—the project ranks powerful combination—the dual benefit of as a “walkers paradise,” a rating of 91 out energy-efficient buildings in energy-efficient

22 fall 2009 ForumJournal locations. Preservation incentives have been Center for Smart Growth, “Growing Cooler: Evidence on Urban Development and Climate successfully established as community revi- Change,” Washington, D.C., January 2008. www. talization tools, but the new data emerging smartgrowthamerica.org/gcindex.html. 2 Ibid. which tie preservation to smart growth and 3 David Goldberg, et al., “New Data for a New Era: climate change present another avenue for Linking Land Use, Transportation, Air Quality, and Health in the Atlanta Region” convincing decision-makers that preserva- 4 Larry King, “Sprawl and Public Health,” Public tion investments are worthy. There are few Health Reports, May-June 2002. www.cdc.gov/ healthyplaces/articles/Urban%20Sprawl%20 public investments that can legitimately and%20Public%20Health%20-%20PHR.pdf. claim to contribute to so many critical 5 John Holtzclaw, Explaining Urban Density and Transit Impacts on Auto Use, Natural Resources societal objectives: investments in under- Defense Council, San Francisco, 15 January 1991, served communities; aesthetic enhance- in California Energy Commission, Docket No. 89-CR-90. ment; efficient use of public infrastructure 6 AIG Global Real Estate, 2008 Atlantic Station funding; and, now, energy conservation Project XL Report, provided to Northeast-Mid- west Institute. and response to climate change. 7 John Holtzclaw, Robert Clear, Hank Dittmar, Lastly, a question was posed above: Do David Goldstein, and Peter Haas, “Location Efficiency: Neighborhood and Socio-Economic cities need the “new” in “new urbanism” Characteristics Determine Auto Ownership and in order to transform the urban environ- Use,” Transportation Planning and Technology, Vol. 25(1), pp 1-27, March 2002. See also: Peter ment into a more sustainable form? The Newman and Jeffrey Kenworthy, Cities and Auto- clear answer from this analysis is “No.” mobile Dependence: An International Source- book, Gower Publishing, 1989; and Gary Pivo, Historic preservation is essentially the Paul Hess, and Abhay Thatte, Land Use Trends Affecting Auto Dependence in Washington’s equivalent of new urbanist walkable and Metropolitan Areas, 1970 1990, Washington State sustainable communities. The concept of DOT, WA-RD 380.1, 1995. walking to work and taking the metro for 8 See www.sflcv.org/density. 9 Holtzclaw, ibid; see also: Lawrence Frank and a night on the town is not really “new” Gary Pivo, Relationships Between Land Use urbanism; it is historic urban ecology and Travel Behavior in the Puget Sound Region, Washington State DOT, WA-RD 351.1, 1994. being re-discovered as the most sustainable 10 US Environmental Protection Agency, “Compar- way to re-invent our cities. FJ ing Methodologies to Assess Transportation and Air Quality Impacts of Brownfields and Infill Development,” August, 2001. Evans Paull is a senior policy analyst at 11 The weighted average uses project investment as Northeast-Midwest Institute where he special- the weighted variable. izes in brownfields and sustainable urban 12 A flaw in the data/methodology is that the Balti- development. The Institute (www.nemw.org) more County data is only represented as a mean. devotes a webpage to historic preservation, 13 See Table 4, Evans Paull, “The Environmental and energy, and sustainable development: www. Energy Conservation Benefits of the Maryland nemw.org/index.php?option=com_content&v Historic Tax Credit Program,” March, 2009, avail- iew=article&id=21&Itemid=154. Mr. Paull is also able at www.nemw.org/images/EnvEnergyIm- the principal for Redevelopment Econom- pactsMDHistTaxCredit.pdf. ics (www.redevelopmenteconmics.com), a 14 Calculated from www.thegreenestbuilding. consulting business specializing in sustainable org with a clarification from Patrice Frey at the urban redevelopment. National Trust for Historic Preservation. 15 For more information on the H. F. Miller Building Joe Cronyn, principal, Lipman Frizzell & project, see: Mitchell, LLC, was the principal author of the economic impact part of the larger Abell- Greg Lewis, Transforming a Brownfield in Baltimore, at www.nemw.org, or in Community funded analysis and also contributed to writ- Investments, A Publication of the Community ing this article. Development Department of the Federal Reserve Contact Mr. Paull at 202-329-4282, epaull@ Bank of San Francisco; nemw.org; and Mr. Cronyn at 410- 423-2372, Greg Hanscom, “Baltimore Development [email protected]. Observed,” The Urbanite, January 2008, http:// bellnational.org/news_events/Urbanite_ 1 Urban Land Institute, Smart Growth America, Jan_2008.htm. the Center for Clean Air Policy, and the National

ForumJournal fall 2009 23 Adapting Historic District Guidelines for Solar and Other Green Technologies

Kimberly Kooles

equests for green building districts without any regard for aesthetic modifications are being brought considerations. Opinions of local residents before many historic preserva- are echoed by City Councilor Doug Lyon: tion commissions with increas- “If the Vatican can put up thousands of Ring frequency. Owners are seeking approval solar panels on St. Peter’s Basilica…there to modify their historic properties with the should be no reason why we can’t allow it addition of wind turbines, energy efficient on historic properties in Durango.”1 windows, solar panels, energy-saving light- The benefits of modern alternative ing, geothermal heating systems, and other energy systems cannot easily be dismissed, modernizations. Among all the choices for even by the most discerning preservation- an environmentally conscious homeowner, ist. Nevertheless, maintaining the integrity outfitting one’s home with solar panels of a historic resource should be the priority is increasingly one of the more accepted of any historic preservation commission. options. Historic preservation commis- This priority, of course, is not always sions that are not prepared to review this shared by a property owner who submits an application Unfortunately, green technology and for a certificate of historic preservation are often still wrongly viewed appropriateness. Environmental as mutually exclusive. groups sometimes even blame this common energy-saving technology risk review process for discouraging people irritating a growing populist movement and from making energy-saving changes to casting preservation in a bad light. their homes. “It’s a hurdle. If people know there’s a delay, they say ‘Forget about it,’” Green Technology and says Nils Peterman, a research associate Historic Preservation with the Alliance to Save Energy.2 Many Unfortunately, green technology and preservationists are replying to this chal- historic preservation are often still wrongly lenge with arguments like that of Frank viewed as mutually exclusive. A proposed Rathbun of the Community Associations ordinance in Durango, Colo., for example, Institute: “Renewable energy and aesthet- may soon alter the jurisdiction of the ics don’t have to be mutually exclusive. local preservation commission regarding But agreeing to projects without regard to energy efficient modifications on historic the architectural guidelines of the commu- properties. In the proposed ordinance, nity can create divisiveness and can affect solar panels would be allowed in historic property value.”3

24 fall 2009 ForumJournal Solar panels can often be installed behind the parapet on commercial structures so they are not visible from the street. Pictured here are solar panels installed on the roof of Five Points Place in Franklin, Tenn.

