‘I Inited States Gcnertll Accounting Office I.eport to the Chairman, Subcommittee GAO on Nat,ional Parks, Forests, and Public Lands, Committee on Natural Resources, House of Representatives Scope and Cost o:f America’s Industrial Heritage Project Need to Be Defined

United States General Accounting QfPice GAO Washington, D.C. 20648

Besources, Community, and Economic Development Division

B-249434

May 14,1993

The Honorable Bruce F. Vent0 Chairman,Subcommittee on National Parks, Forests,and Public bands Committeeon Natural Resources House of Representatives

Dear Mr. Chairman

This report respondsto your requestthat we review certain issuesrelated to a number of projects and activities (projects) collectively referred to as America’sIndustrial Heritage Project (AMP).The projects, located at sites throughout a nine-countyregion in southwesternPennsylvania, are intended to depict the contribution of the region’s iron and steel, coal, and transportation industries to the nation’s industrial growth. The sites include four units within the Department of the Interior’s National Park Servicesystemi and will be connectedby a 606mile vehicular tour route along existing public roads. In 1933,the Congressestablished the SouthwesternPennsylvania Heritage PreservationCommission (Co mmission) within the Department of the Interior. The Commissionis responsiblefor overseeingthe implementation of AIHP.In implementingAIHP, the Commissionexpected that the economic baseof the nine-countyregion would be revitalized through the promotion of tourism. To determine AMP’Sstatus and potential future cost, you asked us to identify (1) the estimatedtotal cost of AIHP and the amount of federal funds appropriated for MHPprojects, (2) the way AIHPprojects are developedand the relationship between AIHPprojects and nationwide project priorities establishedby the Park Service,and (3) who

will be responsiblefor operating and maintaining AIHP projects after they l are constructed.

Results in Brief projects. In conferencereports accompanyingInterior ’s annual appropriations acts for fiscal years 198983,the Congressrecommended I / that about $63million be spent on AIHP.While the scope of AIHPhas not been defined, the Executive Director of the Commissionestimates that the , total cost to complete AIHP will amount to about $355million-an expected

‘The four Park Service units are the Allegheny Portage Railroad National Historic Site, Fort Necessity National Battlefield, Friendship Hill National Historic Site, and Johnstown Flood National Memorial.

Page 1 GAO/WED-99-134 America’s Induhrhl Heritage Project

.,,I $166million in federal funding and an expected$200 million in funding from nonfederalentities (state and local governmentsand private organizations).Of the $63million appropriatedfor AMP,about $40million had been obligated for planning, design,construction, and overall administration of 39 AMP projects, accordingto availablerecords as of August 1992.Hovvever, because records were incomplete,the $40million figure for obligatedfunds may not be accurate.The Commissionhas also receivedcontributions for AIHPof cash and in-kind services,with a value it estimatesat about $32million, from nonfederal entities.

Recommendationsfor AMP projects come from private citizens,various community organizations,the Commission’smembers and staff, and the Commission’stechnical advisory groups.In developingAMP projects, the Commissionuses experts made availablethrough the numerous partnershipsit maintains with the Park Serviceand nonfederalentities. There is no relationship betweenAIHP projects and the Park Service’s nationwide project priorities. The Commission can fund projects at any of the four Park Serviceunits regardlessof the projects’ ranking on the Park Service’snationwide priority list as long as they fit the AIHPtheme and are included in the relevant unit’s generalmanagement plan. At all four Park Serviceunits, projects have been planned or constructed using AMP funds. Park ServiceotI?rcials stated that without AIHPfunding, these projects would not have been undertakenwhen they were, becausethey were either ranked low or not included on the nationwide priority list.

Whencompleted, the projects located in the four Park Serviceunits will be operatedand maintainedwith appropriatedfunds, The Executive Director of the Commissionexpects AIHP projects located on nonfederalland to be operatedand maintainedby nonfederal entities. However,the Executive Director told us that some federal funds will be neededfor up to 6 yearsto operateand maintain severalAIHP projects on nonfederalland. The a Commissionis consideringthree options to ensurethe long-term management,operation, and maintenanceof AMPprojects. As of April 1993,the Commissionhad not yet chosenfrom amongthese options.

In fiscal year 1934,the Congressappropriated $70,000to the Park Service Background to perform a reconnaissancestudy of roads in western Pennsylvaniafor considerationas national parkways.2The study, which was completedin 1986,reviewed sites of regional historical significancealong the roads and

2A national parkway is a road that offers an opportunity for leisurely driving through areas of scenic interest

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provided four alternativesfor the developmentand promotion of the region’sindustrial heritage.

In fiscal year 1986,the Congressappropriated an additional $430,000to the Park Serviceto study the region’sresources in more detail and to develop a program to implementthe conceptsin the reconnaissancestudy. With the Park Service’sassistance, a 33-memberlocal HeritagePreservation Commissionwas formed. In 1987,the Commissionproduced a document entitled Action Plan-America’s Industrial HeritageProject. The action plan (1) documentedpotential historic sites related to the contribution of the region’siron and steel, coal, and transportation industries to the nation’s industrial growth and (2) suggestedusing these sites to revitalize the region’seconomy by promoting tourism.

On November19,1988, P.L. 100-698established the PennsylvaniaHeritage PreservationCommission within the Departmentof the Interior to oversee implementationof ArHpin the nine southwesternPennsylvania counties of Bedford, Blair, Cambria,Fayette, Nton, Huntingdon, Indiana, Somerset, and Westmoreland.This nine-countyregion is shown in figure 1.

