Summary report on the historic preservation dialogue: statewide issues workshops [Dec. 1979]

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(summary report
on the
Historic Preservation
Dialogue: Statewide
Issues
Workshops

Received
MAR 1 2 1980
DOCUMENTS UGA LIBRARIES

This report summarizes a project initiated and sponsored by the
Historic Preservation Section of the
-- Georgia Department of Natural Resources
and financially assisted by the National Endowment
for the Humanities through the Committee for the Humanities in Georgia
December 1979

I
/ TABLE OF CONTENTS

Introduction

1

I. Development and Conduct of the Workshops

2

The Workshop Concept

2

The Identification of Issues

2-3

The Design of the Workshop Program

3

II. Organization and Display of Responses to the Issue Questions . . . 3-28

Cultural Resources

4-9

Legislation

10-12

Economics

13-17

Constituency

18-21

Development Conflicts

22-24

Social Implications

25-28

III. Evaluation of Responses to the Issue Questions

29-30

IV. Evaluation of the Workshop Process Project Staff, Participants, and Participating Organizations

30-31 32-34

Digitized by the Internet Archive in 2013
http://archive.org/details/summaryreportonhOOunse

INTRODUCTION

In the spring of 1979 over 200 persons throughout Georgia partici-

pated in a series of workshops entitled "Historic Preservation Dialogue:

Statewide Issues Workshops." Sponsored by the Department of Natural

Resources' Historic Preservation Section and funded in part by the

Committee for the Humanities in Georgia, the series of workshops was

designed to stimulate dialogue on preservation needs and programs among

-- Georgians interested in and affected by historic preservation. The work-

shops were held in four locations around the state

Macon on April 27,

Columbus on May 4, Savannah on May 15, and Atlanta on May 18. Responses

collected from the workshops will help in refining the goals and objectives

for the state's cultural resource management planning process and develop-

ing strategies for the management of cultural resources in Georgia. This

document summarizes the development and conduct of the issues workshops,

presents the responses to the issues raised for discussion, and provides

an evaluation of those responses and the workshop process within the

context of cultural resource management planning in Georgia.

A complete record of the workshop series from planning of the project to the implementation of the workshops is contained in "Technical Manual for Historic Preservation Dialogue: Statewide Issues Workshops - Winter and Spring, 1979." This manual was compiled by Nancy Nolan, Workshop Coordinator, as partial fulfillment of requirements for her masters degree in City Planning from the Georgia Institute of Technology. A copy of the manual is available for review in the Historic Preservation Section.

I. DEVELOPMENT AND CONDUCT OF THE WORKSHOPS
The Workshop Concept:
The concept of the workshop series grew out of discussions concerning the development of a Cultural Resource Management Plan (CRMP) by a special task force formed within the Department of Natural Resources. From these discussions evolved two major goals of the plan: to address the preservation needs and concerns of the state's citizens and to provide a framework in which the Historic Preservation Section of the Department of Natural Resources could make decisions about cultural resource management. A series of workshops was proposed as an initial step in involving the public directly in this planning process.
Other planning processes on the state and federal levels contributed to the development of the workshop idea. These were the Georgia Archaeological Research Design (GARD) , a five-part process to develop a management framework for archaeological resources in the state; the State Comprehensive Outdoor Recreation Plan (SCORP) , a planning process which involves direct citizen participation in recreation planning for Georgia; and the National Historic Preservation Plan, a process initiated by the Heritage Conservation and Recreation Service of the U.S. Department of the Interior to identify major issues relevant to the development of a national preservation policy.
The Identification of Issues:
The formal process of identifying preservation issues for discussion in the workshop series began with the administration of a questionnaire to over 200 Georgians in February 1979. Those asked to respond to - the questionnaire were selected from lists of preservation professionals, members of preservation-related organizations, professionals such as architects, planners, and real estate specialists, neighborhood association leaders, and others. Respondents were requested to rank 17 preservation issues according to their importance and to identify other issues which should be addressed and discussed statewide. The 17 issues were selected from a variety of sources, including the National Historic Preservation Policy Plan, issues raised at community leadership workshops presented by Historic Preservation Section staff, public inquiries, and Historic Preservation staff recommendations.
The questionnaire responses were initially grouped into the following eight major categories: constituency, cultural resources, social implications, legislation, economics, development conflicts, environmental review, and archaeology. In continued planning for the workshops, the issue categories were further refined into six. These six categories and final questions for discussion in each are listed below:
Cultural Resource s
What kinds of historic and cultural resources worthy of preservation are not now receiving sufficient emphasis in preservation programs?

Cons tituency
What role should legislation and regulation play in historic preservation?
Social Implications
How should the social implications of historic preservation be addressed?
Development Conflicts
How should the conflicts between historic preservation and development be addressed?
Economics
What economic strategies should be developed to promote historic preservation?
The Design of the Workshop Program:
Macon, Columbus, Savannah, and Atlanta were chosen as sites for the workshops because of their geographical representation and the range of preservation being carried out in each city. To stimulate the workshop participants' thoughts on the questions to be raised in each issue category, the agenda for each workshop began with a panel discussion by academic humanists on topics including "Changing Views of Historic Preservation: Questions That Have Been Asked About the Importance of the Past to the Future," "Whose Past Are We Preserving: Some Questions About the Philosophy and Methods of Historic Preservation," "An Historian's Perspective of Historic Preservation," and "The Legal Implications of Historic Preservation." In the small group sessions that followed, the Nominal Group Technique, a group discussion technique developed to facilitate democratic responses to a variety of issues, was used. Two of six identified preservation issues were discussed in each small group. Small group discussions were conducted by group leaders who were Historic Preservation Section staff and regional planners from two area planning and development commissions. Participants began the session by responding in round-robin fashion to the particular question posed. Group leaders then recorded and helped refine the responses. Finally, participants in each small group voted on responses to designate priority concerns. The workshops ended with presentations by local preservation groups on their organizations and local preservation issues.
II. ORGANIZATION AND DISPLAY OF RESPONSES TO THE ISSUE QUESTIONS
All responses from each workshop location were then assembled by project staff. Related and similar responses under each issue category were grouped together into outline form. The full display of responses follows. Responses which were viewed as priorities by the participants in a small group setting are indicated in the response display by an asterisk (*).