Photo by Mindy tate

Accommodating Solar lations and discourages local govern- Access Laws ments from adopting ordinances that Currently 34 states have some kind of would unreasonably restrict the use of regulations governing solar access and solar energy systems.8 California law solar rights, which contain a mixture of also requires local governments to use supportive and unenthusiastic views on the an administrative application review, regulatory authority held by local commis- instead of a discretionary process, and sions.4 These laws were adopted to ensure only permits exceptions to protect public that a property owner maintains the ability health and safety.9 In response, the City to install solar energy systems on residential of Santa Monica adopted an ordinance or commercial properties that are subject to in July that amended the local zon- “private restrictions, i.e., covenants, condi- ing ordinance in order to “establish an tions, restrictions, bylaws, condominium administrative procedure for approval of declarations, as well as local government solar panels systems that meet objective ordinances and building codes.”5 development standards and to allow solar The following provisions can be found energy systems to encroach into setback within solar access laws: provisions for areas and extend above current height the removal of protected trees that block limits.”10 The new standards clarify that direct sunlight, establishment of solar all solar energy systems proposed on des- easements (which secure solar access by ignated landmarks and in historic districts regulating actions of neighboring proper- will continue to require a certificate of ties), the nullification of any regulation appropriateness from the landmarks com- that may prohibit the installation of solar mission liaison. Authorizing a liaison to energy systems, and declarations that evaluate the compliance of the application deed restrictions limiting solar panels are in accordance with the Secretary of the unenforceable.6 California, Hawaii, Mas- Interior’s Standards and to act on behalf sachusetts, New Jersey, and New Mexico of the landmarks commission is intended are a few states in which solar access laws to expedite the process for applicants. The are particularly rigorous.7 effectiveness of this system remains to be In California, state law limits local seen, but it may be informative for other government restrictions on solar instal- municipalities facing similar mandates.

ForumJournal fall 2009 25 As stewards of our built and cultural tion commissions have chosen to incor- heritage, preservation professionals must porate parameters for solar collection become familiar with these solar access systems within their design guidelines. By laws within their respective states. A lack comparison, very few commissions have of understanding of such laws can lead to felt the need to include guidelines that delays in processing applications for cer- specifically address other green retrofits tificates of appropriateness and to lawsuits and modifications such as wind turbines that are expensive to defend. The increase or geothermal wells.11 in solar access legislation also serves to The technology of solar panels has highlight the importance of this technology, evolved steadily over the last three and the continuing innovations in its design. decades, and new products are becoming available on the market quite regularly. The Promise of Evolving As this technology advances, the aesthetic Technology discord between green modifications The development of photovoltaic technol- and the integrity of historic districts ogy (producing a voltage when exposed may resolve itself in time. For example, to radiant energy, especially light) and photovoltaic shingles or tiles have been the installation of solar panels have been developed over the last 10 years by ongoing in the United States for decades, several national solar energy companies, and include products such as the Atlantis Energy Solutions, Inc.’s product “Sun- slates.” According to the manufacturer, these photovoltaic tiles provide an “all- slate roof from roof edge to roof edge.” The modules have a polymer encapsu- lated back-sheet and hermetically sealed edges, providing a complete moisture barrier and ensuring Spring Lake Inn in New Jersey installed 54 solar panels on the porch roof and main roof to provide for its increasing energy demands. The solar a minimum 40-year panels are compatible in color to the pre-existing roofing materials and are life.”12 This warranty positioned at similar angle to the roof line. is good news to hom- Photo by Jackie Craven eowners who may be with a large surge coinciding with the concerned about the operational lifespan energy crisis of the 1970s. With grow- of solar panels, and it also serves to inform ing public interest in this technology, the local preservation commission about more and more local historic preserva- the projected longevity of the product.

26 Summer 2009 ForumJournal While representatives from Atlantis Energy Solutions, Inc., maintain that their solar tiles can be installed, utilized, and removed from many historic rooftops with no damage to the original fabric, it is a good idea to first engage a structural engineer to mea- sure their effects on historic properties, both positive and Improvements in solar technology, such as these “Sunslates” negative, before installing made to resemble slate roof tiles, may make the use of solar them. Given their difference in panels more palatable in some historic neighborhoods. Photo by Paul Trudeau. appearance from traditional roof slates, Sunslates and sim- town’s conservation districts. The ordi- ilar products may not be appropriate in all nance requires that panels not be placed cases, but they do serve as an example of on a character-defining roofline or on a how technological advances should only primary elevation, so as to not be visible make it easier to accommodate or even from the street.13 Solar panels are required encourage energy efficient modifications to be set back on flat rooftops, and so not within historic districts. alter the historic roofline or character- defining features such as dormers and Crafting User-Friendly chimneys.14 The Breckenridge ordinance Regulations reflects the primary penchant in solar Education does not stop with the local panel design parameters within a historic commission or preservationist. Education district—that photovoltaic panels may of the property owner is essential for suc- not be visible from the street—and several cess. Just as in any case of construction, communities nationwide use the Brecken- rehabilitation, or remodeling within a his- ridge ordinance as a standard of review. toric district, the property owner needs to The historic landmarks commission in understand what work needs commission Salt Lake City has compiled a set of six approval and what work does not. The design standards that measure the impact communities of Breckenridge, Colo.; Salt of solar panels upon the character of a Lake City, Utah; and Ypsilanti, Mich.; structure or site. Like those of Brecken- have worked to refine solar application ridge, Salt Lake City’s standards address standards while disseminating them in a panel location and visibility from the user-friendly fashion. public right-of-way, and the protection Legislation at the local level can greatly of character-defining features.15 Further- influence the number of solar installa- more, the standards expand on these basic tions constructed within a historic district. principles to address the manner of instal- Breckenridge, Colo., developed an ordi- lation (in an effort to reduce damage to nance to support sustainable development the character of the house) and the actual by streamlining approval of appropriate design of the panels themselves (they installation of solar panels within the should have a low profile).16

