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Keeping Post Offices Public: Three Case Studies on the Disposal and Rehabilitation of Historic Post Offices

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Keeping Post Offices Public: Three Case Studies on the Disposal and Rehabilitation of Historic Post Offices KEEPING POST OFFICES PUBLIC: THREE CASE STUDIES ON THE DISPOSAL AND REHABILITATION OF HISTORIC POST OFFICES A Thesis Presented to the Faculty of the Graduate School of Cornell University In Partial Fulfillment of the Requirements for the Degree of Master of Arts by Katherine Victoria Coffield January 2013 © 2013 Katherine Victoria Coffield ABSTRACT The United States Postal Service (USPS) plans to close thousands of its facilities over the next decade in response to a steady decline in patronage and severe budget deficits. Many of the buildings under review for closure and sale are historic post offices. These venerable civic structures often boast distinctive architectural designs and occupy prominent downtown locations. Given their favorable characteristics, historic post offices deemed to be excess by the federal government are prime candidates for redevelopment. Their closure and sale raises the important question of how these buildings can best be reused in the future. Local post offices are icons of civic culture and a source of community pride. Traditionally, the buildings acted as civic and social centers. Everyone visited the post office on a regular basis to retrieve their mail, making it a place to meet neighbors and share news. Post offices continue to serve as true democratic spaces that allow equal access to all citizens and foster a greater sense of community identity. They are special places that revive poignant memories in the hearts of many. Optimally, historic post offices that are declared surplus will remain public amenities due to their vibrant civic legacy. Keeping Post Offices Public examines how the disposal and rehabilitation of historic post offices for public purposes enables their civic legacy to be preserved. The opening chapters present evidence for why these buildings should continue to act as civic institutions while the closing chapters express how interested parties can acquire historic post offices and rehabilitate them for new public uses. The history of the postal system and its buildings was studied to show the important role post offices have played in the lives of individual citizens and in the greater community. The disposal process for historic post offices was also researched to provide a better understanding of how surplus properties are conveyed to new owners and the mechanisms put in place by the federal government to protect the defining characteristics of these resources after disposition. Three case studies were then presented to illustrate the rehabilitation process and to evaluate the outcomes. The case studies in Ithaca, New York; Rockville, Maryland; and Beverly Hills, California reveal that the civic and architectural legacies of a historic post office can be preserved through rehabilitation for a public use. The new uses have protected both the public nature of the buildings and significant architectural features. The case studies further demonstrate the need for community involvement in the rehabilitation process and the importance of commissioning qualified preservation professionals. The lessons learned from these case studies can be applied in other communities faced with the closure of a historic post office. BIOGRAPHICAL SKETCH Katherine Victoria Coffield was raised in rural Augusta County, Virginia. Her upbringing in the Shenandoah Valley nurtured an early love and appreciation for history. As a youngster her favorite activities were visiting Civil War battlefields and Virginia historic sites. She became interested in historic preservation after seeing firsthand the revitalization of Staunton, Virginia. The dramatic transformation of the historic downtown was the direct result of a concerted preservation effort, focused on adaptive reuse and reinvestment in the city’s historic resources. Staunton’s successful redevelopment inspired Katherine to earn a Bachelor of Urban and Environmental Planning with a Minor in History at the University of Virginia in Charlottesville. After graduation, she traveled north to New York State to pursue a career in Planning. She spent one-and-a-half years as a planner for the Laberge Group in Albany before pursuing graduate study. At Cornell University she majored in Historic Preservation Planning, with a focus on adaptive reuse and the role of preservation in economic development. In the future, she hopes to lead preservation projects that serve as a catalyst for community revitalization. iii ACKNOWLEDGMENTS This thesis could not have been written without the support and guidance of countless individuals. I would first like to thank my advisor, Jeffrey Chusid, for his encouragement throughout the process. He helped me to focus my topic and offered valuable insight on historic post office rehabilitations. I would also like to thank Michael Tomlan for his editorial advice and subtle prodding. You both are wonderful mentors and I am honored to have had the opportunity to work with you during my time at Cornell. I must also thank Burt Hall, Peyton Hall, and Paul Levesque for speaking with me at length about the case study post offices and for providing me with plans and other important documents. Eileen McGuckian, Caroline Alderson, Dallan Wordekemper, Caroline Hall, and Travis Bowman contributed valuable knowledge and assistance, as well. I would also like to thank the Town of Ithaca and Historic Ithaca for allowing me to access their archives. Numerous others were consulted over the course of my research. I truly appreciate the cooperation and enthusiasm of everyone involved. I would also like to acknowledge the support of Historic Preservation Alumni, Inc. and the Barclay Jones Research Grant. The financial assistance from the grant program allowed me to visit the Old Rockville Post Office as it was being transformed into the Rockville City Police Headquarters. I truly appreciate the members’ of the HPPA Thesis Committee interest in my research and their excitement about the project. Finally, my family and friends deserve special thanks for keeping me sane over the past year with distractions and words of encouragement. I would especially like to thank my parents for their unconditional love and endless support. Thank you for helping me to believe that I can accomplish anything. iv TABLE OF CONTENTS INTRODUCTION ........................................................................................................ 1 CHAPTER I: THE POSTAL SERVICE AS A PUBLIC INSTITUTION .............. 6 Origins of the Postal System ...................................................................................... 7 Binding the Nation ..................................................................................................... 9 Fueling National Growth and Development ............................................................. 11 Expanding Service to the American Public .............................................................. 13 The Transformation of the Postal System ................................................................ 15 Conclusions .............................................................................................................. 18 CHAPTER II: SIGNIFICANCE OF HISTORIC POST OFFICES ..................... 19 Early American Post Offices .................................................................................... 20 Advent of the Public Buildings Program .................................................................. 23 Post Offices of the Gilded Age ................................................................................. 25 Post Offices of the Progressive Era .......................................................................... 27 Post Offices of the Great War & Jazz Age ............................................................... 30 Post Offices of the Great Depression ....................................................................... 33 Post Offices of the Post-World War II Era ............................................................... 37 Conclusions .............................................................................................................. 39 CHAPTER III: REUSE FOR PUBLIC PURPOSES .............................................. 40 Maintain Public Access ............................................................................................ 42 Preserve a Valued Community Gathering Place ...................................................... 44 Strengthen Downtown Economies ........................................................................... 45 Conclusions .............................................................................................................. 47 CHAPTER IV: FEDERAL DISPOSAL PROCESS ............................................... 48 Federal Stewardship Responsibilities ....................................................................... 48 Disposal Process ....................................................................................................... 50 Section 106 Review & the Memorandum of Agreement ......................................... 53 Preservation Provisions ............................................................................................ 54 Protecting the New Deal Arts Collection ................................................................. 56 Conclusions .............................................................................................................. 57 CHAPTER V: CASE STUDIES INTRODUCTION............................................... 58 v CHAPTER VI: ITHACA POST
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