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CULTURAL RESOURCES
What kinds of historic and cultural resources worthy of preservation are not now receiving sufficient emphasis in preservation programs?
I. Objects
A. Machinery, equipment and tools
*1. Machinery still in use 2. Household machinery 3. Farm-related equipment 4. Electronic equipment
a. computers b. radios c. televisions d. telephones and switchboards
5 Looms 6. Kilns and furnaces 7. Wood-working tools
B. Artwork
1. Paintings 2 Murals 3. Photographs 4. Sculpture 5. Ethnic art forms
C. Craft products
1. Pottery 2. Weaving 3. Furniture
D. Dress
1. Everyday clothing 2. Costumes
II. Buildings and Structures
A. Institutional structures
1. Educational structures
*a. rural schools b. neighborhood elementary schools c. abandoned schools d. classroom buildings e. other educational buildings

2. Religious structures
a. churches b. other religious structures
3. Government structures
a. courthouses b. village post offices c. other locally significant government structures
B. Transportation-related structures
1. Railroad
a. trestles b. carbarns c. other railroad-related structures
2. Automotive
a. service stations
3. Engineering structures
a. covered bridges
C. Residential structures
*1. Hotels 2. Boarding houses 3. Row housing 4. Modest housing 5. Range of dwellings that reflect different social classes 6. Residential buildings related to industry such as mill housing
D. Industrial structures
*1. Grist mills 2. Mines 3. Textile mills 4. Water towers 5. Warehouses
E. Recreational structures
1. Movie theaters, cinemas, and drive-ins 2. Opera houses 3. Bars, diners and other structures representing "seedy" side of life
F. Structures related to minority groups
*1. Entertainment structures such as theaters 2. Commercial buildings 3. Structures related to all aspects of minority history

G. Farm-related structures
1. Agricultural outbuildings
H. Vernacular structures
1. Structures related to common people 2. Mundane, ordinary structures 3. "Everyman's normal" architecture
I. Other kinds of structures
1. Minor landmarks 2. Obsolete structures
J. Features of structures
*1. Porches 2. Lighting fixtures 3. Interior spaces
III. Areas and Districts
A. Urban areas
*1. Neighborhoods
*a. gathering places related to community tradition b. residential areas reflecting economic class
*2. Downtown commercial areas
a. old market places b. commercial structures of ethnic groups c. smaller centers that have been incorporated into larger
metropolitan areas d. other commercial buildings
*3. Industrial areas which include:
*a. mills *b. warehouse buildings *c. small manufacturing sites
4. Water-related areas
*a. waterfronts *b. river fronts
5. Features of urban areas and districts
*a. sidewalks, paving *b. street lighting *c. cobblestone streets and curbs
d. street furniture e. yards

.
f. parks, open spaces, public squares and plazas g. view of urban skyline
B. Rural areas
1. Small farms
a. inactive b. active
2. Plantations 3. Estates 4. Small communities or towns 5. Mills 6. Landscapes
*C. Natural areas
*1. Natural environment
*a. scenic routes *b rock outcroppings
c. woodlands d. vegetation e. open space
2. Designed natural environment
*a. parks b. large landscaped areas c. scenic routes d. historic gardens e. historic landscapes
D. Other types of areas
*1. Regionally significant areas 2. Small colonial communities 3. Greenbelt communities 4. Ghost towns 5. Post W.W. II subdivisions (e.g., Levittowns) 6. Public and private cemeteries 7. Military sites and fortifications
*IV. Archaeological resources
A. Prehistoric resources
1. Indian sites 2. Rock shelters 3. Soapstone quarries 4. Fossil areas
B. Historic resources
1. Urban archaeological resources

.
2. Small historic mining sites
C. Other archaeological resources
1. Migration and immigration patterns 2. Horticultural sites
V. Systems
*A. Transportation systems
1. Routes or transportation networks
*a. canals, rivers, and lakes b. early highways c. railroad lines d. dirt roads e. roadways
*2. Modes of travel
*a. paddle wheel *b. steamboat *c. airplane *d surrey *e. carriage *f. trolley *g. car *h. train
i. dry-docked ships
B. Power-generating systems
*1. Systems related to type of power source
*a . dams b. plants
2. Systems ralated to energy collection and distribution
VI. Intangible Elements
A. Customs
1. Medical folklore 2. Games 3. Cooking Skills 4. Folk skills and techniques of craftsmanship 5. Camp meetings 6. Town meetings
B. Ways of life
*1. Current social patterns *2. Recent history (future-oriented preservation)
3. Black culture