ForumJournal fall 2009 27 The historic faces south and who district of Ypsilanti, would like to install Mich., has compiled a an array of solar factsheet for property panels. Because any owners that explains addition to the south- the role of the local facing facade would commission regarding alter the character of the review of alterna- the property, the com- tive energy systems. mission would not The local historic approve panels in this A property owner in Boulder, Colo. chose to district commission position a photovoltaic array on an auxiliary position, and would maintains that a build- building located behind the main house. This require the business unobtrusive location allows the residents ing should remain to reduce their carbon footprint while owner to propose an in its original form preserving the primary historic resource.” alternative location whenever possible, Photo by Dan Corson for the panels.20 since the character Although the and historic value of a property change Ypsilanti commission appears to be will- whenever alterations are made.17 How- ing to work with property owners on the ever, the City of Ypsilanti concurs with the introduction of solar panels, the property Secretary of the Interior’s Standards for the owners must justify their request. The Treatment of Historic Places in that it rec- commission requires that any homeowner ognizes that the long-term preservation of proposing the installation of an alterna- historic properties depends in part on the tive energy system within the historic ability to adapt them to changing circum- district prove that it is a necessity. The stances.”18 Interestingly, this philosophy commission considers whether the appli- has led the City to conclude that the only cant has pursued more traditional energy current alternative energy system compat- conservation measures—such as insula- ible with historic buildings is solar panels. tion, weather-stripping, or caulking— The Ypsilanti factsheet goes into more before approving any application for the detail about the role of local commissions addition of solar panels. If a property and review of green modifications than owner has not taken the basic steps set by do the standards of Salt Lake City and the the commission, then the proposed altera- guidelines of Breckenridge. The factsheet tion would not be deemed necessary and addresses how the Secretary of the Interior’s the owner’s application would more than Standards help to guide the City’s deci- likely be denied. sion to approve or deny proposed solar In some cases, design standards for panels. For example, the factsheet quotes solar panels might be addressed outside Standard 2 in its directive that “the historic the historic preservation ordinance. character of a property will be retained and For example, Maryland’s Washington preserved. The removal of historic materials County zoning ordinance was recently or alteration of features, spaces, and spatial amended to allow for solar panels and relationships that characterize a property small wind turbines in zoning districts. will be avoided.”19 As an example, this sec- These zoning districts are classified tion cites a business owner whose building by their permissible uses—residential,

28 fall 2009 ForumJournal business, rural, planned development, affecting the historic sites and buildings special, and industrial. The rural district they are charged with protecting. contains guidelines for both a conserva- Specifically, commissions should tion and a preservation district. Another develop new design standards governing set of guidelines pertains to a historic the use of solar panels. Commissioners preservation district located within the should first consider if the character-defin- special district division. The ordinance ing features of a property will be compro- outlines eight standards applicable to mised by the new technology proposed. As solar collection systems. These standards a general rule, solar applications should refer to the size, setbacks, height, loca- ideally be positioned on auxiliary structures tion, code compliance, roof placement, or built as free-standing installations, with and acquisition of solar easements—all restricted visibility from the main right of without reference to historic districts.21 way. If those are impossible, and installa- The amended zoning ordinance does tion on the primary resource is required, not indicate that applications for solar then solar panels should be located on panels within designated historic districts secondary elevations, not visible from the would be reviewed any differently than main right of way, and should be revers- those within a The preservation community should continue non-designated area. While the to research and highlight best practices on how historic preser- to incorporate green building technologies into vation commis- rehabilitation projects. sion’s traditional design review authority clearly affords ible and non-damaging to historic features. oversight of changes to exterior features, Historic rooflines, dormers, chimneys, and the lack of direct reference to solar panel elevations should be preserved as much installations could confuse property as possible during the design process. owners about the permitting process. Remember that the review of applications for solar installations is best conducted on Best Practices for Green a case-by-case basis, as photovoltaics are Guidelines not appropriate for every historic resource The number of applications for green or district. Finally, be able to present any modifications to properties located within new guidance to historic district residents historic districts is ever increasing. As in an easily understandable format. such, the preservation community and By working with property owners, the preservation commission should be at contractors, and manufacturers, local the forefront of this significant trend. The preservation commissions can be key play- preservation community should continue ers in the growing green revolution. FJ to research and highlight best practices Kimberly Kooles is a recent graduate of on how to incorporate green building the master’s of historic preservation program technologies into rehabilitation projects. at the University of Georgia. This article is based upon her graduate thesis “Integration Preservation commissions, in turn, should of Historic Preservation and Sustainability for develop clear guidance on how green Local Historic Preservation Commissions,” technology can be used without adversely completed in May of 2009.

ForumJournal fall 2009 29 1 Garrett Andrews, “City Council moving toward 12 Jerry Sorgento, New Age Solar Named New solar energy,” Durango Herald, June 24, 2009. Jersey Dealer of Sunslates. Available from 2 Sara Schaefer Munoz, “An Inconvenient Turbine: http://www.newagesolar.com/solarnews. Conservation vs. Preservation,” Wall Street php?catid=12&blogid=2 (accessed on January Journal Online, July 12, 2007; January 20, 2008, 30, 2008). 2. 13 City of Breckenridge, Colorado, Ordinance 3 Munoz. No. 26. Available from www.townofbreck- enridge.com/Modules/ShowDocument. 4 Colleen McCann Kettles, Solar American Board aspx?documentid=1357 (accessed on August for Codes and Standards Report: Suggested 18, 2009). Standards for a Model Statue and Ordinance, October 2008, 6. 14 City of Breckenridge. 5 Kettles, 1. 15 Salt Lake City, Utah, Planning and Zoning Divi- sion, Green Office Alternation/Minor Construc- 6 Kettles, 8–10. tion Petition 470-07-38. Available from http:// 7 Kettles, 8. www.slcgov.com/ced/hlc/agenda/2008/ 8 Office of Historic Preservation, State of Califor- January/sr_4700738.pdf. (accessed on Febru- nia. Solar Rights Act. Available from http://ohp. ary 2, 2008). parks.ca.gov/?page_id=25664 (accessed on 16 For the complete set of Salt Lake City, Utah February 2, 2008). design guidelines see www.slcgov.com/CED/ 9 California Government Code Section HLC/content/Design_Guidelines_Book.asp. 65850.5. Available from http://www.sbcounty 17 City of Ypsilanti, Michigan, Historic Preserva- planning.org/PDF/boards/MPC/04-22- tion Commission, Alternative Energy Systems: 2009/09ORD-00000-00002/Attachment%20 Fact Sheet. Available from http://city-ypsilanti. E%20-%20Government%20Code.pdf (accessed org/boards/bd_historic/factsheets/Alterna- on August 18, 2009). tive%20Energy%20Systems%20Fact%20Sheet 10 Eileen Fogarty, Solar Energy Systems Design (accessed on January 30, 2008). Standards City of Santa Monica. Available from 18 City of Ypsilanti, 1. www01.smgov.net/cityclerk/council/agen- 19 City of Ypsilanti, 1. das/2009/20090630 (accessed July 23, 2009). 20 City of Ypsilanti, 1. 11 For an example of historic district design guide- 21 Washington County, Zoning Ordinance for lines that attempt to fully integrate sustainabil- Washington County. Available from www. ity concerns (Davidson, N.C.), see Jo Ramsay washco-md.net/washco_2/pdf_files/legal/Zon- Leimenstoll, “Going Green: Applying a Sustain- ingOrd.Pdf (accessed July 23, 2009). ability Lens to Historic District Guidelines,” Forum Journal 23, no. 3 (Spring 2009).