Page 8 GAO/RCED-98-184 America’s Industrial Heritage Project B-249484

‘igure 1: Nine-County Region Where AIHP Will Be Implemented

N.Y.

PA.

MD.

A Source: Southwestern Heritage Preservation Commission.

The Commissionis headedby a chairmanand consistsof 21 members-19 membersfro m the nine counties and from state and local planning and developmentcommissions and 2 memberswith knowledgeand experiencein the field of historic preservation.In addition, the Director of the National Park Serviceserves as an ex officio memberof the Commission.The Commissionhas establishedfour technical advisory groups to review and recommendprojects and activities for funding.

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Appendix I showsthe Commission’sorganization and sourcesof technical support.

By law, the Commission’ster m expires on November19,1998. Over its lo-year life, the Commissionhas been authorized$3 million to implement AIHP.Implementation activities include (1) making grants and loans to preservesites and (2) coordinating the activities of federal and nonfederal entities in furthering historic preservationand compatibleeconomic revitalizationin the nine-countyregion. During our review, the Commissionemployed a staff of sevento carry out its responsibilities.

AMPhas not been defined in terms of the number, size,and cost of the Mount of Federal projects. The ExecutiveDirector of the Commissionesti matesthat the F@ding for AIHP total cost for AMPwill be about $366m illion, of which he expectsabout $166m illion to be provided by the federal governmentand the remaining $260m illion to be provided by nonfederal entities. Becausesupporting documentationwas not available,we were not able to verify these estimates. Through fiscal year 1993,the Departmentof the Interior has requested limited funding to support the Commission-about $1 million for Park Servicepersonnel who were detailed to the Commission.3For the same period, however,the Congresshas appropriated about $63m illion for AIHP. Table 1 showsa breakdown of federal AIHPfunding by fiscal year.

Table 1: AIHP Fundlng, Flscal Years 1o&?-a3 Dollars in millions Flscal year AIHP approprlatlons 1989 $10 1990 11 b 1991 15 1992 15 1993 12 Total $63

In the conferencereports that accompaniedInterior ’s annual appropriationsact for each of fiscal years 1989-93,the Congress recommendedthat the Park Servicespend specified amountson AMPOf.

% fiscal year 1989,six full-time Park Service employees were assigned to AIHP in southwestern Pennsylvania By 1992,the number had been reduced to two. The Park Service does not plan to assign any employees to AIHP from 1993through 1998.

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the funds appropriated,available records showedthat about $40 million had been obligatedfor 39 AIHP projects through August 1992.Because the records were incomplete,we cannot say with certainty that the obligation amount is accurate.The obligated funds have been used for (1) constructingnew facilities, such as visitors’ centers,administration buildings,trails, and picnic areas;(2) rehabilitating, renovating,and restoring various historic structures; (3) conducting additional resource studiesand surveysof the nine-countyregion; (4) developingproject managementplans for sites; (6) providing project managementsupport; (6) producing public information documents;and (7) preservingprivately owned historic structures. Many of the 39 AIHPprojects for which funds have been obligated are still in the early stagesof development.Some, such as resourcestudies and surveys,may result in additional AIHPprojects. Therefore,the final scope of AllIpin terms of the number,size, and cost of projects is unknown. Appendix II providesthe purpose,status, esti matedcompletion date, and estimatedobligations for each of the 39 AMP projects undertaken,as of August 1992. In addition to receivingfederal funding, AIHPhas receivedfunding support from nonfederalentities. Information provided by the Commission’s ExecutiveDirector indicated that, through August 1992,nonfederal contributions of cash and in-kind servicesfor AIHP projects amountedto about $32 million. While we did not verify all of these nonfederal contributions, we did selectivelycontact severalnonfederal entities to verify their contributions.

Recommendationsfor AEIP projects comefro m private citizens,various A AIHP Project communityorganizations, the Commission’smembers and staff, and the Development and Commission’stechnical advisorygroups. In developingprojects, the R4lationship to Park Commissionuses experts madeavailable through the numerous partnershipsit maintainswith the Park Serviceand nonfederal entities. Service Priorities AIHPprojects outside of Park Serviceunits do not require the Park Service’sapproval, Projects within Park Serviceunits must fit the overall theme of AIHPand be included in the relevant unit’s generalmanagement plan. Thereis no relationship betweenAIHP project priorities and the nationwide project priorities establishedby the Park Servicefor its units. At the four Park Serviceunits, projects have been planned or constructed using AIHPfunds. Park Serviceofficials stated that without AIHP funding,

Page 6 GAO/WED-93-134 America’s Industrial Heritage Project B-249424

theseprojects would not have been undertakenwhen they were, because they were either ranked low or not included on the nationwide priority list,

Project Development According to the Commission’sExecutive Director, an AIHP project must be either (1) directly related to the theme of AIHP,(2) a National Historic Landmarkor nominatedas a National Historic Landmarkor to the National Registerof Historic Places,4or (3) part of a Park Serviceunit.