.
C. Language
1. Regional and cultural speech patterns 2. Linguistics
D. Performing arts
1 Dance 2. Music 3. Drama
VII. Documents
A. Types of documents
1. Plans, maps, drawings of architectural sites and urban complexes 2. Manuscripts of plays 3. Photographs 4. Books and comics 5. Private library collections 6. Recipes 7. Family histories of settlers in certain areas 8. City records 9. Archival documents 10. Tapes and video recordings 11. Technological documents
B. Other forms of documentation
*1. Oral history *2. Interviews of older persons
3. Logos and symbols
IX. Other Suggestions and Comments Regarding Cultural Resources
*A. Adaptively reuse vacant industrial, educational and community facilities
B. Take a thematic approach to historic resources
C. Insure ethnic diversity in preserving cultural resources
D. Utilize natural resources
E. Develop local museums from existing structures
F. Preserve values, meaning and interpretations transmitted by historic resources
G. Preserve a business operation reflecting old ways of business and working conditions
H. No cultural resources are currently being excluded from existing programs

10
LEGISLATION What role should legislation and regulation play in historic preservation? *I. Establish Design Standards and Architectural Controls
*A. Develop building codes that are sensitive to historic buildings B. Establish standards that insure preservation of historic character and integrity of neighborhoods C. Establish standards that control demolition D. Insure flexibility of standards E. Make standards available to the public F. Require development of standards by qualified and impartial persons
II. Establish Review Procedures for All Projects Receiving Public Funding III. Provide Economic Stimulus for Historic Preservation
*A. Funding *1. Provide grants for greater technical assistance in historic preservation 2. Expand grant programs 3. Provide for more vigorous loan programs 4. Provide loan deferments for historic preservation students 5. Provide grants for rehabilitation of public buildings
*B. Tax Measures *1. Proviue tax incentives to neighborhoods to encourage transition from deteriorating to standard conditions 2. Provide tax incentives to farmers who remove land containing archeological resources from cultivation
*IV. Promote Public Awareness of Historic Preservation *A. Provide for greater public exposure to the functional and aesthetic benefits of historic preservation B. Provide for the continuing identification of significant structures C. Provide for public education on preservation activities
V. Address Regulation on the Local Level *A. Develop historic zoning ordinances

I

I

*B. Provide for more local control of historic resources
*C. Afford property tax relief for rehabilitated historic buildings for a prescribed period of time
D. Designate historic districts
E. Establish design and construction criteria for both new and existing structures in historic districts
F. Establish Review Procedures
1. Oversee demolition and alteration of significant structures and new construction within any historic district
2. Conduct A-95 review process on the local level
G. Reassess real property on the basis of existing use rather than highest and best use
H. Address specific historic areas and their characteristics
VI. Address Regulation on the State Level
*A. Establish a state register of historic places
*B. Develop enabling legislation for stronger and more consistent local ordinances
C. Require that state-owned buildings come under the control of a local architectural control process
D. Establish review procedures for state-funded projects
E. Establish review procedures for Georgia Department of Transportation projects
VII. Address Regulation on the Federal Level
*A. Expedite the application process for government- funded projects
B. Streamline the National Register Nomination Process
C. Extend the Tax Reform Act of 1976
D. Revise the Tax Reform Act of 1976 to provide more incentives for historic preservation
E. Repeal legislation and regulations of agencies such as FHWA & HUD which permit destruction of historic neighborhoods
F. Establish a national preservation bank G. Give veto power through A-95 review comments
H. Mandate arson investigation by the FBI for burned historic structures

12
VIII. Provide for Greater Program Coordination in All Levels of Government *A. Develop clear and succinct federal, state and local regulation *B. Develop better coordination among federal, state and local legislation and programs *C. Coordinate federal, state and local taxing policies for historic preservation purposes D. Use existing federal programs provided by agencies such as HUD, EDA, and SBA for preservation purposes on the local level E. Provide for less federal regulation and more local determination in preservation projects
IX. Other Roles Legislation and Regulation Should Play *A. Play no role *R. Refrain from serving as a basis for usurping private property rights C. Provide for Planning D. Expand the legislative definition of historic preservation to include preserving individual neighborhoods E. Allow for artistic and aesthetic continuity and development F. Give advice only G. Restrict regulation on all levels H. Repeal historic district legislation

13
ECONOMICS
What economic strategies should be developed to promote historic preservation?
I. Public Economic Strategies
A. Local Governmental Action
1. Planning
*a . develop stronger ordinance to protect neighborhoods b. incorporate preservation into local planning process c. re-zone historic areas to discourage destruction d. change building codes in neighborhood to be applicable to neighborhood change e. develop facade easement programs and agencies f. establish citizen board on economic development to provide technical assistance
2. Financial and investment policies
a. target public funds for public improvements in support of historic preservation
b. provide a certain percentage of funds in local budgets to be allocated for historic preservation
c. pass community bond issues for historic preservation projects d. develop a mechanism to insure that historic property owners
make a "reasonable" return on investment in historic districts e. develop mechanism to control speculation
3. Other local government actions
*a . develop a system for providing temporary housing within a renovating neighborhood
*b . encourage adaptive reuse of structures c. develop a counseling service for property owners to help them understand possibilities and consequences of neighborhood speculation d. develop an economic assistance mechanism to help low income people with displacement e. insure that public services such as park lighting are consistent with the historic character of neighborhoods
B. Local and Federal Development Programs
*1. Restructure current federal residential financing programs by agencies such as VA, FHA, to include historic properties
*2. Link historic preservation projects to other federal economic development programs funded by agencies such as EDA, SBA and HUD
*3. Expand HUD grants (CDBG, UDAG , etc.) to include historic preservation projects
*4. Expand homestead programs to include specific provision for historic properties