30 fall 2009 ForumJournal Adaptive Use of 19th-Century State Hospitals for the Insane

Thomas J . Balduf

he monumentally impressive and airless outbuildings. By the the early 19th-century state hospitals for part of the 19th century, however, trust the insane continue to project a in science and its ability to cure insanity, powerful influence on the imagi- and an intense interest in moral reform Tnation. They were masterpieces of architec- led to increased concern over the plight of ture, landscape design, and advanced tech- the insane. This concern coincided with nology, all intended to provide a healing the application of “moral treatment,”1 a milieu. Most featured a dramatic central more humane treatment for insanity, based administration building, ward wings, and on European models, that minimized use landscaped grounds and were intended to of restraints, was more psychological in be the authoritative embodiment of the nature, and was physician-supervised. treatment of mental illness. Other features, Treatment also included recreation, religious such as steam heating systems, proper activities, and farm work, all thought to ventilation, fire safety improvements, and help stabilize the patient’s condition, leading the availability of clean water, were They were masterpieces of architecture, landscape advanced for the design, and advanced technology, all intended to provide age. While mental a healing milieu. health profession- als of that period may have overstated the healing function to increased behavioral responsibility. of these buildings and the surrounding Central to these reforms was the devel- environment, nonetheless these hospitals opment of a unique architectural form did provide a retreat or asylum from the specifically designed for treating mentally conditions believed to cause or exacerbate ill patients. These hospitals are often mental illnesses, and represented a vast referred to as linear plan hospitals, due improvement over earlier accommodations to the monumental central administra- for mentally ill patients. tion building with patient wards in lateral Those that survive today continue to wings, laid out in a line formation (much provide a legacy of significant architectural like a flock of migrating waterfowl) with a and landscape value, with great potential series of stepped-back pavilions connected for adaptive use. by hallways. The linear plan hospitals are commonly called “Kirkbrides” after Kirkbride Hospital Plans Thomas Story Kirkbride (1809–1883), In past centuries, the mentally ill were often their best-known advocate. A Quaker confined in almshouses, jails, attics, cellars, medical doctor, he was instrumental in

ForumJournal fall 2009 31 The stepped-back arrangement of the hospital wings allowed rooms to have natural light and ventilation and provided views of the hospital grounds. Pictured here is Traverse City Hospital in Michigan.

Photo by Thomas Balduf

Decline of State Hospitals The treatment offered by such hospitals probably had some salutary effects on certain conditions when the hospitals had a low patient/staff ratio. But as the patient population expanded beyond antici- the 1844 founding of the Association pated capacity, and the moral treatment of Medical Superintendents of Ameri- approach was found to be inadequate as can Institutions for the Insane, or the a sole means of treatment, the fall of the AMSAII. asylum system was inevitable. Beginning in Trenton, N.J., in 1848 and In the early part of the 20th century, ending in Brattleford, Sask., Canada, in treatments for the mentally ill continued to 1911, these hospitals came into wide- advance and soon the Kirkbride hospitals spread use across North America. They fell out of favor. Eventually they became were found in all regions of the United associated with crowding, ill treatment, States, but tended to be concentrated in and merely custodial care. the Northeast. Approximately 100 hospi- With advances in drug treatments, there tals of the type were built. was less need for long-term confinement, The linear plan hospital was designed as long as patients’ drug treatments could to be “a therapeutic instrument that be sustained. Increasing concern about would assist in healing” and would “rep- patient rights and an emphasis on care resent moral treatment in a built form.”2 in the community made the institutional The hospitals also had extensive agricul- approach much less tenable. (This is not to tural acreage and park-like grounds dot- say, however, that the need for chronic care ted with subsidiary structures, including of the mentally ill disappeared with the power plants and farm buildings. The closing of the asylums; under the present buildings and grounds formed a contex- system, the chronically ill population is less tual whole directly affecting patients, visible, but still extant.) staff, families, and communities. They were intended to be nearly self-sufficient The 21st Century and communities, providing for many of the Adaptive Use needs of their inhabitants, physically While many state hospitals have been separate from the surrounding society demolished or sit vacant, the survivors still but still interacting with it. Such institu- present a powerful image on the national tions constituted an “architectural repre- landscape. Given their historic nature, and sentation” of sanity and became literally architecturally impressive structures and a “moral architecture”3 actively involved landscapes, the question of protection and in the process of healing. use becomes significant. These hospitals

32 fall 2009 ForumJournal and their extensive grounds provide opment, physical deterioration, the per- opportunities for adaptive uses never ception that alternative uses are limited envisioned by their designers. Today some due to the buildings’ solid construction of these buildings still remain in opera- and single-use design, and bias associ- tion, providing mental health and social ated with mental illness and the asylum services; others have been rehabilitated for system. However, careful planning, local housing and other uses. support, and visionary development can Developing a reuse plan for these lead to alternative uses that can contrib- hospitals can be complex, depending, ute to the social, economic, and cultural in part, on the perception by the com- needs of the community and serve as a munity, including the public, political reminder of the history associated with entities, developers, media, and preserva- these unique buildings and landscapes. tion interests. Although the main build- ings were constructed to be durable and Warren State Hospital, Warren, enduring, deterioration and vandalism has Pa . (1873–1880) taken a toll on many of the sites—leading Warren State is an excellent example of to a negative image in the community and a facility that is still in use for healthcare, increased project costs. possessing many representative charac- Challenges to adaptive use may include teristics of a typical Kirkbride hospital. an overabundance of space that may Warren State maintains a towered central exceed local needs, size and complexity building, stepped-back patient wings, an that may be intimidating to planned devel- elevated rural setting, ancillary struc-

The Importance of Remembering

Recognition of the historic role of the state hospital and the lives of patients and staff should be part of any adaptive use plan. Saving the hospital may be the most obvious form of recognition, but ideally the project should include reference to the historic “why” of the place. Information about the historic significance of the hospital to the community should be included in signage, on-site handouts, and promotional materials. Many facilities included cemeteries, holding the often anonymous remains of patients who died while hospitalized. These cemeteries should be identified and cared for as memorials.

In 2000, following the demolition of the Northhampton State Hospital in Massachusetts, art- ist Anna Schuleit planned a special ceremony to commemorate the site’s history. The hospital had been closed for several years and, following a futile adaptive use effort, was taken down. The event, which included speakers, panelists, an open forum for former patients to tell their stories, and a dramatic musical tribute, brought the community to the hospital site, and paid homage to the positive intent of the 1856 founding and the plight of patients in the later years of operation, who were essentially warehoused in over-crowded conditions.