AIHPprojects have resulted from studiesand surveysand from proposals by private citizens,various committeeorganizations, the Commission’s membersand staff, and the Commission’stechnical advisorygroups. Public meetingsare held to discussthe proposedprojects, which are then listed in priority order by the Commission’sstaff on the basisof their (1) potential impact on tourism and economicdevelopment, (2) historical value, and (3) contribution to the industrial theme of the region. The priority list is then submittedto the 21-memberCommission for approval. Proposalsfor projects within the four Park Serviceunits are submittedto the Commission’ and to the Park Service’sM id-Atlantic Region,which is responsiblefor these units. The Regionreviews the proposalsto ensure that the projects are included in the relevant unit’s generalmanagement plan. To developprojects, the Commissionmaintains partnerships with the Park Serviceand with nonfederalentities. For example,to meet the special needsof AIHP, the Park Service’sDenver ServiceCenteld established the WesternPennsylvania Partnership in March 1991and assigned32 staff to it. The WeStMTi PennsylvaniaPartnership, using SolelyAIHP funds, developstask directivesand work plans for AIHPprojects. Similarly,in A 1933the Park Service’sHistoric AmericanEngineering Office established four positions for historians solely to work on AIHP projects. The function of thesehistorians has been to conduct inventories and prepare documentationon historical and engineeringstructures in the nine-county region, usingAmp funds. The Windber/ScalpLevel Coal HeritageSite project demonstrateshow partnershipswork to developprojects. Beginningwith federal funding in

‘A National Historic Landmark is a site, sbxcture, or object of national significance that is entered in the National Register of Historic Places, which is a record of such landmarks. Vhe Park Service’s Denver Service Center is generally responsible for planning, developing designs, and estimating costa for all Park Service construction projects that cost over rb200,OOO.

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fLscalyear 1990,the Commission,in cooperationwith the Eureka Coal HeritageFoundation, the state of Pennsylvania’sHeritage Parks Program, Windber Borough,and local organizations,developed a project to interpret the story of the coal industry, the miners,and their families in the Windber/ScalpLevel area.

The project has severalfacets in Windber Borough.M iners’Memorial Park will be rehabilitated.Also, the 1,000~seatArcadia Theater and the Boy Scout building will be rehabilitated to serveas a coal heritage center and welcomecenter, respectively.Plans call for the Arcadia Theaterto house contemporaryperfor mancesand office spacefor the Eureka Coal Heritage Foundation;during the daytime,the theater will be used for interpretative purposes.The project also includesthe construction of parking areas, installation of exhibits, and developmentof a hiking and biking trail system.Federal AIHP costs for the developmentin Windber are projected by the Commissionto exceed$3 million between 1993and 1997.Figure 2 showsthe Boy Scoutbuilding before renovation.About $1.6m illion in federal AIHPfunds will be used for the building.

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Figure 2: Boy Scout Building In Wlndber Borough

Major efforts are also planned at the Mine 40 site at ScalpLevel. These A efforts will include construction of a visitors’ center, exhibits, and parking facilities; reconstruction of a worker’s house;and displaysof Mine 40 artifacts. FederalAIHP costs for ScalpLevel are projected by the Commissionto exceed$7 million between 1993and 1997.F ’igure3 shows Mine 40 before renovation.

Page 9 GAO/WED-93-134 America’s Industrial Heritage Project

‘, I ,.I. : ‘1 B-248484

Figure 3: Mine 40

Relationship of AIHP to Both the Commissionand the Park Servicemaintain lists of project Park Service Priorities priorities. The Park Service’slist includesprojects nationwide, while the Commission’slist includes only projects in the nine-countyAIHP region. There is no relationship betweenthe Commission’spriority list for AIHP and the Park Service’snationwide priority list. The Park Serviceupdates its priority list about every 6 years.The current list was developedin 1990 and includes 196projects. According to the Park Service’sAssociate Director for Planningand Development,project funding expectedthrough 1994will only be sufficient for the top 66 projects on the list. A We noted that two AIHPprojects were included in the Park Service’s nationwide priority list. Theseprojects were for rehabilitation and stabilizationat the FriendshipHill National Historic Site and the construction of a new visitors’ center at the AlleghenyPortage Railroad National Historic Site. The F’riendshipHill rehabilitation and stabilization project was ranked number 34 on the Park Service’snationwide priority list, and the new visitors’ center at AlleghenyPortage was ranked number 183.

The Park Serviceesti matedthat the F’riendshipHill rehabilitation and stabilizationproject would cost about $2.4m illion. This work was

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completedwith AIHPfunding. An additional $6 million in AIHP funding was used to restore the historic Houseat the F’riendshipHill unit. Restorationof the Gallatin Housewas not included in the Park Service’spriority list.

At the AlleghenyPortage National Historic Site, about $6 million in federal AIHPtumiing was used to construct the new visitors’ center that was ranked number 183on the Park Service’spriority list. Construction began in fiscal year 1989and was completedin 1992.About another $2 million in federal AIHPfunding was obligated for other projects at the Allegheny Portagesite, including planning for the rehabilitation of the Lemon House and construction of an enginehouse exhibit shelter. Theseprojects were not included on the Park Service’snationwide priority list.

According to the Park Service’sAssociate Director for Planningand Development,the project at the AlleghenyPortage National Historic Site was undertakenonly becauseAIHP funding was available.Otherwise, the project would not have been funded at that time. F’igure4 shows the new visitors’ center at the AlleghenyPortage site.