.
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5. Deposit Community Development funds into bank to create low interest funds for local renovation projects
6. Develop a version of Neighborhood Housing Services (Urban Reinvestment Task Force) on the local level
C. Grants
*1. Emphasize small seed grants to spread the money around 2. Provide more funding for local historic grant programs 3. Determine grants on a quota basis 4. Award grants for documentation of existing social fabric 5. Expand grant programs in areas where preservation work is already underway
,V D. Tax Measures
1 Incentives
*a . apply tax incentives to single-family, non-commercial structures
*b . provide tax credits for a specific kind of improvement *c . provide tax credits for maintenance "d. provide investment tax credits to both contractors and
lenders e. provide income or profit tax credit for private restoration
efforts f. provide tax incentives for appropriate infill construction g. provide tax incentives to increase business participation
in investment and adaptive reuse h. provide a reduction in ad valorem taxes for preservation
projects
2. Disincentives
Vt a. develop disincentives such as the windfall profits tax to discourage speculation in historic districts
b. develop disincentives to discourage owners from abandoning historic structures
c. develop disincentives to discourage owners of unused vacant buildings from allowing their buildings to deteriorate beyond repair
3. Other tax-related measures
*a. re-examine how economic values are determined for tax purposes "b. change tax assessment process to recognize historic value of
building c. free property taxes on renovating buildings for a specific
time period d. change tax base to assess existing use rather than highest
and best use e. establish local, tax-deductible preservation funds f. develop a state and local income tax check-off for historic
preservation contributions

15
E. Other Public Economic Strategies
1. Make state loan guarantees for preservation projects 2. Expedite review process to alleviate costly delays 3. Provide public funding for projects that are not economically
feasible for private development
II. Private Economic Strategies
A. Financial Institution Strategies
*1. Encourage local banks to provide low interest loans for the purchase of historic properties
*2. Create tax-exempt mortgage bonds for historic preservation projects
*3. Establish bank pools to provide low interest loans for historic properties
4. Encourage local banks to provide low interest loans for rehabilitation and restoration of historic properties
5. Develop more creative financing mechanisms
B. Real Estate Market Strategies
*1. Develop special financing packages for historic properties 2. Increase participation of middle-income people in the historic real estate market 3. Increase private capitol investment in the market 4. Finance historic properties through phased-lease arrangements 5. Encourage low down-payments on the purchase of historic properties 6. Develop a nationwide marketing service for historic properties
C. Preservation Organization Strategies
1. Organize for action
*a . pool resources by combining and coordinating all interested groups
b. organize neighborhood groups interested in or affected by historic preservation
c. organize neighborhood barter groups to swap skills that are needed for preservation projects
d. increase lobbying efforts e. lobby for tax abatement and conservation easement legislation
2. Promote tours and tourism
*a. develop community tours to raise money b. promote tourism in historic districts c. expand tours to include minority neighborhoods and landmarks d. conduct open houses of historic properties and charge admission fees e. publicize economic advantages of preservation activities through Chambers of Commerce

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3. Develop funding mechanisms
*a. develop statewide non-profit revolving fund to help communities that do not have their own financial resources
b. develop revolving funds to pay the costs of historic preservation projects
c. establish a trust fund for historic preservation projects
*4. Engage in fund-raising
*a. develop community-based fund-raising activities, such. as fish fries and parties
b. open fund-raising events to the public c. organize charity events for historic preservation projects d. involve foundations in historic preservation e. encourage philanthropic interests in historic preservation
III. Combined Public and Private Economic Strategies
*A. Develop public and private revolving funds for historic preservation
*B. Improve access to all funding sources
*C. Encourage adaptive reuse of historic properties that are incomeproducing
D. Encourage both major lenders and government agencies to underwrite a fixed percentage of local preservation projects
E. Channel community development funds to private non-profit counseling agencies to develop better awareness of process and problems of restoration
F. Provide technical assistance to private developers for adaptive reuse of properties by government and private groups
G. Clarify public and private roles for supporting economic development in preservation
H. Maintain a 50-50 match of private and public funding in historic preservation
*IV. Educational Strategies
A. Groups to Educate
*1. Business community *2. Legislators at all levels *3. Community groups
4. Lenders 5. Private developers 6. Local public officials 7. Investors

17
15. Subject Matter
*1. Economic benefits of preservation *2. Changing views of the CBD and residential neighborhoods *3. Available advisory services
4. Values of preservation 5. Available funding sources 6. Tax incentives 7. Available technical services
C. Methods
1. Develop a central clearinghouse of information 2. Develop an information agency to provide technical assistance 3. Develop news stories about economic strategies 4. Develop publicity about the tax advantages of preservation 5. Improve access to information about both successful and
unsuccessful preservation projects 6. Advertise in national, state or local publications about
tourist attractions 7. Develop public relations campaign to arouse community partici-
pation and develop a friendly sense of competition 8. Increase research of projects 9. Develop method of funding more qualified persons to document
oral histories and buildings
V. Cost-Saving Strategies
*A. Seek donation of technical services such as architectural skills for projects
B. Develop technologies and strategies that reduce costs of renovation
C. Develop neighborhood purchasing pools to cut cost of materials
D. Streamline administration and paperwork to cut time costs
E. Train contractors better in the characteristics of historic properties
VI. Other Economic Strategies
A. Energy-related Strategies
1. Conduct research on energy conservation in older buildings
B. Transportation-related Strategies
1. Encourage use of public transportation to bring people to downtown areas
2. Coordinate the development of transportation systems to encourage redevelopment and discourage sprawl