Source: The State Hospital: In Memorium, A Remembrance of the People and the History of the Former Northampton State Hospital, at Northampton, Massachusetts, 2000. This information can be found at the Anna Schuleit website on asylums: www.1856.org/main.html.

ForumJournal fall 2009 33 Warren State Hospital (Pa.) has retained its original use, including continuing to provide inpatient health care, but the campus now also houses other health and social services.

Photo by Thomas Balduff

tures, landscaped grounds, contemporary history of medicine. The Warren State technological systems, and main entry gate staff has been attentive to the hospital’s and drive. history, architectural significance, and Warren State retains connections and contributions to the community, and to interactions with the City of Warren. the archiving of historical materials. It still provides inpatient care for those requiring longer-term care. There is also a Traverse City State Hospital, forensic center located on the campus, as Traverse City, Mich . (1881–1885) well as a geriatric hospital. Other services The rehabilitation of the Traverse City on the campus include the office of the State Hospital as a mixed-use urban village State Health Department and a county began in 2003, while retaining the historic agency dealing with mental health, mental architectural features of the main building retardation, and drug and alcohol issues. and other structures. The Village includes a One of the original houses on the site is range of units for living, from studio apart- still in use as overnight accommodation ments to live-work units and condomini- for families visiting patients. ums. The development also includes retail Warren State has adapted to changes in shops, restaurants, wineries, a bakery, cof- mental health programs and uses for build- fee shops, and a variety of offices offering ings and grounds. Social service functions professional services. Now known as The have required updating the main build- Village at Grand Traverse Commons, it ings, as well as additional structures. Use was listed in the National Register of His- of outbuildings and code-driven interior toric Places in 1978. The planning process updating of the main building allow for adaptive use at Traverse City has been continuing service, in both familiar and long and complex, but has provided time innovative ways. for the community to invest the facility The hospital restored the patient with positive cultural importance, as well cemetery, providing a positive connec- as for the hospital to become recognized as tion to the community and strengthening a source of economic and cultural value to the memory of the hospital’s role in the the community.

34 fall 2009 ForumJournal The City of Traverse City, the town- ship, and the State of Michigan invested Internet Resources significant time, planning, and fund- www.rootsweb.ancestry.com/~asylums/index.html#in ing to support the preservation of the www.kirkbridebuildings.com/index.html hospital and grounds to benefit com- www.abandonedasylum.com/ munity cultural and economic interests. www.asylumprojects.org/tiki-index.php?PHPSESSID= A state conservation easement has been 52e83925a40f28d7a473ce1084c5005d instrumental in maintaining the pastoral www.1856.org/main.html landscape and historic arboretum. The www.ohio.edu/athens/greens/theridges.html Traverse City Commons Redevelopment www.thevillagetc.com/ Corporation led the long-term effort to www.dpw.state.pa.us/partnersproviders/mental- find alternative uses, maintaining positive healthsubstanceabuse/statehospitals/003670893.htm attention to the facility until an appropri- www.mantenostatehospital.com/theproject.html ate developer could take on the project. The Traverse City State Hospital project made wise use of planning by the existing main building, which should means of phased development, through serve the future needs of the community. stabilization and redevelopment of successive sections of the main build- Dayton State Hospital, Dayton, ing. The reuse of many of the ancillary Ohio (1855–1868) buildings—particularly the free-standing The Dayton State Hospital was completely cottage-type patient wards as commer- rehabilitated in the mid-1980s as a senior cial space, residential suites, and retail community. The Ohio Department of Men- spaces—has contributed to the success of tal Health abandoned the hospital in 1978 the development and helped to main- and planned complete demolition. But there tain the historic context. Other former was strong local support for preservation hospital buildings have been adapted and restoration, and in 1979 the hospital separately as a hospitality house for the was listed in the National Register of His- nearby medical hospital, and as assisted toric Places. The property was eventually living centers. No infill construction has rehabilitated for senior housing by a devel- been planned, probably due to the avail- oper with strong support from the City of ability of considerable square footage in Dayton and local business interests. The project also received certification for federal historic rehabilitation tax credits. The central building now includes the entrance lobby, library/sitting rooms, offices, service functions, and double- loaded corridors (i.e., units on both sides)

The campus of the Traverse City State Hospital has been redeveloped as a mixed-use urban village, with a range of residential options, retail shops, eateries, and office space in both the main building and ancillary buildings such as this “rehab cottage.” PHOTO BY thomas J. Balduf

ForumJournal fall 2009 35 Dayton State Hospital (Ohio) now serves as a senior community. The main building holds common rooms, offices, and service functions in the center and residential units in the wings— similar to the building’s original use.

PHOTO by thomas J. Balduf

on an elevated site overlooking the Village of Athens, is surrounded by park-like wooded grounds. for assisted living. The three floors of the The facility now has multiple uses, pri- patient wings were converted into indepen- marily the Kennedy Museum of American dent living apartments, requiring consider- Art in the towered central building. Sev- able demolition of non-load supporting eral early 20th-century cottage structures interior walls in a switch from double- to and other outbuildings now house the single-loaded corridors. The entrance por- University Facilities Planning offices, the tico was restored to its 1906 appearance Ridges auditorium, the Child Develop- and windows were rehabbed according to ment Center, and the Voinovich Center the Secretary of the Interior’s Standards. for Leadership and Public Affairs. The The extensive, wooded grounds in the ward wings remain empty, and there is a front of the hospital were retained, along need for a comprehensive redevelopment with the historic entry gate, including two plan for those important elements. Well- pergolas with concrete columns and tile- maintained lawns and many large trees roofed gatehouses. preserve a quiet, shady, pastoral appear- Project marketing made positive use of ance, even with a reduction in total acre- the historic context of the facility and the age. Driveways, built of locally produced monumental attractiveness of the architec- brick, have been retained, most promi- ture. Adapting the hospital as congregate nently in the front of the main building. housing serves a quite different clientele, The hospital was listed in the National but the residential units in the wings with Register of Historic Places in 1980. administrative and service functions in the The future of the complex is still center have a strong conceptual similarity uncertain. A 1989 comprehensive land- to the original design. use study came up with a list of possible uses, including school services, condomin- Athens State Hospital, Athens, iums, conference center, drama festival Ohio (1867–1873) center, park, recreational trails, historical The Athens State Hospital, now the prop- museum, and recreation center. Additional erty of Ohio University and renamed The studies in 2001 emphasized the importance Ridges, is a classic Kirkbride design, with a of the various contextual features of the monumental central administration build- hospital and grounds and noted office ing, power plant and service buildings to space or student dormitories as possible the rear, and stepped-back patient wings. uses for the wings. Ohio University has not Many of the outbuildings associated with ruled out a mixed-use development, which the growth of the hospital remain, preserv- could conceivably follow the pattern of ing the historic context. The hospital, set Traverse City State Hospital.