Figure 4: Allegheny Portage Vlrltora’ Center

A

Page 11 GAO/RCED-98-134 America’s InduWrial Heritage Project Projects located in the Park Serviceunits will be operated and maintained Operating and by the Park Servicewith appropriated funds. The Executive Director of Maintaining Projects the Commissiontold us that he expects nonfederal entities to provide and Sustaining Them funds to operate and maintain AIHPprojects on nonfederal land. However, he expectsthat federal funding will be neededfor severalAIHP projects on Long Term nonfederal land for up to 6 years.The Commissionis consideringthree options to ensurethat AIIWprojects can be sustainedover the long term.

Operation and While the Executive Director of the Commissionexpects that AMP projects Maintenance on nonfederal land will be operated and maintained by nonfederal entities, he has indicated that at least sevensuch projects will receive federal AIHP funding for a S-yearperiod. The federal funding is to be used for operation and maintenanceonce the projects have been completed. The Executive Director stated that, in general,each project will receive about $300,000 for the first year; this amount will be decreasedannually over the 6-year period. The Executive Director expects that the Commissionwill have no further responsibility for these projects after the S-yearperiod.

A new visitors’ center and incline plane at HorseshoeCurve National Landmark,one of the sevenprojects, is currently receiving AIHPfunds for operation and maintenance.Construction of the visitors’ center and incline plane cost about $6.8million in federal AIHPfunds. For fiscal year 1993,the Commissionis providing about $300,000in federal AIHP funds toward operation and maintenancecosts. The Commissionexpects to contribute to operation and maintenancecosts in decreasingamounts through fiscal year 1997.Beginning in 1998,the Commissionexpects to have no further responsibility for operating or maintaining this project. Figure 6 shows the new visitors’ center and incline plane at Horseshoe Curve. A

Page 12 GAO/WED-98-184 America’s Industrial Heritage Project B-249484

Figure 5: Iiormrhoa Cunm Inicllne Plane and Vlrltorr’ Clmter

SustainingProjects Long The Commissionwas establishedby law with a N-year life. To ensurethat Term AIHPprojects are sustainedafter the Commission’ster m expires,the Commissionis consideringthree options. Under the first option, the Congresswould be askedto renew the legislation,extending the life of the Commission.Under a secondoption, a private, not-for-profit corporation would assumethe Commission’sroles and responsibilities.The corporation would also be empoweredto seek funding from all sources, chargeand collect entry fees at the sites, and initiate other

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revenue-generatingactivities. The corporation would be able, on a contract basis,to hire staff to manage,operate, and maintain individual AIHPprojects, Under a third option, each of the Commission’snonfederal partners would seek,through existing or new authorities, adequate funding to manage,operate, and maintain the projects on a long-term basis.

While the Commissionis consideringall these options, it favors establishinga not-for-profit corporation that would be responsiblefor the management,operation, and m&tenance of all projects. As of April 1993, the Commission had not madea final selectionfro m amongthe options.

Much uncertainty exists about the developmentand operation of AIHP. The Conclusions Commissionesti matesthat completingAIHP will cost about $366m illion, including $166m illion in federal funds. However,this estimateis not documented,because the fina scopeof AIHPhas not been defined in terms of the number,size, and cost of the projects.

Both the Commissionand the Park Serviceestablish project priority lists, but there is no relationship betweenthe two lists. The Park Service’slist includesprojects nationwide, while the Commission’slist includes only projects in the nine-countyAIHP region. AIHPfunds can be used to construct projects at the four Park Serviceunits as long as the projects sre consistentwith the overall theme of AIHP and are included in the relevant unit’s generalmanagement plan. Projectshave been planned or constructedusing AIHP funds at all four Park Serviceunits. Park Service officials stated that without AIHP funding, these projects would not have been undertakenwhen they were, becausethey were either ranked low or not included on the nationwide priority list. A There is also uncertainty about the operation and maintenanceof AIHP projects on nonfederalland. Projects completedwithin the Park Service units will be operatedand maintainedusing appropriated funds. The Commissionexpects that projects completedon nonfederal land will be operatedby nonfederal entities. However,the ExecutiveDirector of the Commissiontold us that federal funds will be used for up to 6 yearsto operate and maintain severalAIHP projects on nonfederalland.

F’inally,it is not certain who will be responsiblefor the future management,operation, and maintenanceof AIHP projects, since the Commission’ster m expires in November1998. The Commissionis

Page 14 GAO/WED-93-184 America’s Industrial Heritage Project B-249484

consideringthree options for the long-termmanagement, operation, and maintenanceof the AIHPprojects. While all these options are being considered,the Commissionfavors the establishmentof a not-for-profit corporation that would be responsiblefor managing,operating, and maintainingall projects. However,ss of April 1993,the Commissionhad madeits final choice.