.
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CONSTITUENCY
What should be the roles of a preservation constituency? (Preservation constituency was defined as persons or groups supporting historic preservation)
*I. Participate in Planning
A. Formulate realistic goals
*1. Define purpose and scope of preservation 2. Assess role of historic preservation in the local community 3. Broaden concept and goals of preservation to include protection of neighborhoods
B. Develop programs
1. Identify program alternatives 2. Evaluate programs objectively 3. Initiate historic preservation programs that involve the community 4. Encourage larger communities and organizations to assist small
communities in the development of preservation programs
*C. Implement plans and programs
*1. Insure local participation in programs by involving those that are not professional historians
2. Work toward accomplishing identified goals
*II. Identify and Document Resources
A. Methods of identification
*1. Coordinate identification and evaluation of resources through constituency and preservation professionals
*2. Develop a local register of historic properties *3. Provide input into state survey program *4. Identify resources that best describe the historic continuity of
an area 5. Establish a system for input into local surveys on a continuing
basis
B. Methods of documentation
1 Record oral histories 2. Engage in historical research 3. Function as an archival repository 4. Act as neighborhood data-gathering group

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*l I

I.

I n form I he Publ c i

vV A. Develop a clearinghouse of technical information for communities

*B. Serve as a source of public information on preservation

C. Provide a forum for discussion of issues with others

D. Establish a toll free "hot line" to answer preservation questions

E. Develop neighborhood information exchanges

F. Use simple language when discussing preservation

IV. Expand the Constituency

*A. Develop methods to broaden role of historic preservationists

*B. Seek and organize volunteers from the community

C. Ascertain what will attract new members

D. Recruit new members

*1. Involve individuals from a multitude of backgrounds, interests, disciplines
2. Involve the younger generations 3. Involve grass roots groups 4. Involve groups with common concerns

E. Coordinate roles of professionals and volunteers

V. Promote Public Awareness

*A. Create appreciation of historic preservation in the public's mind

*B . Generate awareness of a particular site

C. Influence curriculum planners to develop historic preservation component in school programs

D. Conduct a media campaign

E. Sponsor social events to improve public image of preservation

F. Publicize how various cultures and time periods relate

G. Insure high quality of publicity

*VI . Advocate and Provide Leadership

'CA. Lobby for historic preservation

*1. Work to place sympathetic policy-makers in key decision-making positions

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*2 . Influence legislation 3. Develop local political support 4. Monitor legislation
*B. Develop leadership
*1. Provide leadership in the identification of significant resources 2. Provide leadership in local areas for preservation activities 3. Organize preservation groups
C. Boycott
D. Sustain enthusiasm
*VII. Raise Funds and Provide Support for Preservation Projects
*A. Establish a revolving fund program
B. Make local organizations aware of economics of historic preservation
C. Locate sources of preservation funding (private/public/local/state/ federal)
D. Develop local fund-raising activities
VIII. Coordinate and Monitor Preservation Activities
*A. Coordination
*1. Act as liaison between the state Historic Preservation Section and local groups
*2. Work with developers 3. Coordinate local preservation activities in areas of member recruitment and funding 4. Stay in touch with federal and state programs 5. Prevent groups from getting bogged down in bureaucracy
B. Monitoring
1. Oversee activities of statewide/national preservation organizations and government agencies
2. Monitor upkeep of rehabilitated building 3. Develop techniques to follow up after a project begins 4. Develop emergency measures for saving threatened historic properties
*IX. Interpret Values in Historic Preservation
A. Interpret relationship and relevance of historic preservation to present and future
B. Use the concept of abstract and deferred values in interpreting historic preservation goals

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C. Address balancing the economics of preservation witli present life roles and future uses
D. Examine to what extent self-determination should be involved in preservation
X. Other Roles A. Save everything B. Learn to live with defeats C. Put history on a human level

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DEVELOPMENT CONFLICTS
How should the conflicts between historic preservation and development be addressed?
I. Through the Planning Process
A. Develop statewide historic preservation plan to identify potential conflicts
*1. Incorporate historic preservation plan into all development programs
2. Use results of comprehensive resource surveys in planning 3. Address "public opinion" in preservation plan
B. Develop strong local planning process and plan *1. Develop strong viable local planning commissions with veto power 2. Develop community guidelines that suggest alternatives for historic preservation, i.e., adaptive reuse 3. Include cultural resource review in local planning documents
II . Through Coordination
A. Create a better, more effective partnership between governmental and private historic preservation interests
B. Coordinate rules and regulations of agencies that work in historic preservation and development
C. Coordinate activities among federal, state and local agencies and organizations
D. Eliminate restraints placed on private property owners or interested parties by extensive red tape
III. Through Legislation
*A. Develop local legislation to protect integrity of historic districts *1. Establish historic zoning regulations 2. Impose restrictive covenants in historic districts
B. Clarify existing guidelines and regulations
C. Develop stronger legislation I). Establish legislation to protect both historic preservation and
deve I ope rs ' i nterests

