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. Manual for State Historic Preservation Review Boards I 29. 9/2: St 2/2 NOV CLEMSOH Bi.o.l for St.te Historic Pr.semt.. 1| U.S. Departmentofthe Interior National Park Service Cultural Resources Mission AstheNation'sprincipalconservationagency,the DepartmentoftheInteriorhasresponsibilityformostofour nationally-ownedpubliclandsand naturalandcultural resources. Thisincludesfosteringwiseuseofourlandand waterresources,protectingourfishandwildlife,preserving theenvironmentalandcultural valuesofournationalparks and historical places,andprovidingfortheenjoymentoflife throughoutdoorrecreation.TheDepartmentalsopromotes thegoalsoftheTakePrideinAmericacampaignby encouragingstewardshipandcitizenresponsibilityforthe publiclandsand promotingcitizen participationin theircare. TheDepartmentalsohasamajorresponsibilityforAmerican Indianreservationcommunitiesand forpeoplewholivein Island TerritoriesunderU.S. Administration. "hoto -EllisCountyCourthouse HistoricDistrict, Waxahachie, EllisCounty, Texas. Detailofthe 1895 RomanesqueRevival style courthousebuilding designedbyarchitectJ. RipleyGordon,forthe cottonproducing centerofWaxahachie, Texas. Manual For State Historic Preservation Review Boards Patrick W. Andrus Michael Auer J. Caroline R. Bedinger Susan L. Henry Stephen A. Morris John W. Renaud U.S. Department of the Interior National Park Service Interagency Resources Division 1992 Foreword Inthetwenty-sixyearssince thepassageoftheNational importantopportunitiesand assistanceforaddressingthe HistoricPreservationActof 1966,thehistoric specificpreservationneedsofeachState. TheBoardsoffera preservationmovementhasentered themainstreamof vital forumforachievingcoordinationandcooperation Americanlife. Fromitsearliestroleasguardianofa betweenthepreservation professionalsand laysectorsinthe handfulofhousemuseums,historicpreservationhas Statesandcommunities. With thisgrowingroleinmind the expanded intoabroadly-based and systematicundertaking NationalParkService, incollaboration withNational toidentify,evaluate, register,and protectawiderangeof ConferenceofStateHistoricPreservationOfficers,hasrevised prehistoricand historicpropertiesassociated withimportant thismanual toreflect themostrecentpreservationlaws, aspectsoflocal,State,and national history. Thisrevised activities,and issuesina formforeasyreferenceand useby editionoftheManualforStateHistoricPreservationReview personsappointed to serveonStateHistoricPreservation Boardsrecognizestheincreasinglycomplexand multi- ReviewBoards. Commentsand suggestionsforfuture faceted roleofhistoricpreservationand theexpanded revisionsoftheManualarewelcomeatanytime. responsibilitiesoftheStateReview Boardsin thatprocess. Thispublicationextendsand updatesanearliermanual providingguidancetoStateReview Boards(firstprintedin 1981,andreprinted in 1984). ReviewBoardsand their membersarefundamentalcomponentsoftheStatehistoric preservationprogramsasexperts,advisors,andadvocates. LawrenceE. Aten Thecollectiveexpertisefound in theseboardsoffers Chief,InteragencyResourcesDivision Table of Contents Introduction 4 SummarybyChapter 5 Dutiesand MembershipoftheReviewBoard 6 ConflictofInterest 11 TheHistoricPreservation Fund 12 ComprehensivePlanningforHistoricPreservation 17 IdentificationofHistoricResources 21 EvaluatingProperties fortheNational Register 25 ProtectionofHistoric Properties 38 • Environmental Review 41 • Certified LocalGovernments 45 • Tax Incentives 47 • Documentation 52 PublicParticipationand Awareness 55 Appendix NPSCultural ResourcesPrograms 58 OtherNational PreservationOrganizations 62 Federal LawsDirectlyAffecting HistoricPreservation 66 Federal Regulationsand Guidelines 71 Glossary 74 Introduction The purposeofthispublication istoprovideState TheNational Historic Preservation Act,asamended sets the HistoricPreservationReviewBoard members