A Becauseof the uncertaintiesabout the developmentand operation of AIHP, Recommendationsto we recommendthat the Secretaryof the Interior direct the Commissionto i”’ the Secretary of the developa plan that (1) clearly definesthe scopeof AIHPin terms of the. number,size, and cost of the projects; (2) identifies the projects on nonfederalland, if any, that will require federal funds for operation and maintenance,the amount of such funds, and the period for which the funds will be needed;and (3) provides adequateassurance that over the long term the federal investmentin AIHPwill be protected. We further recommendthat the plan, when developed,be submitted!to the applicable congressionalauthorization and appropriationscommittees to facilitate any deliberationson the future sizeand costs of AIHP.

a To obtain requestedinfor mation about AIHP,we performed our work at the ‘I’ lia’i’~ll~~ki,,ill,,“, Park Service6headquarters in Washington,D.C., and Mid-A&tic INIl,,I 1 RegionalOffice in melpma, Pennsylvania.In addition, we obtained financial data and held discussions with officials from the Park Service’s Denver&&ce ami HarpersFerry Centersand the Stateof Pennsylvania’s nemwtmentof community ABM-S.We also performedwork at the offices of the SouthwestPennsylvania Heritage Preservation Commission in Holidaysburg,Pennsylvania, and visited numerousproject sites. As you requested,we did not obtain written commentson our findings from the Departmentof the Interior. However,we discussedthe factual material with Park Serviceand Commissionofficials, who agreedwith the facts as presentedin this report. As agreedwith your office, unlessyou publicly announceits contents earlier, we plan no further distribution of this report until 30 daysfro m the date of this letter. At that time, we will send copiesto the Secretaryof the Interior. We will make copiesavailable to others on request.

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This work was performed under the direction of JamesDuffus III, Director, Natural ResourcesManagement Issues, who may be contactedat (202) 612-7766if you or your staff have any questions.Other mqjor contributors to this report are listed in appendix III.

J. Dexter Peach c/ AssistantComptroller General

Page 10 GAOiRCED-98-184 America’s Induedd Heritage Project Page 17 GAO/RCED-93-194 America’s Industrial Heritage Project

” ., ,;, .’ . #,- ;,,.:* ’ ,, ‘.,:,3,, I ,‘I , I.‘! ., ” . . ‘, /,.’ I,_I. +, Contents

Letter Appendix I Commission Organization Appendix II 21 Allegheny Portage Railroad National Historic Site 21 Status of Current Staple Bend Tunnel at Allegheny Portage 21 Projects Under Mount Etna Iron Furnace 21 Fort NecessityNational Battlefield 22 America’s Industrial Friendship Hill National Historic Site 22 Heritage Project, as of Johnstown Flood National Memorial 22 August 1992 Johnstown Flood Museumand Related Entities 23 Windber/ScalpLevel Coal Heritage Site 23 Altoona Railroaders’ Memorial Museum 23 HorseshoeCurve National Landmark 24 Ritter House 24 East Broad Top Railroad National Historic Landmark 24

Saltsburg Canal Park 26 Fort Roberdeau 26 West Overton Village 26 Overland Heritage Transportation Center 26 Historic American Buildings Surveyand Historic American 26 Engineering Record

Heritage Tour Route 26 b Rails to Trails 26 National Road Study 27 Juniata River Studies 27 Juniata Woolen Mill Structures Report 27

PennsylvaniaCanal ResourceStudy 28

Aluminum Heritage Survey 28 BrownsvilkYMonongahelaValley Survey 28

Page 18 GAO/WED-88-184 America’s Industrial Heritage Project

./’

,’ Cont43ntr

AItoona Historic ResourceStudy 28 Huntingdon County Survey 29 Coke and Coal Study 29 CambriaIron Works Historic ResourceStudy 29

PennsylvaniaHistorical and MuseumCommission 30 PennsylvaniaHeritage Affairs Commission 30 Indiana University of PennsylvaniaArchives Center 30 Departmentof EnvironmentalResources and Bureau of State 31 Parks

ComprehensiveManagement Plan for the Commission 31 Public Information Documentsfor the Commission 31

ArcheologicalSupport 31 Project ManagementSupport 32

Grant and Loan Fund 32 TechnicalDrawing Review 32

Appendix III 33 Major Contributors to This Report >le Table 1: AIHP Funding,Fiscal Years1989-93 6

Figure 1: Nine-CountyRegion Where AIHP Will Be Implemented 4 pres Figure 2: Boy Scout Building in Windber Borough 9 4 Figure 3: Mine 40 10 Figure 4: AlleghenyPortage Visitors ’ Center 11 Figure 6: HorseshoeCurve Incline Planeand Visitors’ Center 13

Abbreviations

America’sIndustrial HeritageProject GAO GeneralAccounting Office

Page 19 GAOAZCED-98-184 America’8 Industrial Heritage Project Appendix I Commission Organization

Four Technical -IAdvisory Groups

Technical Support

I I

l National Park Service Denver Service CenterMlestern Pennsylvania Partnership

l Harpers Ferry Center

l Historic American Buildings Survey/Historic American Engineering Record

l National Park Service’s Mid-Atlantic Reaional Office

Source: Southwestern Pennsylvania Heritage Preservation Commission.

Page 20 GAO/WED-92-124 America’s InduMrial Heritage Project

I .’ AppendixII Status of Current Projects Under America’s Industrial Heritage Project, as of August 1992

Allegheny Portage AlleghenyPortage Railroad National Historic Site (a Park Serviceunit) are Railroad National to be completed.Specifically, the Park Service,with America’sIndustrial Historic Site HeritageProject (AIHP)funding, was to construct a new visitors’ center, administration building, and enginehouse exhibit shelter.The historic Lemon Houseis to be rehabilitated,and exhibits and historic period furnishings are to be installed. A new generalmanagement plan was also to be developedfor the unit.

status The visitors’ center and administration building have been completed. Ground-breakinghas taken place for the enginehouse. The general managementplan is 26-percentcomplete.

