C a R I N G F O R T H E P a S T Managing for the Future
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CARING FOR THE P A S T MANAGING FOR THE FUTURE FEDERAL STEWARDSHIP AND A M E R I C A’S HISTORIC LEGACY A D V I S O RY COUNCIL ON HISTORIC PRESERVAT I O N MARCH 2001 THE ADVISORY COUNCIL ON H ISTORIC PRESERVATION IS AN I NDEPENDENT FEDERAL AGENCY ESTABLISHED BY THE NATIONAL HISTORIC PRESERVATION ACT OF 1966, AS AMENDED (16 U.S.C. 470f). THE COUNCIL ADVISES THE PRESIDENT AND C ONGRESS ON HISTORIC PRESERVATION MATTERS, ADMINISTERS THE P UBLIC REVIEW AND CONSULTATION PROCESS FOR FEDERAL UNDERTAKINGS ESTABLISHED BY SECTION 106 OF NHPA, AND WORKS TO IMPROVE FEDERAL POLICIES, PROGRAMS, PLANNING, AND DECISIONS WHEN THEY AFFECT THE NATION’S HISTORIC AND C ULTURAL RESOURCES. FOR MORE INFORMATION, CONTACT THE ADVISORY COUNCIL ON HISTORIC PRESERVATION, 1100 PENNSYLVANIA AVE. NW, SUITE 809, WASHINGTON, DC 20004. PHONE: (202) 606-8503. WEB SITE: WWW.ACHP.GOV. CARING FOR THE P A S T MANAGING FOR THE FUTURE FEDERAL STEWARDSHIP AND A M E R I C A’S HISTORIC LEGACY A D V I S O RY COUNCIL ON HISTORIC PRESERVAT I O N MARCH 2001 “[T]he spirit and direction of the Nation are founded upon and reflected in its historic heritage, [and] the historical and cultural foundations of the Nation should be preserved as a living part of our community life and development in order to give a sense of orientation to the American people.” –National Historic Preservation Act of 1966 A D V I S O R Y COUNCIL ONi i HISTORIC PRESERVA T I O N P R E FA C E During the last two years, the Advisory Council on th r ee major areas: leadership in building a historic Historic Pre s e rvation has been studying how the res o u r ce stewardship ethic; commitment for taking care Federal Government could do a better job of preserving of the Nation’s historic public assets; and accountability the historic resources that it controls, and how it could for making decisions that are in the public interest. A implement sound policies for their stewardship as we fo u r th area, collaboration, was found to be an importa n t enter the next century. This special report presents the means for achieving these and related objectives. results of this study. As the new century opens, it is vital that Americans learn The Council met with key Federal officials from many of to appreciate and take better care of our rich heritage. the Federal agencies with stewardship responsibilities for The protection and enhancement of the Nation’s patri- historic res o u r ces as well as other interested parties, held mony must be viewed as a continuing national priority, onsite meetings at Federal facilities and management and the Federal Government must demonstrate its lead- ar eas, and solicited views and ideas from a variety of indi- ership and commitment to effective public stewardship of viduals ranging from agency heads to private citizens. Am e r i c a ’ s past. The agency conducted res e a r ch and assembled sugges- tions on how the Federal Government could meet its The Council believes that the Federal Government must st e w a r dship responsibilities for America’s cultural her- as s e r t its role as first among equals in the care of public itage more effe c t i v e l y , while acting as a more effe c t i v e pro p e rt y . In the process, Federal agencies can develop le a d e r , manager, and partner with State, tribal, and local and sustain creative, cost-effective solutions to managing go v e r nments and the private sector in this endeavor. the res o u r ces that are part of the Nation’s heritage. Cr eating these solutions is not only in the national pub- The Council’s study reviewed many examples of Federal lic interest, but is the right thing to do for ourselves and historic pres e r vation stewardship, both positive and neg- for generations to come. ative. It concluded that improvements could be made in CARING FOR THE P A S T i i i MANAGING FOR THE FUTURE COUNCIL MEMBERS as of March 1, 2001 Cathryn Buford Slater, Chairman Stephen B. Hand, Vice Chairman James K. Huhta, Ph.D. Arva M.P. McCabe Bruce D. Judd, FAIA Carolyn J. Brackett Parker Westbrook Katherine A. Slick Raynard C. Soon Hon. Angus S. King, Jr., Governor of Maine Hon. Floyd Adams, Jr., Mayor of Savannah, Georgia Architect of the Capitol Secretary of Agriculture Secretary of Housing and Urban Development Secretary of the Interior Secretary of Transportation Environmental Protection Agency General Services Administration Chairman, National Trust for Historic Preservation President, National Conference of State Historic Preservation Officers Observers: Secretary of Defense; National Association of Tribal Historic Preservation Officers John M. Fowler, Executive Director A D V I S O R Y COUNCIL ONi v HISTORIC PRESERVA T I O N A C K N O W L E D G M E N T S The Council wishes to thank those members of the public who contributed opinions, ideas, and suggestions to the electronic forum on the Council’s Web site. The Council also wishes to extend its appreciation and thanks to the many agencies, organizational units, and agency personnel who assisted with information and suggestions for this