36 fall 2009 ForumJournal Others at Risk initial contact should be with the state his- There is no complete list of Kirkbride toric preservation office to obtain informa- hospitals. Several websites attempt to list tion about the status of the hospital, any the hospitals still in existence (see box ongoing work, possible planning grants, on page 35). Some hospitals still in use etc. The websites mentioned earlier often include Cherokee State Hospital, Clarinda support online communication groups that State Hospital, and Independence State may be of assistance including providing Hospital in Iowa and the Danville State success stories, recommendations, and Hospital in Pennsylvania. Many others other guidance. FJ are endangered. Fergus Falls State Hos- Thomas J. Balduf is community preserva- pital in Minnesota is a wonderful facility tion specialist for the Western Regional Office in need of development. Another in need of Historic Landmarks Foundation of Indiana. This article has been adapted from the author’s of reuse is Graystone Park State Hospital 2007 thesis for the master of arts in historic in New Jersey. Weston State Hospital in preservation program at Goucher College.

West Virginia has been purchased and 1. Barry Edington, “The Design of Moral Architecture development appears to be planned. at the York Retreat,” Journal of Design History 16, no. 2 (2003): 1103-1117. To find out more about specific hos- 2. Edington. pitals and efforts to save them, the best 3. Edington.

State Hospitals on the National Trust’s “11 Most Endangered” List

When New York State put its four vacant fire severely damaged the south wing of the 19th-century psychiatric hospitals on the mar- Main Building, the centerpiece of the com- ket with no reference to the sites’ National plex. The future of the site is now uncertain. Historic Landmark status, the National Trust Several years ago, a state court ordered for Historic Preservation sounded an alarm by New York to repair and preserve the H.H. including “Four National Historic Landmark Richardson–designed Buffalo Psychiatric Hospitals” on its 1999 list of America’s Most Center in Buffalo. The state has allocated Endangered Historic Places. $76.5 million for restoration of the complex, There have been some positive develop- and in 2006 Governor Pataki assembled ments since then: panels of experts and advisors who studied In September 2002, the Utica State Hospital the site and developed a master plan for the (1843) received a $200,000 Save Ameri- reuse and restoration of the complex and its ca’s Treasures grant for restoration. More Olmsted landscape. recently, the New York State Office of Men- Advocates are feeling positive in Bingham- tal Health rehabilitated the first floor of the ton, where a medical college has recently main building for use as a Records Archive expressed serious interest in reusing the and Repository. historic hospital, built in 1858 as the New In Poughkeepsie, a comprehensive mixed- York State Inebriate Asylum. The state set use redevelopment project is underway for aside funds and work is moving forward to the Hudson River Hospital, and work to sta- rehabilitate the building, called the “Castle,” bilize and restore the Main Building began for use as a clinical campus of the SUNY in 2006. At the end of May 2007, a large Upstate Medical University.

To check the status of these sites, visit www.PreservationNation.org/travel-and-sites/sites/northeast- region/four-national-historic-landmark-hospitals.html.

ForumJournal fall 2009 37 Integrating Materials Conservation into the Preservation Mission

Diane Ney

n his 1792 “Plan of Washington,” held in its museums, libraries, historical Pierre L’Enfant designated a site in societies, historic sites, and other collec- our new nation’s capital for a “great tion stewards, is seriously endangered by church for national purposes.” Today a lack of funds and planning. Ithat site is occupied by the Old Patent In the landmark 2005 report A Public Building (1850), recently restored to house Trust at Risk: The Heritage Health Index the Smithsonian American Art Museum Report on the State of America’s Collec- (SAAM) and the National Portrait Gallery. tions, a joint project of Heritage Pres- Although neither could be mistaken for a ervation and the Institute of Museum church, a conservator visiting the institu- and Library Services (IMLS), half of the tions’ jointly administered Lunder Conser- collecting institutions in the United States vation Center might have the notion she admitted to not having a written, long- or he had truly found the Promised Land. range plan for the care of their collections. With its floor-to-ceiling glass walls looking And the report estimated that, of the 4.8 into 10,200 square feet of labs and studios billion collection items in the United States, fully equipped to treat paintings, prints, more than 820 million are in need of drawings, photographs, sculptures, folk urgent care—but that was only an estimate because one-third America’s cultural heritage, displayed and held in of the institu- its museums, libraries, historical societies, historic sites, tions admitted to not knowing the and other collection stewards, is seriously endangered condition of all by a lack of funds and planning. the items in their collections. art objects, decorative arts, and frames, the However, with the encouraging Lunder Conservation Center is an answer example and (often free) resources and to a prayer—a means of getting the job guidance provided by the Lunder Conser- done while educating the public on just vation Center, by regional preservation how vital that job is. And therein lies an centers such as the Intermuseum Conser- important national purpose, increasingly vation Association (ICA), and by others, recognized as urgent by the preservation directors of small- and medium-sized community. institutions and organizations need not be An element of spiritual fervor defi- hesitant about suggesting to their govern- nitely pervades that community these ing boards that conservation be a line days, as the realization grows that item in next year’s budget. The resources America’s cultural heritage, displayed and are there to at least make a start. And the

38 fall 2009 ForumJournal The Intermuseum Conservation Association (ICA) offers a variety of training programs for conservation specialists, professionals involved with collections, and the public. “Photographic Processes: History and Identification” was presented in April 2008.

Photo by Nicole Hayes, ICA best way to start is by recognizing that Broun’s deliberations about the labs, “it problems present opportunities. made us think about how we could play a role in focusing public attention on the Focusing Public Attention importance of caring for the things that The Lunder Conservation Center was the matter; how we could use the opportunity brainchild of Elizabeth Broun, director of presented by the building’s renovation to the Smithsonian American Art Museum, make people think about conservation and and her colleagues, the result of a promise heritage. So, these two ideas—public access to the federal government during a major and public awareness—came together in a renovation of the art museum and portrait very serendipitous way.” gallery a few years ago that the entire build- When the Lunder Conservation Center, ing would be made available to the public. funded by the Lunder Foundation, opened Broun soon realized that putting conser- in 2006, it was “the first time an art museum vators in a different building would mean in this country had put its conservation labs having them at too great a distance from the permanently on view,” according to Julie galleries. “So then we thought, ‘Maybe the Heath, the center’s coordinator at the time. conservation labs should be part of the pub- “Sharing what it means to take care of a col- lic experience.’ And while we were consider- lection is an integral part of our work.” ing that possibility, the Taliban destroyed Engaging the public is a major compo- Afghanistan’s 2,000-year-old stone Buddhas. nent of what Heath views as good steward- That was a huge shock to the art world and ship, a stewardship Heath wants the public to the cultural heritage world, as well.” to be a part of, even though she estimates Though it was not directly related to “75 percent of our visitors have never heard