Funds Obligated $6,937,263

Estimated Completion Date June 1996

StapleBend Tunnel, within the AlleghenyPortage Railroad National Staple Bend Tunnel at Historic Site,is to be developedas outlined in the unit’s general Allegheny Portage managementplan. The project calls for stabilization of the tunnel and developmentof visitors’ facilities, including restrooms,a picnic area,and a trail.

status The project is in the designstage but is on hold pending negotiation with BethlehemSteel Corporation for the Park Service’sacquisition of the tunnel.

Funds Obligated $664,337 Estimated Completion Date June 1994,pending land acquisition,

A resourcefor interpreting the iron manufacturingindustry and the Mount Etna Iron importance of the PennsylvaniaMain Line Canalto that industry is to be Fuknace preserved. StaQls The project is on hold pending legislation that would approvethe site as a unit of the AlleghenyPortage Railroad National Historic Site.

J?undsObligated ~ $213,246

Page 21 GAOIRCED-93.134 America’s IndustrJal Heritage Project Appendix II Btatw of Current Projects Under America’s Induhrial Heritage Project, au of August 1992

Estimated Completion Date To be determined.

Fort Necessity center and maintenance/headquartersbuilding are to be constructed in National Battlefield this Park Serviceunit. status The generalmanagement plan has been completed.The visitors’ center is in the preliminary planning stage.Work is in progresson construction documentsfor the maintenance/headquartersbuilding.

Funds Obligated $470,998

Estimated Completion Date June 1996

The generalmanagement plan for the FriendshipHill National Historic Friendship Hill Site,a Park Serviceunit, was to be implemented.The plan included National Historic Site renovation and restoration of the home of Albert Gallatin. status The project is 95percent complete.

Funds Obligated $7,262,436

Estimated Completion Date November1992

In this Park Serviceunit, a new visitors’ center was to be constructed and Johnstown Flood the historic Unger housewas to be restored. The project also includes National Memorial plans to (1) clear the lake bed of the South Fork Dam,whose failme led to the 1889Johnstown Flood; (2) restore the South Fork Hunting and Fishing Club as a working hotel and restaurant (3) restore three historic cottages; and (4) developa new generalmanagement plan for the unit. status The visitors’ center and restoration of the Unger house have been completed.As of August 1992,clearing of the lake bed was expectedto be completedin 1992.

Funds Obligated $1,271,964

Estimated Completion Date June 1997

Page 22 GAO/WED-93.134 America’s Industrial Heritage Project Appendix II Status of Current Projecta Under Amerlca’e Indu&rlal Heritage Project, M of August 1992

A major renovation of the Johnstown Flood Museumwas planned.Also, Johnstown Flood funding support is to be provided to the Johnstown Area Heritage Museum and Related Associationand other entities for operations,historical and cultural Entities events,and interpretive programs. status Renovationsof the museumhave been completedexcept for warranty work. Support for the JohnstownArea HeritageAssociation is continuing. Funds Obligated $3,121,168

Estimated Completion Date November1998

With the Eureka Coal HeritageFoundation and the state of Pennsylvania’s Windberkalp Level HeritageParks Program, a waysideexhibit is to be establishedat Miners’ Coal Heritage Site MemorialPark in Windber Borough.W indber’sBoy Scoutbuilding and Arcadia Theaterwill be rehabilitated as a welcomecenter and a coal heritage center, respectively.The centerswill include exhibits to interpret the story of the coal industry and of miners and their families.Parking facilities will be designedand constructedin Windber,and a hiking and biking trail systemwill be established.

At the Eureka Mine 40 site, plans call for construction of a visitors’ center, installation of waysideexhibits along the Mine 40 trail, construction of parking facilities, work on the power house,construction on a worker’s house,displays of Mine 40 artifacts, and the creation of other exhibits. status The project is ongoing.

Funds Obligated $1,372,990

Estimated Completion Date November1998

The MasterMechanics ’Building, a historic PennsylvaniaRailroad building, Altoona Railroaders’ is to be restored as an expandedmuseum facility. Following removalof Memorial Museum hazardousmaterials, restoration, and enlargement,the facility is expected to better tell the railroaders’story and interpret the importance of the railroad. As part of the project, waysideand other exhibits will be built, a film will be produced, and a shelter will be establishedfor watching trains.

Pfqe 22 GAO/WED-9%184 America’s Industrial Heritage Project Appendix II Statar of Current Projecta Under America’8 Induntrhl Heritage Project, M of August 1002

The existing museumwill be convertedinto a rolling stock display building with additional exhibits. status The managementplan for the museumis g&percent complete,and the historic resourcereport is go-percentcomplete. Additions to the museum are being planned.

Funds Obligated $902,477

Estimated Completion Date May 1998

In cooperationwith the Altoona Railroaders’Memorial Museum, a Horseshoe Curve 6,800-square-footinterpretative center was constructed with a National Landmark handicapped-accessibleincline plane to provide accessto what is considereda significant feat of railroad engineering. status !l’hevisitors ’ center has been completedexcept for warranty work.

Funds Obligated $6,762,796 Completion Date April 1992

the Ritters for five generations.The interior of the house has changedlittle during this time and representsa typical steelworker’shome in the 1900s. status The project is in&s secondyear of evaluation.

Funds Obligated $14,211 Estimated Completion Date March 1993

E$st Broad Top Landmarkwas undertakenin cooperation with the owner. Also, the R&road National recommendationsof a study of alternativesprepared by the Park Service Historic Landmark are to be implemented.