report. The Department of Energy, the Bureau of Land Management, the U.S. Forest Service, the General Services Administration, and the Department of the Army were especially helpful and supportive throughout the conduct of this study. The National Park Service, the Department of the Navy, the U.S. Coast Guard, and Maine State Historic Preservation Officer Earl Shettleworth, Jr., offered their hospitality and expertise to site visits at Great Smoky Mountains National Park, Pearl Harbor Naval Base, and Portland and Augusta, Maine, respectively. Special mention should be made of the late Gary Bauer, Associate Director of the BLM Arizona State office, whose personal interest and involvement in the Phoenix meeting of the Council and support for BLM’s heritage programs are gratefully acknowledged. We also thank the following individuals and organizations for their contributions: Task Force on the Millennium Initiative: For arranging or providing onsite testimony, hosting James K. Huhta, Ph.D., Chair meetings, and offering specific ideas and suggestions that assisted in the development and preparation of Bruce D. Judd, FAIA this report, we wish to thank: Arva M.P. McCabe Caroline Alderson, General Services Administration Richard E. Sanderson, Environmental Don Barger, National Parks Conservation Association Protection Agency Tom Brown, National Park Service Michael Kaczor, USDA Forest Service Alan Downer, National Association of Tribal Peter Brink, National Trust for Historic Preservation Historic Preservation Officers/Navajo Nation Kathryn Higgins, National Trust Raymond Fatz, Department of the Army for Historic Preservation Caroline Fisher, Department of the Army Special thanks to Council members and observers for Phil Francis, National Park Service their assistance in hosting meetings: Jim Garrison, Arizona State Historic Assistant Secretary Mahlon “Sandy” Apgar, Preservation Officer Department of the Army J. Bennett Graham, Tennessee Valley Authority Robert Peck, Public Buildings Commissioner, David Guldenzopf, Department of the Army General Services Administration Rebecca Hommon, Department of the Navy Ray Soon, Chairman, Hawaiian Homelands Commission Cindy Kelly, Department of Energy Earl Shettleworth, Maine State Historic Keith Kintigh, Society for American Archeology Preservation Officer Roger K. Lewis, FAIA Katharine Stevenson, Associate Director, Ellen Lovell, White House Millennium Council National Park Service Roger Meade, Department of Energy Ray Moore, Department of Energy Nathan Napoka, Hawaii State Historic Preservation Office Keoni Nunes (Native Hawaiian) Barbara Pahl, National Trust for Historic Preservation CARING FOR THE P A S T v MANAGING FOR THE FUTURE A C K N O W L E D G M E N T S Gregory Paxton, Georgia Trust for Jill Osborne, USDA Forest Service Historic Preservation Tamar Osterman, National Trust for Judith Propper, USDA Forest Service Historic Preservation David Scott, Historic Hawaii Foundation John Parascandola, Department of Health Hannah Springer, Office of Hawaiian Affairs and Human Services Pete Toya, Pueblo of Jemez Constance Ramirez, General Services Administration/National Park Service Vincent Anthony Toya, Pueblo of Jemez David Reese, U.S. Coast Guard Richard Tune, Tennessee State Historic Preservation Office Paul Rubenstein, U.S. Army Corps of Engineers William Whatley, Pueblo of Jemez Rebecca Shiffer, National Park Service Gary Wright, Department of the Army James Slager, Department of State Donald Sutherland, Bureau of Indian Affairs For providing information, suggestions, and other Jay Thomas, Department of the Navy materials in meetings of Federal and State Historic Preservation Officers, in interviews, in written Karen Ronne Tupek, Department of Veterans Affairs materials, or during onsite visits, we wish to thank: Richard Waldbauer, National Park Service David Banks, National Park Service Scott Waldman, Department of Health Sarah Bridges, Natural Resources and Human Services Conservation Service Nancy Witherell, National Capital James Bruseth, Texas State Historic Planning Commission Preservation Office For providing materials, sharing experiences and Evan DeBloois, USDA Forest Service ideas, writing or editing sections of the report, and John Douglas, Bureau of Land Management making other significant contributions, thanks are due Susan Escherich, National Park Service to Advisory Council on Historic Preservation staff: Pat Ezell, Tennessee Valley Authority Ron Anzalone (staff project director and principal report author) Laura Feller, National Park Service David Berwick Edward Friedman, Bureau of Reclamation Martha Catlin Michael Kaczor, USDA Forest Service Sharon Conway John Keck, Wyoming State Historic Preservation Officer Jane Crisler Kevin Kilcullen, US Fish and Wildlife Service Ralston Cox Greg Knott, National Trust for Historic Preservation Charlotte Fesko Trudy Kortes, National Aeronautics and John Fowler Space Administration Carol Gleichman Tom Lincoln, Bureau of Reclamation Valerie Hauser Frank McManamon, National Park Service Thomas McCulloch Wilson Martin, Utah State Historic Elizabeth Moss Preservation Office MaryAnn Naber H.