ForumJournal fall 2009 39 of conservation. So we’re starting from the objects they see and with preserving scratch and building on that, because you those objects, and from there you can draw can’t be connected to a cause you don’t people into the cause for preserving other know about.” objects—our cultural legacy.” Speaking in June of this year at an IMLS The storytelling extends to a series of conference (“Stewardship of America’s kiosks that introduce each lab and studio Legacy: Answering the Call to Action”) and use video clips and before-and-after that addressed the conservation needs of photographs to show the process and small- and medium-sized institutions, Heath results of treatments. In addition, there is pointed out that one of the best ways to a 40-foot media wall where visitors can help the public understand what’s at stake is hear from 16 experts talking about their by explaining the problems inherent “in pre- projects and training. serving objects and, at the same time, pro- For its innovative approach and out- viding access to those objects.” Something reach to the public, including its online like keeping the cake and eating it, too. resources, the Lunder Conservation Center This preservation/access conundrum is was awarded the prestigious Keck Award at the heart of every institution’s opera- by the International Institute for Conserva- tions, whether a major city’s museum or tion of Historic and Artistic Works in 2008. a small community’s historical society or heritage site, and in finding the balance Reaching Out to Collecting institutions can engender a direct link in Institutions the public’s mind between the absolute The Intermuseum Conservation Associa- necessity to preserve and the resulting tion, the first nonprofit preservation center necessity to fund that preservation. in the U.S. when it was created 60 years ago and now one one of the best ways to help the public of 11 such centers understand what’s at stake is by explaining the nationwide, is committed, in the problems inherent “in preserving objects and, at the words of its direc- same time, providing access to those objects. tor, Albert Albano, to “raising the bar At the Lunder Conservation Center, of awareness of the importance of cultural Heath used storytelling to effectively engage materials preservation and about how her audience. “All you need is a ‘before’ that’s accomplished.” photograph of an object and the compelling Working out of a National Historic story of how that object is being conserved. Register building in downtown Cleveland, Or you can talk about how conservators Ohio, the ICA has developed multifaceted are also documentarians, documenting educational programming offered at dif- the condition of an object and how that ferent levels geared to three constituencies: examination is done. Most people really specialists in the conservation/preservation don’t understand what being a conserva- arena, institutional professionals involved tor entails, the code of ethics conservators with collections, and the general public. adhere to, the training they receive. Telling “We’re very committed to taking our that story connects your audience with message to as broad an audience as pos-

40 fall 2009 ForumJournal At a “Reading the Book” symposium offered by ICA in September 2007, participants applied information gained in a lecture on 19th-century printing to try to determine the print dates of old books.

Photo by John T. Seyfried, ICA

fact-filled, hands-on activi- ties members of smaller sible,” says Albano, “and especially to the collection institutions find the most help- general public. The public is key. We can- ful. “We had a three-day disaster response not just be talking to ourselves.” program taught by two experts in the field Part of taking this message to the public that was terrific. The participants broke into is having open lab areas, where visitors teams. On the first day, they took a col- are invited to join ICA conservators at the lection of items we had glommed together table as the conservators work on items as from places like the local thrift shop and diverse as an Alexander Calder mobile or submerged them in baby pools full of water. an 1863 Confederate regiment battle flag. On the third day, they had to pull the objects Albano sees this “open experience” as a that had been soaking for two days out of way that “visitors can see a wide variety of the pools and learn the actual process of how objects and, by talking to our conservators, you would salvage a painting, a photograph, can understand better how one approaches a textile from that condition. They had to act a particular item and decides on the proper as a team and triage, deciding which objects criteria for that item’s responsible and were most at risk and how to rescue them. It thoughtful conservation.” was a wonderful experience for everyone.” As valuable as this outreach to the These programs are in keeping with ICA’s general public obviously is, ICA’s most mission of providing support for institutions important contribution to the preservation that cannot afford, and don’t really need, a community may be its outreach to special- full-time conservator on staff. Along with the ists and to institutional professionals. educational programs offered by Hayes, ICA In her three years as ICA’s director of staff might give advice on an exhibit design education and external relations, Nicole and how lighting and other aspects of the Hayes has presented 25 programs, all physical environment will impact the objects open to the public (though “the major- on display. Or ICA may be called upon to ity of those who attend our programs are provide expertise that an institution’s on-staff museum and library folks”), as well as conservator doesn’t have. “We act as an given talks to groups who invite her to adjunct staff,” says Albano, citing the work their facilities. Most of these programs are currently being done by ICA’s textile conser- one-day events, a few multiple-day, and vator Jane Hammond for Spiegal Grove, the about half are free. “If we charge a fee, it’s home of President Rutherford B. Hayes. usually because we’re bringing in an out- An expert in textile conservation who side expert, and the fee covers that cost.” worked on preserving materials damaged Hayes’ programs, which are usually by Hurricane Katrina, Hammond sees a filled to capacity, are exactly the kind of lot of wear and tear on materials occurring

ForumJournal fall 2009 41 especially in small museums and historical …and to encourage the fourth: societies that have limited but treasured z Individuals at all levels of government collections. “A fan on a table or a shawl and in the private sector must assume draped across the back of a chair—many responsibility for providing the support are in open display, and docents are often that will allow these collections to survive. unable to keep the public from handling As challenging as even making a start them. Add to that, damage done by dust at adopting these recommendations may and by non-rotation of objects, which be for large institutions, it is a major leaves some of them exposed to the light, undertaking for small- and medium-sized fluctuations of heat and cold, and humid- museums, libraries, historical societies, and ity for years at a time. And many of these stewards of historic sites, who often are institutions, if forced to make a choice, will operating with a small staff and an already put their funds into further development of ambitious agenda. For institutions such programs rather than conservation.” as these, conservation is usually more a Being forced to make these choices is the wish-list item than an immediate project— lament of almost every director of any col- something that can only be accomplished lecting institution, whatever its size, but these incrementally, one step at a time. choices hit smaller institutions much harder. The Indian Pueblo Conservation Center And this usually means delaying treatment. (IPCC) in Albuquerque, N.Mex., for instance, has only recently, for the first time Small Steps, Giant Leaps in its history, contracted for the conserva- Because the 2005 Heritage Health Index tion of an item in its collection: a mural by was the first comprehensive survey to assess Pablita Velarde called The Herd Dance. the condition and preservation needs of U.S. This first step was made possible by the collections, its troubling findings resonated generosity of a friend of the museum. throughout the preservation community. Founded in 1976 by the 19 Pueblos of Four years later, collecting institu- New Mexico, the IPCC showcases the his- tory and accom- Appraisals need to be current—and finding an plishments of the appraiser for this type of art, and then insuring it, takes Pueblo people time. Then there’s the process of finding a conservator… from Pre-Colum- bian times to the tions continue the process of finding present. Its 15,000-square-foot museum ways to implement three of the report’s includes a collection of pottery, jewelry, tex- recommendations: tiles, baskets, photographs, prints, paintings, z Institutions must give priority to provid- and murals, both ancient and modern. The ing safe conditions for the collections they center offers extensive experiential educa- hold in trust. tion programming for schools, focused on z Every collecting institution must develop its exhibits and murals, as well as a series an emergency plan to protect its collections of lectures and demonstrations by writers, and train staff to carry it out. scholars, and artists, plus weekly traditional z Every institution must assign responsibil- dances throughout the year. ity for caring for collections to members Working with a membership base of of its staff. around 250, Interim Director Marth Beck-