Federal statutoryframework forStatehistoricpreservation withonedocumentthat notonlydefinesand officesand Review Boards. TheNational ParkService providesguidanceon theexecutionoffederally establishesbroad national policypursuanttoFederal mandated duties,butalso providesanorientation to Federal preservationlawand provides technical advicetotheStates. historicpreservation programssothatReviewBoardscan TheStateHistoricPreservation Officersimplementtheir performtheirfunctionswithinanappropriatecontext. preservationprogramswithinNational ParkServicepolicy Informationincludesthestructureand functionofa Review whileeachdetermineshisorherState'sspecificprioritiesfor Board; theconceptofcomprehensiveplanningfor preservinghistoricresources. SincetheStateshaveassumed a preservation; thevitalelementsofresourceidentification, substantial portionoftheadministrativeactivitiesmandated in evaluation,registration,and protection;and specific theNational Historic Preservation Actand theFederal tax techniquesavailableforhistoric resourceprotection. laws,theimportanceofanefficientandeffectiveReview Board isessential to thepreservationoftheState'shistoric TheNational Historic Preservation Act,asamendeddefines resources. Thecontributionofeachmemberoftheboard is theStateHistoricPreservation Review Boardand its thusvital. Theintentofthismanual isto provideeachReview authority. Thefourprimaryrequired activitiesoftheReview Board memberwith sufficientinformationand guidanceso Board areto: (1) review National Registernominationsand that heorshewillbeableto makea maximumcontribution. nominationappeals, (2)reviewappropriatedocumentation submitted inconjunction with the HistoricPreservation Fund, Thispublication wasprepared byPatrickW. Andrus, National (3) providegeneral adviceand professional recommendations RegisterofHistoricPlaces, InteragencyResourcesDivision, totheStateHistoricPreservationOfficer(SHPO),and (4) withassistancefromJohnW. Renaud,Susan L. Henry,and performsuchdutiesasmaybeappropriate. The firsttwo Stephen A. Morris,PreservationPlanningBranch, Interagency activitiesarcdescribed in thechapters "EvaluatingProperties ResourcesDivision; MichaelJ. Auer,Preservation Assistance fortheNational Register" and "ProtectionofHistoric Division;and CarolineR. Bedinger,HistoricAmerican Resources- theHistoricPreservation Fund." Because thethird BuildingsSurvey/Historic American EngineeringRecord. function, providingadviceand professional recommendations to theSHPO,isabroad and generalone,its Thispublicationhasbeen prepared pursuanttotheNational discussion isnot limited toa singlechapter. HistoricPreservation Actof1966,asamended,whichdirects theSecretaryofthe Interiortodevelopand makeavailable In practice, theoperation ofReview Boardsvariesgreatly informationconcerninghistoricproperties. TheManual for across thenation, asdoestheoperationoftheStatehistoric StateHistoricPreservation ReviewBoardswasdeveloped preservationofficeitself. Thisprogram flexibilityis underthegeneraleditorshipofCarol D. Shull,Chiefof considered tobea strongpositivefactor. ItallowstheStates Registration,National RegisterofHistoricPlaces,and its toadjust theirindividual programstomeet theirown unique production wascoordinated by Antoinette Lee,Historian, J. needs. National RegisterofHistoricPlaces. Summary Chapter by Duties andMembership oftheReviewBoard detailsthe TheEnvironmentalReviewProcessoutlinestheroleofthe fourresponsibilitiesoftheStateReviewBoard, the AdvisoryCouncil on HistoricPreservation, theSection 106 requirementsformembershipon theboard,and the review,and theDeterminationofEligibilityprocess. relationshipoftheReview Board totheState Historic PreservationOfficer. Certified LocalGovernments (CLGs)definesand explains theroleofCLGsinhistoricpreservationand National ConflictofInterestdefineswhenaconflictofinterestcan Registernominationsreview. ariseand