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TV. Through Development of Planning Criteria and a Review Process
A. Formulate Criteria
*1. Define clear standards for preservation projects *2. Determine what should be preserved and why 3. >'c Develop criteria for new construction in historic places
4. Establish standards for setbacks of new construction in keeping with existing historic buildings
5. Develop innovative building codes sensitive to older buildings 6. Identify levels of importance of buildings and settings
B. Develop review process
1. Require that an independent agency conduct a review process for all development and redevelopment
2. Develop mandatory review process before demolition 3. Develop comprehensive review process conducted by local historic
groups
*V. Through Economic Incentives
*A. Provide local property tax incentives for historic preservation
B. Develop a local preservation resource pool of craftsmen, laborers and funding sources
VI. Through Education and Information
A. Educate a variety of people about the benefits of preservation and the value of historic properties
*1. Businessmen *2. Developers *3. Board of Realtors *4. Property owners *5. Local politicians and decision-makers
6. Architects 7. Citizens
B. Educate people about various aspects of historic preservation
*1. What historic preservation is and why it is important *2. Economic benefits of historic preservation "3. Economic facts of rehabilitation, restoration, and redevelopment
4. The historic pattern of a community and how it relates to new developments
5. Cultural and aesthetic benefits of historic preservation 6. The efficiency of centralized developments when resources are
limited
C. Methods of educating and informing
"1. Develop educational and pre-planning conferences *2. Document historic sites in advance of new development for possible
future restoration

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*3. Distribute information locally about adaptive reuse of buildings *4. Develop clearinghouses of information on the local, state and
federal levels 5. Develop information on alternative uses for historic buildings 6. Develop dialogue to overcome insensitivity to each party's views 7. Develop public information meetings for both sides
VII. Through Development of Techniques for Integration of Old and New
A. Promote old and new uses in an historic district
*1. Develop modern use for historic properties 2. Develop multiple uses for historic properties 3. Develop ideas for compatibility of uses for new and old structures 4. Develop land use planning buffers around historic properties 5. Promote idea of continuum of historic preservation and new development in a community 6. Develop design competition for new development in historic districts
*B. Promote preservation in the marketplace
*1. Establish a minimum cost benefit ratio for restoration and new development in historic areas
2. Save only what can be profitably reused 3. Protect private property rights
-Will. Through Outside Arbitration
*A. Solve conflicts by judging qualitatively on a case-by-case basis
B. Establish procedures for resolution through public meetings
C. Use a board of experts to advise both sides
D. Use outside arbitrators to rule on "unsolvable conflicts"
E. Establish neighborhood preservation boards
IX. Other Ways of Addressing Development Conflicts
*A. Encourage developers to be more sympathetic toward preservation
B. Use political pressure to solve conflicts
C. Recruit "preservation-minded" developers for preservation projects
D. Develop willingness to compromise on both sides
E. Recognize total welfare of the community as ultimate goal
F. Focus on need for environmental integrity
G. Address social effects
H. Recognize Liu; peculiar problems of rural preservation

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SOCIAL IMPLICATIONS
How should the social Implications of historic preservation be addressed?
I. Through Education
A. Education of the general public
1. Educate existing residents on the significance of the area in which they live
2. Raise community pride by developing knowledge of area and a sense of place
3. Raise awareness beginning at an early stage of preservation projects
B. Education in the Schools
*1. Develop youth appreciation of local history >v 2. Implement broad use of preservation textbooks in primary and
secondary schools 3. Involve educators in preservation 4. Develop interaction between historical societies and all levels
of educational institutions
II. Through Publicity
*A. Promote interest in historic preservation through better use of the media
B. Publicize tours of all aspects of a community's history
C. Publicize preservation projects that are completed
III. Through Organization
*A. Encourage organization of neighborhood groups, block associations, and tenant unions
*B. Encourage communication and cooperation between all community groups and local government agencies
C. Organize community urban design group
D. Coordinate groups with common interests
E. Organize lobbying activities
F. Develop ways to encourage local involvement in preservation projects
TV. Through Planning
A. Role of Government
*1. Involve residents before project is implemented 2. Insure that neighborhood residents fully understand plans and priorities for neighborhood

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3. Develop plans to insure cultural diversity of neighborhood 4. Update comprehensive plans to incorporate historic preservation
B. Role of Citizens
*1. Encourage resident ownership of property *2. Encourage neighborhood acceptance of projects
3. Work closely with planning agencies to determine future direction of preservation
4. Encourage "public" or neighborhood ownership of historic property 5. Encourage grass roots involvement
V. By Relating Preservation Efforts to Community Conditions
A. Consider existing human element
*1. Maintain social, economic and racial diversity of neighborhood *2. Maintain culture of existing groups *3. Address concerns of older residents of community
4. Consider people more than economics 5. Consider rights of all affected by projects 6. Preserve neighborhood character even if some individuals are
adversely affected 7. Incorporate existing functions of community into plan or project
B. Encourage compatible new construction and adaptive reuse
*1. Stress adaptive reuse in the place of new construction in the inner city
*2. Encourage multiple use of historic sites by all levels of society 3. Encourage appropriate new construction 4. Accommodate compatible land use changes, such as doctors' offices in older residences, etc. 5. Encourage recycling of buildings when funds are limited
VI. Through Increased Minority Involvement
*A. Encourage local preservation societies to involve more minorities
*B. Identify recognized minority landmarks so that existing historic tours include these landmarks
C. Identify ways to involve minority groups
D. Encourage minority interest in historic districts
E. Require an awareness of minority landmarks and resources by a] agencies and organizations involved in preservation
F. Put emphasis on ethnic groups and their history
VII. Through Development of Financial Tools
*A. Identify funding sources to finance projects that are partially funded