42 fall 2009 ForumJournal Participants are shown how to properly roll a textile on a support tube in the ICA class “Textiles: From Household Goods to Museum Artifacts” (February 2008).

Photo by Nicole Hayes, ICA

take Action There is a great deal even the smallest of institutions tell and Collections Specialist and Curator on the tightest budget can do to take that Amy Johnson work wonders with a limited first step toward creating an ongoing and budget and a small staff. The conservation comprehensive conservation program: of the Velarde mural is a beginning, but z Check out the free information and both women are realistic about what is guidelines available. See Resources at the currently possible. end of this article. It is possible, also, to “It’s a very expensive and laborious talk to and/or meet with an expert, often process,” Becktell acknowledges. “Apprais- free of charge. The Lunder Conservation als need to be current—and finding an Center provides free monthly clinics, by appraiser for this type of art, and then insur- appointment, where individuals and rep- ing it, takes time. Then there’s the process of resentatives of collecting institutions can finding a conservator...All this initial effort meet with a conservator for advice on the is tiny compared to the outcome, and to our care of an object. The Intermuseum Con- having the opportunity to teach conserva- servation Association provides a variety of tion as it is being done.” free services, including helping an institu- Johnson fully understands the conse- tion understand what its conservation pri- quences of not being able to devote more orities should be and how to proceed, basic resources to the care of the collection. “We assistance with grant writing, and general have 2,100 pieces in the collection, at least preservation advice. Check out these and half of which are on display at any one other resources and then share/trade infor- time. The last few years we’ve removed mation with colleague institutions. quite a few of the textiles that have been z Review the collection, understand exactly in the same space for years, but we didn’t what it includes in terms of types and num- rotate other textiles into those spots because bers of objects. I wasn’t sure of the conditions in our cases. z Make changes in the environment of That’s a situation I’m working to correct.” the housing and display areas, such as Becktell points out that the museum’s lighting, heat and cold, humidity, that can standards for environmental controls have contribute immediately to the health of the improved considerably in the last few years, collection items. an improvement that is part of the ongoing z Using available guidelines and resources, conservation efforts that do fit into the bud- create an emergency preparedness plan get. “The IPCC is in a period of expansion first, followed by a five-year plan. and growth, and part of that is managing z Using those same guidelines, begin writ- those aspects of conservation that we can ing grant proposals to obtain funding for handle right now.” conservation needs.

ForumJournal fall 2009 43 Yes, times are tough. For those direc- giant number. Instead, explain that you’re tors struggling with limited budgets, with looking for this amount and asking 50 governing boards, with enthusiastic but people to give a portion of it. Make them overworked staffs, and with the uneasy understand that they’re integral to the suc- feeling that a biblical plague is about the cess of your project.” only problem not being dealt with at the The important thing is to make a moment (though one may turn up any start. Julie Heath, former director of the time), last year’s economic crash and the Lunder Conservation Center, spells it out resulting recession may seem like the last very clearly: “Deterioration occurs with straw when it comes to considering any objects in a rather slow way. The damage kind of conservation program. may not be noticed within a couple of But, as Lawrence Reger, president of weeks or maybe even a couple of years, Heritage Preservation, pointed out at the but it’s there and it builds. It’s like that IMLS conference, now is absolutely the cheeseburger and shake you have for right time for institutions to assess the state lunch. It’s not going to kill you tomorrow, of their collections, formulate both disaster but keep it up and it’ll kill you eventu- preparedness and five-year plans, and ally. We have to be good stewards with research and write grant proposals, “so America’s cultural heritage so it will be you’re ready when the economy picks up.” there for those coming after us. We need Deborah Hess Norris, chairperson of to set that example for them.” FJ the Art and Conservation Department at Diane Ney is records manager of Washington the University of Delaware, concurred that National Cathedral Archives. readiness is all, adding that persistence and thorough research are elemental and go Resources Smithsonian American Art Museum and the Lun- a long way toward guaranteeing success. der Conservation Center http://americanart.si.edu/ conservation, detailed conservation guidelines Norris’ excellent presentation, along with http://americanart.si.edu, videos highlighting work that of Julie Heath and others, is available done in each of the center’s labs. Intermuseum Conservation Association www. online (see Resources at end) and provides ica-artconservation.org, e-newsletter with informa- invaluable information on finding the tion about grant opportunities and educational opportunities. funds, building an audience, and creating Amien, http://amien.org, comprehensive guide to an ongoing conservation program. art materials and conservation. And keep in mind that large founda- Institute of Museum and Library Science www. imls.govIMLS conference video, www.imls.gov/ tions are not the only sources of funding. collections/tour/Buffalo.htm. Gifts from local and regional foundations Heritage Preservation Heritage Health Index Results. www.heritagepreservation.org/hhi. and from individuals (as in the case of Heritage Emergency National Task Force (in the Indian Pueblo Conservation Center’s cooperation with FEMA) www.heritagepreserva- tion.org/PROGRAMS/TFresources.html, complete donor) can also make a difference. “Make guide to preparing for and responding to natural a list of who you know,” advises SAAM’s disasters and other collections emergencies. Preservation Books www.preservationbooks. Elizabeth Broun, “and structure your org, Housekeeping for Historic Homes and House request so that they know their gift will Museums, advice on cleaning and caring for his- toric homes and their contents. make a difference. Don’t hit them with a

44 fall 2009 ForumJournal

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On the cover: The Buffalo State Asylum for the Insane is being reborn as the Richardson Olmsted Complex (honoring its building and landscape architects). It is being planned as a “civic campus” featuring an Architecture and Visitor Center along with other public and private activities.

Photo by Brian Faix