actionrequired byReview Board memberswhen faced withaconflictofinterest. TaxIncentivesreviewstheFederal taxincentivesavailable forhistoricpreservation. Itdescribestheapplicationprocess, TheHistoricPreservationFund (HPF)grantprogramis theapplicabilityoftheSecretaryoftheInterior'sStandardsfor explained in thissection. Itdefinesactivitieseligible forHPF Rehabilitation,and problemareasin rehabilitationprojects. funding,describesHPFgrants, thegrantsapplicationprocess, Statereportingrequirements,and theroleoftheReview Documentationinhistoricpreservation isexplained in this Board in the HPFand StatePlan. chapter, with particularemphasison theactivitiesofthe HistoricAmerican BuildingsSurvey/HistoricAmerican ComprehensivePlanningforHistoricPreservationexplains EngineeringRecord. how theStatehistoricpreservationofficebringshistoric preservationconcernsto thebroaderland useplanning PublicParticipationand Awarenessexplainshowthe throughout theState,and theroleoftheReviewBoard in this Review Board can influencepublicawarenessofhistoric process. preservation. Identification ofHistoricResourcesexplainstheroleof TheAppendixcontainsdescriptionsofNational ParkService surveysin historicpreservation and how theboard's Cultural ResourcesProgramsand othernational preservation responsibility forreviewingNational Registernominationsis organizations,descriptionsofFederal lawsdirectlyaffecting related tobroaderidentificationissues. historicpreservation,a list ofapplicable Federal regulations implementing theselaws,and aglossaryofhistoric EvaluatingProperties forthe National Registerprovides preservation terminology. guidance fortheboard'smajorresponsibility forreviewing National Registernominations. Thissectiondefines the availablenomination formatsand theroleoftheReview Board inevaluatingproperties. Guidanceiscontained ina scriesofquestionsand answersrelated to technical aspectsof nominationsreview, historical significance,historical integrity, National RegisterCriteriaConsiderations,and procedural aspectsofnominationsreview. . Duties and Membership of the Review Board **».: I OldSpanish Fort(OldFrench Fort), Pascagoula,Jackson County, Mississippi. Built c. 1721, thisbuilding isframe construction withplasteredoystershellconcretefill. Originallypartofan earlyFrench landgrant, thisbuilding isbelievedto have beenpartofa palisadedcomplexbuiltfor the defenseofearlysettlers. (Photo by: HinmanAdvertisers). Duties and Membership of TheCommitteeReport forthe 1980Amendmentsto theAct amplifiesthat Review Boardswerecreated to, "function the State Review Board primarilyasprofessionalbodieswhichcanobjectively evaluatethehistoricsignificanceofpropertiesand provide professional adviceonhistoricpreservationmatters." Each Statehistoricpreservation programisrequired by the National HistoricPreservation Act,asamended, tomaintain Thus, thegeneral characteristicsofReviewBoardsarethree- anadequateand qualified StateReviewBoard. The Act fold: stipulatesthat theStateReview Board hasfourduties: 1. ReviewBoards areprimarilyprofessional bodies. 1 toreview National Registernominationsand "Primarilyprofessional" meansthata majorityofthe nominationappeals; membersmust:a. meetminimum professional requirementsestablished inregulationbytheNational 2. toreviewand provideadviceabout theState's ParkService;and,b. representcertainprofessional ComprehensiveStatewide HistoricPreservation Plan disciplinesestablished by the Actand amplified in and theState's Annual HistoricPreservation Fund regulationby theNational ParkService. Grant program; Thisisdescribed in moredetail in themembership 3. to providegeneraladviceand guidanceto theState sectionofthischapter. HistoricPreservationOfficer;and, 2. ReviewBoardsmustbe able toobjectivelycarryout 4. toperformotherdutiesasmaybeappropriate. theirduties. Thisisthereason fortheNational Park Service'srequirementsthatallStateReview Boards SpecificdutiesofReviewBoardsareoutlinedinFederal establishand abidebyrulesofconductthatavoid regulations(36CFR,Part61)which statethattheReview conflictofinterest(seethechapteronConflictof Boardsmust: Interest). 