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*]'>. Monitor real estate speculation in historic places C. Provide direct financial assistance to renters and homeowners in historic districts D. Maintain status quo on taxes for original property owner
VIII. Through Study *A. Study preservation projects of a similar nature B. Develop a clearinghouse of information related to similar projects elsewhere C. Study economic and social implications of preservation D. Study how to resolve conflicts between present values and the values of the past
IX. By Addressing the Issue of Displacement *A. Displace as few people as possible *B. Provide alternative housing for displaced persons within a renovating neighborhood *C. Provide housing opportunities for all economic groups within a renovating neighborhood D. Provide for relocation before renovation occurs E. Continue to evaluate and monitor relocation programs
X. Through Addressing Values Inherent in Historic Preservation *A. Address quality-of-life issues *B. Develop a strategy or measuring tool that puts social and economic values into a common denominator for comparison C. Ask the question, "What are we preserving?" D. Examine the word "history" in historic preservation E. Address conflicts between values of the present and past F. Expand concept of historic preservation beyond the recognition of historically significant buildings
XI. Other Comments on Ways of Addressing Social Implications A. Preservation alone cannot deal with displacement B. Historic Preservation is a contemporary form of moral education C. Preservationists need to get out of the ivory tower and into the community

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D. Preservationists should not always accept majority political opinion
E. Who determines criteria for what should be preserved? F. Avoid provincialism G. Consider long-range perspective or timing of an issue H. Expand the application of historic preservation to diffuse
negative situations I. Determine where preservation stops J. Determine geographic area to be preserved

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III. EVALUATION OF RESPONSES TO THE ISSUE QUESTIONS
Having organized the responses into categories, project staff then evaluated the responses. This evaluation involved determining what the responses meant and how the responses could be translated into policy guidance or recommendations for action. Specifically, the responses were assessed to determine the direction they provide in developing goals, objectives, and strategies for a cultural resource management plan for Georgia and in defining the role of the Historic Preservation Section in preservation activity statewide.
Answers to the question concerning cultural resources covered a broad spectrum and indicate an ever-expanding view of historic and cultural resources which should receive greater emphasis in preservation programs. Among resources respondents identified as needing greater emphasis were the vernacular such as common housing and entertainment facilities. Responses in general also noted the need to view historic and cultural resources in terms of districts and whole areas of significance rather than as single structures or sites. A similar idea was presented in comments suggesting that systems and networks should receive greater attention. Among other things, these ideas suggest that the Historic Preservation Section evaluate the office's approach in survey, registration, grants, environmental review, planning, and public information programs and shift the emphasis in these program areas to reflect these concerns. Some suggestions fell outside the scope of the Historic Preservation Section's mandated program areas. These workshop responses reflected a concern for the preservation of the intangible elements of culture, such as folklore, social customs, language and performing arts.
In responding to the legislation question, participants pointed both to the excesses and to the inadequacies of existing legislation. Responses called for legislation to improve the quality of existing preservation programs through greater coordination among responsible agencies and more stringent enforcement of environmental regulations. At the same time, respondents indicated a need to increase the authorization of monies available for historic preservation through legislative means. In planning for cultural resource management, these responses suggest several tasks, namely the identification of existing preservation legislation, the evaluation of the effectiveness of this legislative framework as a cultural resource management tool, and the development of legislative proposals and approaches which remedy present deficiencies
Three major points were expressed in responses to the economics question: Taxing measures are primary economic means for public encouragement of preservation; private market and investment strategies play an important role in preservation activity; and broad-based preservation activity depends upon a combination of governmental inducements to preservation and private initiative. Grants were viewed as one economic strategy for preservation. Responses in this category suggest that in cultural resource management planning the Historic Preservation Section identify creative taxing mechanisms and other public economic

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strategies at all levels of government and provide this information as technical assistance to governmental agencies. In proposing the identification of private investment strategies, the responses suggest that the Historic Preservation Section may also provide this form of technical assistance to the private sector. Because listing on the National Register is a critical designation for the availability of grants and preferential tax treatment under current law, priorities set by the Historic Preservation Section for registration are keys to the implementation of these economicstrategies.
The constituency issue prompted responses which outlined a broad range of preservation activities to be carried out by those persons or groups supporting preservation. Responses support continued efforts by the Historic Preservation Section to increase the participation of the public in preservation programs, to inform the public, to provide technical assistance and training, and to evaluate and improve the methods for exchanging information and services. It is anticipated that the state's cultural resource management plan will address these workshop comments by identifying the appropriate roles for various groups in preservation of the state's cultural resources, and by providing a framework for participation of these groups in the planning and implementation of historic preservation programs.
In responses to the question posed concerning development conflicts, participants suggested several approaches: to halt the proposed development, to work through a planning process of informing and involving those affected, and to develop mechanisms for assuring that new development respects older values. These observations suggest that as a management tool the cultural resource management plan provide a mechanism through which conflicts are identified and understood, and through which strategies are developed for their resolution. As the guide for a rational decision-making process, the cultural resource management plan could indicate the role of the Historic Preservation Section and other agencies and groups in this process and define the conditions under which new development and/or preservation is appropriate
Although the social implications of preservation were not defined, responses under this category indicated that the majority of workshop participants understood social implications to mean the displacement of minorities and low-income residents. Responses varied from a concern that those displaced be informed of proposed action affecting them through education or a planning process, to the recognition that historic preservation should recognize and preserve human living environments. These responses suggest that the history of all groups be recognized in developing a cultural resource management plan. These responses seem also to reflect the need for the continued support of preservation planning.
IV. EVALUATION OF THE WORKSHOP PROCESS
The Historic Preservation Section believes that the workshop process is useful in the cultural resource management planning process as an initial gauge of public opinion on historic preservation issues. However, the effectiveness of the workshops as a technique for broad public involvement must be measured in Light of the limited number of persons directly involved in the- workshops; the similarity of interests, professional background, and