Page 24 GAO/WED-08-134 America’s Industrial Heritage Project

, ,‘.a!, :, ,,’ ,‘,. Appendix II Status of Current Project8 Under America’8 Indwtrlal Heritage Project, as of August 1002

status The emergencystabilization has been completed.Other planning is ongoing.

Funds Obligated $786,064

Estimated Completion Date November1998

1 Saltsburg Canal Park Borough Council and Historic Saltsburg,Inc. The park will include waysideexhibit panelsinterpreting the importance of the Pennsylvania Main Line Canalin the transportation heritage of the region. status Constructiondrawings are in processand other planning is ongoing.

Funds Obligated $638,643

Estimated Completion Date November1997

Fort Roberdeau location of the original fort and lead mine. status The investigationis beginningits secondyear.

Funds Obligated $411 Estimated Completion Date November1992 a West Overton Village coal, and transportation industries are to be examined,preserved, and interpreted, In cooperation with the Westmoreland-FayetteHistorical Society,a plan is being developedto guide the stabilizationand rehabilitation of a mid-19th~centuryrural industrial village.

St2l ,tiiS Planningis ongoing,and a designhas begun.

FUI t-@sObligated $47,446 1 Es1;it matedCompletion Date April 1998

Page 21 GAO/WED-02-124 America’s Industhl Heritage Project

: Appendix II Statue of Currant Projecta Under America’s IndmtrlaI Herltyls Project, u of August 1002

An interpretive facility that focuseson the story of overlandtransportation Overland Heritage through southwesternPennsylvania is to be planned, designed,and Tmnsportation center constructed. status The project is in ‘theplanning stage.

Funds Obligated $262,032

Estimated Completion Date October 1996

Significanthistorical buildings and engineeringstructures (especially Historic American those at risk of being lost) are being documentedthrough large-format Buildings Survey and photographs,measured drawings, and written descriptions. Historic American Engineering Record status The project is ongoing.

Funds Obligated $1,210,000

Estimated Completion Date November1998

A 600mile tour route is to be establishedcovering nine countiesin Heritage Tour Route southwesternPennsylvania. The project includes developmentof a signageplan, production of brochures and audio cassettes,design of scenicturnouts, and archeologicalsurveys on the sites of the turnouts. status A SO-milepilot section of the route has been completed.

Fudds Obligated $148,628

Estimated Completion Date June 1994

nine-countyregion, In cooperation with nonprofit trail organizations,a network of hiking, bicycling, skiing, and equestriantrails is being developed.The majority of the trails will be establishedon abandoned

Page 26 GAO/WED-02-184 America’s 1nduMria.l Heritage Project Appendix II Status of Current Projecta Under America’s Indnstxial Fieribge Project, as of Augwt 1002

railroad rights-of-way.Interpretation of industrial sites will be provided along with recreationalopportunities. status The trails are in various stagesof development.

Funds Obligated $1,120,000

Estimated Completion Date November1998

Nation&l Road Study Road (Route 40) are to be evaluated.The evaluationis to be coordinated with the state of Pennsylvania’sHeritage Parks Program. status The scopeof the work has been determinedand the evaluationhas recently been started.

Funds Obligated $3,109

Estimated Completion Date June 1993

Juniata River Studies Juniata River Valley are to be documented. status Reconnaissanceand recreation-usestudies have been completed.Historic resourcestudies re main to be done.

Funds Obligated $342,372

Estimated Completion Date July 1993

Juniata Woolen Mill report on the mill. Structures Report

St&Is The report is SO-percentcomplete. finds Obligated , $693

Estimated Completion Date April 1993

Page 27 GAO/WED-08-124 America’s Industrial Heritage Project

I, \ , AppendI% II Status of Current Projecb Under herlcs’r Indwtrlal Heritqe Project, M of Angst 1902

PennsylvaniaCanal PennsylvaniaMain Line Canal. Resource Study

status A draft study has been prepared.

F’unds Obligated $194,691 Estimated Completion Date October 1992

The aluminumindustry ’s contribution to the nation’s industrial Aluminum Heritage developmentis to be studied through a researchand reconnaissance Survey survey.The project provides for a historic resourcestudy, an interpretive prospectus,and a conceptualdesign for the former Alcoa laboratory at New Kensington,Pennsylvania.

status Data gatheringhas started.

Funds Obligated $27,631

Estimated Completion Date June 1996

Cultural, recreational,and scenicresources in the MonongahelaValley Brownsville/ region related to coal and transportation were evaluatedto determine MonongahelaValley potential preservationand developmentopportunities. Survey

status The project has been completed. Funds Obligated $131,114 Completion Date October 1991

The cultural and historic resourcesof the Altoona Railroad car shop Altoona Historic complex in Altoona, Pennsylvania,were evaluatedto determineits RQsourceS tudy eligibility for nomination to the National Registerof Historic Places.

status The project has been completed.

Page 28 GAO/WED-08-184 America’s Induetrhl Heritage Project Appendix II St&u of Current Projectr Under America’s Indnsti Heritage Project, M of Augut 1002

Funds Obligated $6,167

Completion Date June 1990

A Huntingdon County citizen was hired to perform surveywork in Huntingdon County Huntingdon,Pennsylvania. The results sre to be used in the building Survey survey/engineeringrecord documentfor Huntingdon County. status The project has been completed.