1. meetatleastthreetimesayear; 3. ReviewBoardsmustbe abletoprovide professional advice onhistoricpreservationmatters. 2. revieweachnominationforwardedbytheState Thisiswhythelawrequiresthatamajorityofthe HistoricPreservationOfficerto theKeeperofthe membersmustbeprofessionalsqualified inhistoric NationalRegisterpriortoitssubmission. TheReview preservationrelateddisciplines. Board makesarecommendationtotheSHPOasto whetherthepropertymeetsthecriteria forlistingin AmajorityofthemembersoftheBoard mustbe theNationalRegister. SeethechapterontheNational professionalsqualifiedinthefollowingand related Registerfora moredetaileddiscussionoftheprocess; disciplines: history,prehistoricand historicalarcheology, architectural history,and architecture. 3. participateinthereviewofNationalRegister nominationappealsand providewrittenopinionson TheNational ParkService(NPS)encouragesStatestoadd theissuesormattersoftheappeal. Seethechapteron totheprofessional majorityoftheReview Board the theNational Registerforamoredetailed discussionof broadestpossiblespectrumofprofessionalsinhistoric theprocess; preservation-related fieldsthatmeettheunique circumstancesoftheindividualState. These,ofcourse,vary 4. provideadviceondocumentationsubmittedin fromStatetoState. Forexample, insome,urbanplanningis conjunctionwiththeState'sComprehensive important, inothers,NativeAmericanconcernsarecritical. StatewideHistoricPreservationPlanand theState's HowStatescomposetheprofessional majorityonthe HistoricPreservationFund Grantincluding,butnot Review Boardsisleftto thediscretionofeachStateensuring limited to,theState'sgrantapplications,subgrant that theStateReviewBoard meetstheuniquedemandsof proposals,and theState'sEnd-of-YearReport. Seethe thepreservationarena attheStateand locallevel. chaptersonPlanningand theHistoricPreservation Fundforamoredetailed discussion; AllReview Board membersmust "havedemonstrated a competence, interest,orknowledgeinhistoric 5. providegeneraladviceand professional preservation." recommendationstotheSHPOinconductingthe comprehensivestatewidesurvey,preparingthe Inthebroadestsense,ReviewBoardsserveasadvocatesfor ComprehensiveStatewideHistoricPreservationPlan, historicpreservationintheirStates. Ascommitted andcarryingout theotherdutiesandresponsibilities preservationists,theyprovidea focalpointforfurthering oftheStateHistoricPreservationOffice;and, preservationactivitythatfullyutilizesaState'sspecial historicresources. Review Boardsareestablished to 6. adoptoperatingbylawsconsistentwith these provideexpertjudgmentsaboutthehistorical,architectural, regulations. ThesebylawsmustaddressFederal andarcheological significanceofresourcesin theirStates. minimumrequirementsconcerningconflictof Asanindependentbody,theboardcanadvocatethevalue interest. Seethechapteronconflictofinterestfor and necessityofpreservationasanactiveprocessthat moreinformation. shouldbean integral partofeverycommunity. Membership of the Review monthsofsupervised field and analyticexperienceingeneral NorthAmericanarcheology;and,3)demonstratedabilityto Board completeresearch. Inadditiontotheseminimum qualifications,aprofessional inprehistoricarcheologyshall haveatleastoneyearoffull-timeprofessionalexperienceat EachStatehistoricpreservation programisrequiredbythe thesupervisorylevelinthestudyofarcheologicalresourcesin NationalHistoricPreservationAct,asamended,tomaintaina theprehistoricperiod. Inadditiontotheminimum StateReview Board. DesignatedbytheSHPOunlessanother qualificationsforarcheology,a professionalinhistorical designation processisprovided forinStatelaw,theReview archeologyshall haveatleastoneyearoffull-time Board mustconsistofatleast