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economic status (if the participants and the limited involvement of minorities; the generally positive view the participants held concerning historic preservation; and the absence of a workshop in south Georgia.
Participants' evaluation of the workshop format and purpose provide another reading on the effectiveness of the workshop series. Focused primarily on the small group session, these comments noted that the sessions offered the opportunity for everyone to contribute and stimulated a wide range of responses. Most negative comments centered on the very structured nature of the Nominal Group Technique and the lack of time to explore the issues raised. Some participants also questioned the direct relationship between the issues workshops and the cultural resource management planning process.
Just as the responses provide direction for the cultural resource management plan, so the workshops represented one technique to be evaluated in the development of strategies for public participation in the planning process. Other kinds of techniques for involving the public will need to be structured as they are appropriate to various stages of the planning process
The next step in the cultural resource management planning process will be the refinement of the overall strategy and a schedule for its implementation. An important step in devising an overall strategy will be the identification of participants in the ongoing planning process and an exploration of the ways in which they can participate. Organized bodies of citizens such as the advisory committees formed to assist regional preservation planners in area planning and development commissions and the Georgia National Register Review Board may participate in the process. Other individuals and citizen groups, some of whom took part in the Issues Workshops, will also be identified to work within an ongoing planning framework.

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PROJECT STAFF, PARTICIPANTS, AND PARTICIPATING ORGANIZATIONS
Project Director : Dr. Elizabeth A. Lyon, Chief, Historic Preservation Section
Project Coordinators : Syd Janney, Preservation Planner, Historic Preservation Section Nancy Nolan, Intern, Historic Preservation Section
Workshop Panelists : Dr. Timothy Crinunins, Professor of History, Georgia State University Stephen Dennis, Legal Counsel, National Trust for Historic Preservation Dr. Stephen Gurr, Professor of History, Georgia Southwestern College Jeremiah Luxemburger, Attorney, Kutak, Rock and Huie Dr. Elizabeth A. Lyon, Chief, Historic Preservation Section Dr. Phinizy Spalding, Professor of History, University of Georgia
Workshop Leaders : David Brown, Preservation Planner, Middle Flint APDC Richard Cloues, Architectural Historian, Historic Preservation Section Thomas Eubanks, Assistant to the State Archaeologist, Historic Preservation
Section Carole Griffith, Manager, Inventory and Grants Management Unit, Historic
Preservation Section Carole Merritt, Manager, Preservation Assistance and Review Unit, Historic
Preservation Section John Pullen, Archaeological Resource Reviewer, Historic Preservation Section James Reap, Preservation Planner, Northeast Georgia APDC Kenneth H. Thomas, Jr., Historian, Historic Preservation Section Lyn Waskiewicz, Preservation Coordinator, Historic Preservation Section

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1 _,o c al_ Speakers : Macon Peter Brown, President, In-Town Macon Neighborhood Association Beth O'Neal, Executive Director, Middle Georgia Historical Society Jenny Thurston, Executive Director, Macon Heritage Foundation, Inc.
Columbus Janice Biggers, Executive Director, Historic Columbus Foundation
Savannah John Hayes, Executive Director, Historic Savannah Foundation Beth Reiter, Director, Savannah Landmarks, Inc. Jesse Wiles, Director of Housing, City of Savannah
Atlanta: Lyn Deardorff, President, Historic Decatur Jan Meadows, Chairperson, Atlanta Urban Design Commission Lisa Reynolds, Curator, Atlanta Historical Society Eileen Segrest, Chairperson, Historic Preservation Task Force, Atlanta
Junior League
Participating Organizations and Institutions : Association for the Study of Afro-American Life and History, Yamacraw Branch Atlanta Historical Society Atlanta Preservation Coalition Atlanta Urban Design Commission Oeorgia Institute of Technology Oeorgia Trust for Historic Preservation Historic Columbus Foundation

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Historic Decatur
Historic Savannah Foundation
In- Town Macon Neighborhood Association
Macon Heritage Foundation
Middle Georgia Historical Society
City of Savannah
Savannah Landmarks , Inc
Many people assisted in the planning and implementation of the workshop series. Jenny Thurston, Executive Director of the Macon Heritage Foundation, and Dr. Jay Stein, Assistant Professor of City Planning at the Georgia Institute of Technology, assisted in planning the proiect. Preston Prather, Executive Director of the Committee for the Humanities in Georgia, provided assistance in developing the grant proposal for the project. Kurt Fanstill of the Recreation Services Section, Georgia Department of Natural Resources, trained the workshop leaders in the Nominal Group Technique. Technical assistance was provided by Carlyn Crannell, Susan Kidd, Elizabeth Lipson, and Cindy Smith of the Historic Preservation Section staff and by Cynthia Christmas, Ed McCord, and Jody Sloan, graduate students from the Georgia Institute of Technology. Staff of the Atlanta Historical Society, the Historic Savannah Foundation, Macon Federal Savings and Loan, and the National Bank and Trust of Columbus provided assistance in arranging meeting space for the workshops.

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