Funds Obligated $38,719

Completion Date August 1991

Coke and Coal Study AMPthe mesand which sites should be used to interpret the story. The study will also include investigationsof hazardousmaterials. The study will be coordinatedwith projects at Mine 40 and the SeldomSeen Valley Mine. status Data gatheringhas started.

Funds Obligated $26,260

Estimated Completion Date June 1993

Cahbria Iron Works measureddrawings and large-formatphotography. Historic Resource Study status The project has been completed.

F’unds Obligated Completion Date September1989

Page 20 GAO/RCED-02-184 America’s Industrial Heritage Project

. . ,, ‘,‘!f ‘. Appendix 11 Status of Currant Projecta Under America’s Industrial Heritage Project, as of August 1002

Pennsylvania reacheda cooperativeagreement with the PennsylvaniaHistorical and Historical and MuseumCommission, which is to provide technical assistancein the form Museum Commission of, amongother things, National Registernominations and researchinto m themes. status The project is ongoing.

Funds Obligated $826,120

Estimated Completion Date November1998

PennsylvaniaHeritage reacheda cooperativeagreement with the PennsylvaniaHeritage Affairs AffaJirsComm ission Commission,which is to provide support for the AIHP oral history, folklore, and folklife programs. status The project is ongoing.

Funds Obligated $183,000 Estimated Completion Date November1998

Indiana University of reacheda cooperativeagreement with the Indiana University of PennsylvaniaA rchives P ennsylvaniaArchives Center, which is to preserveand store historical Center documentsrelated to AIHP and AIHP reports. sta$us Indiana University of Pennsylvaniahas establishedan AIHP archivescenter. The university is conducting researchand workshops related to AIHP themes.

Funds Obligated $174,643 Estimated Completion Date November1998

Page 80 GAO/WED-08-184 America’s Industrial Heritage Project Statue of Current Pr~Jecta Under America’~ Indnetrkl Hsrita@a Project, u oflrpoarrt lB@@

The SouthwesternPennsylvania Heritage Preservation Commission Department of reacheda cooperativeagreement with the state of Pennsylvania,which is Environmental to developstate park cultural resourcesthat are closely linked to AIHP Resourcesand Bureau ~WW. of State Parks status The scopeof work, budgets,and work scheduleshave been establishedfor someof the cooperativeefforts.

Funds Obligated $960,000 Estimated Completion Date November1998

A comprehensivemanagement plan was to be developedfor the Comprehensive SouthwesternPennsylvania Heritage Preservation Commission. ManagementP lan for the Commission status A draft plan has been prepared. Funds Obligated $179,716

Estimated Completion Date October 1992

The SouthwesternPennsylvania Heritage Preservation Commission ’s Public Information annual report, brochures,maps, posters, and other public education Documents for the documentsrelated to AIHPare produced under this project. Information Co+mission documentsare provided or are to be provided to severalother projects. I status The project is ongoing.

Fund$ Obligated $78,488

Estimated Completion Date November1998

Pm@ 81 GAWECED-@3-184 Amerier’a Induetrial Heritage Project Statue of Current Projecta Under Amerlca’e Industrial Herlta@e R~ect, ae of Augaet 1@@2

Archeologicalsupport Is being provided to the Historic American Archeological Support BuildingsSurvey and the Historic AmericanEngineering Record for resourcestudies.

Status The project is ongoing. Funds Obligated $114,668

Estimated Completion Date October 1993

1 Funding suppoit is to be provided to Park Serviceoffices to pay for Project Management servicesnot related to specific projects. support

Stahus The project is ongoing.

Funds Obligated $721,069

Estimated Completion Date November1998

Preservationefforts that adapt privately owned historic structures for Grant and Loan F’und other usesare being funded. status Initial awardswere madein August 1992. Funds Obligated $38,836

Es$mated Completion Date November1998

Technicaldrawings prepared by private architects and engineerswere to T&zhnicalD rawing be reviewed. R&iew

St&IS The project has been completed. Fupds Obligated $19,306

Coppletion Date February 1991

Page 22 GAWILCED-@3-184America ’r Indn&rial Heritage Project Appendix III Major Contributors to This Report

JamesR. Hunt, AssistantDirector Resources, John Kalmar,Jr., AssignmentManager Community, and Nancy A. Boardman,Staff Evaluator Economic Development Division, Washington, D.C. Edward J. Fossler,Evaluator-in-Charge Philadelphia Regional William E. Lee, Staff Evaluator Offjke Bradley T. Berkebile,Staff Evaluator

(1407(w Page 88 GAO/RCED-@@-184America ’s IndustriaI Heritage Project .,_ , ‘I’hc~ first. copy of each GAO report and testimony is free. Atidit.ional colks are $2 each. Orders should bchsent, to t.hc~ following addr(:ss, accompanied by a chwk or rnontty order IWI&~ out to the Superintendent of Documents, when nectkssary. Orders for 100 or more copies to bt! mailed to a. sin&~ address itrc discounted 25 percent.

Ordc~rs by mail:

lJ.S. General Accounting Office P.0. Box 6015 Gaithersborg, MD 20884-6015

or visit,:

700 4th St. NW (corner of 4th and G Sts. NW) 1J.S. General Accounting Office Washington, IX

Ordt~rs may also be placed by calling (202) 512-6000 or by using fax number (301) 258-4066.

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