fivemembers. Amajorityof professionalexperienceatthesupervisorylevelinthestudy ReviewBoard membersmustbeprofessionalsinhistoric ofarcheologicalresourcesinthehistoricperiod. preservationrelated disciplines. Ataminimum,thefieldsof history,archeology(prehistoricand historical),architectural Theminimumprofessionalqualificationsinarchitecturearea history,andarchitecturemustberepresentedontheReview professionaldegreeinarchitectureplusatleasttwoyearsof Board. Thesewereselectedasthecoredisciplinesmanyyears full-timeprofessionalexperienceinarchitectureoraState agobecause,individualsmeetingtheseprofessional licenseto practicearchitecture. qualificationsaremostlikelytohavethetheoreticaland practicalexpertisenecessarytoevaluatethehistoric Thesamepersonmaybetheexpertinbotharchitectureand significanceofpropertiesand providetheoverallgeneral architecturalhistory. Similarly,thesamepersonmaybethe adviceandguidancetotheStateHistoricPreservationOfficer expertinhistoricalarcheologyand prehistoricarcheology. inhistoricpreservationmatters. AnnuallytheSHPOcertifiestoNPSthattheReviewBoard Theminimumprofessional qualificationsinhistoryarea meetsthesequalifications. NPSalsochecksthequalifications graduatedegreeinhistoryorcloselyrelated field;ora ofnewmembersoftheReviewBoardduringtheperiodic bachelor'sdegreeinhistoryorcloselyrelated field plusoneof StateProgramReview. thefollowing: 1)atleasttwoyearsoffull-timeexperiencein research,writing,teaching, interpretation,orother For "closelyrelated fields," theNational ParkService demonstrableprofessionalactivitywithanacademic examinesthecontentofdegrees,notjustthetitle. For institution, historicalorganizationoragency,museum,or example,inmanycollegesanduniversities,degreesaregiven otherprofessionalinstitution;or2)substantialcontribution inAnthropologyrather thanArcheologyorinArtDesign throughresearchand publicationto thebodyofscholarly ratherthan Architecture. Thusapersoncouldqualifyin knowledgein thefield ofhistory. archeologywithadegreecalled "anthropology." Whena Stateseekstoappointaperson 1) whoisqualified inaclosely Theminimumprofessionalqualificationsinarchitectural related field tooneofthefiverequireddisciplines,or2) who historyarea graduatedegreeinarchitecturalhistory,art seekstouseeducationalbackgroundorexperienceina history,historicpreservation,orcloselyrelated field with closelyrelated field toqualifyinoneofthefiverequired courseworkin Americanarchitecturalhistory;orabachelor's disciplines, thepersonmusthavecredentialscomparableto degreeinarchitectural history,arthistory, historic theprofessionalqualificationsinthefiverequireddisciplines. preservation,orcloselyrelated field plusoneofthefollowing: Forexample,agraduatedegreeinurbanplanningwouldbe 1)atleasttwoyearsoffull-timeexperienceinresearch, minimallyacceptableasa substituteforagraduatedegreein writing,orteachingin Americanarchitectural historyor historyifthecourseworkshowed a preponderanceof restorationarchitecturewithanacademicinstitution, experiencewithhistorictownplanningorthehistoryof historical organizationoragency,museum,orother architectural,urban,andcultural landscapedesign. professional institution;or2)substantialcontributionthrough researchand publication to thebodyofscholarlyknowledge Ifa differentprofession'srepresentationon theReviewBoard in thefield ofAmericanarchitectural history. wouldbetterservetheneedsoftheStateand itsprogram, Federal regulationspermit (see36CFR,Part61) the Theminimumprofessional qualificationsin archeologyarea substitutionofsomerequired professional representation graduatedegreeinarcheology,anthropology,orclosely uponNPSapproval. related field plus: 1)atleastoneyearoffull-timeprofessional experienceorequivalentspecialized traininginarcheological All membersoftheReview Board musthavedemonstrated a research,administration,ormanagement;2)atleastfour competence, interest,orknowledgeinhistoric preservation.