Heritage Values VL

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Heritage Values i n Site Management

Four Case Studies
M a r t a de la T o r r e
Margaret G. H . MacLean
Randall Mason
David Myers
E d i t e d b y M a r t a de la T o r r e
T h e Getty Conservation Institute, Los Angeles
T h e G e t t y C o n s e r v a t i o n Institute
T i m o t h y P. W h a l e n ,
Director
Jeanne M a r i e T e u t o n i c o , Associate
Director,
Field Projects and
Sciences
T h e G e t t y C o n s e r v a t i o n Institute w o r k s internationally to advance c o n s e r v a t i o n and

to e n h a n c e a n d e n c o u r a g e the p r e s e r v a t i o n and u n d e r s t a n d i n g o f the v i s u a l arts in all
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2005 J. Paul G e t t y T r u s t
G e t t y Publications
1200 G e t t y C e n t e r D r i v e , Suite 500
L o s Angeles, C a l i f o r n i a 90049-1682
www.getty.edu
Christopher Hudson,
Publisher
M a r k G r e e n b e r g , Editor
Patrick Pardo, Project

A b b y Sider, Copy
in
Chief
Editor
Editor
P a m e l a H e a t h , Production
Coordinator
H e s p e n h e i d e D e s i g n , Designer and
Compositor
T h e i n d i v i d u a l case studies w e r e originally designed by Joe M o l l o y a n d copyedited by

S y l v i a T i d w e l l and D i a n n e W o o . T h e b o o k cover is based on a design by Joe Molloy.
P h o t o g r a p h s in the G r o s s e lie case study are courtesy o f Margaret G . H . M a c L e a n .

P h o t o g r a p h s for all other case studies have b e e n provided as indicated.
T h e a c c o m p a n y i n g C D - R O M contains copyrighted materials that have b e e n used w i t h

p e r m i s s i o n . See last page for full credit i n f o r m a t i o n .
Printed in C a n a d a by Friesens
Library of Congress Cataloging-in-Publication Data

Heritage values in site m a n a g e m e n t : four case studies / M a r t a de la T o r r e
.. [et a l . ] ; edited by M a r t a de la T o r r e ,
p. c m .
Includes b i b l i o g r a p h i c a l references a n d index.
I S B N - 1 3 : 978-0-89236-797-0 (pbk.)
I S B N - 1 0 : 0-89236-797-0 (pbk.)
1. H i s t o r i c s i t e s - M a n a g e m e n t - C a s e studies. 2. C u l t u r a l
p r o p e r t y - P r o t e c t i o n - C a s e studies. I . D e la T o r r e , M a r t a , 1946- II. G e t t y
C o n s e r v a t i o n Institute.
CC135.H46525 2005
363.6 '9-dc22
2004017483
Contents
Foreword
v
Timothy P. Whalen
PART O N E
Project Background
Marta de la Torre
Introduction
Steering C o m m i t t e e o f the
C a s e Study Project
13
A b o u t the C a s e Studies: P u r p o s e , D e s i g n ,
a n d Methods
PART T W O
10
The Case Studies
Grosse l i e and the I r i s h M e m o r i a l
Chaco Culture N a t i o n a l Historical Park
N a t i o n a l H i s t o r i c Site
Marta de la Torre, Margaret G. H. MacLean,
Margaret G. H. MacLean and David
Myers
A b o u t T h i s Case Study
David
18
M a n a g e m e n t C o n t e x t and
H i s t o r y o f Grosse l i e
and
Myers
60
M a n a g e m e n t C o n t e x t and
20
U n d e r s t a n d i n g and P r o t e c t i n g the Values
History o f C C N H P
61
U n d e r s t a n d i n g and P r o t e c t i n g
o f Grosse l i e and the Irish M e m o r i a l
the Values o f the Park
69
28
Conclusions
97
Conclusions
50
Appendix A: T i m e Line during
Appendix A: Commemorative Integrity

A Short H i s t o r y o f a C e n t r a l C o n c e p t
i n H e r i t a g e M a n a g e m e n t i n Parks Canada
53
References
55
Persons C o n t a c t e d d u r i n g the
D e v e l o p m e n t o f the Case
H e r i t a g e Status
101
A p p e n d i x B: Resource Classification
105
A p p e n d i x C: M a n a g e m e n t
Priorities o f C C N H P i n 2001
106
Appendix D : Summary o f
56
Legislation Pertinent t o C C N H P
107
References
no
113
iii
P o r t A r t h u r H i s t o r i c Site
Hadrian's W a l l W o r l d Heritage Site
Randall Mason, David Myers, and Marta de la Torre

Randall Mason, Margaret G. H. Maclean,
116
Management Context and

H i s t o r y o f P o r t A r t h u r H i s t o r i c Site
117
Conclusions
U n d e r s t a n d i n g and P r o t e c t i n g the
160
Values o f the Site
190
Conclusions
206
the C l o s i n g o f the Penal C o l o n y
164
A p p e n d i x A : T i m e L i n e for
References
167
H a d r i a n s W a l l d u r i n g H e r i t a g e Status
References
169
209
211
PART THREE
174
129
A p p e n d i x A : T i m e L i n e after
172
M a n a g e m e n t C o n t e x t and H i s t o r y
o f H a d r i a n s W a l l W o r l d H e r i t a g e Site
U n d e r s t a n d i n g and P r o t e c t i n g
the Values o f the Site
and
Marta de la Torre
213
Issues Raised b y the Case Studies

217
Marta de la Torre
Index
228
A b o u t the Authors
233
Contents o f Supporting Documents o n CD-ROM

Grosse lie and the Irish M e m o r i a l National
Historic Site
(1) Grosse l i e N a t i o n a l H i s t o r i c Site
D e v e l o p m e n t C o n c e p t (1992)
(2) Grosse l i e N a t i o n a l H i s t o r i c SiteReport o n
the Public C o n s u l t a t i o n P r o g r a m (1994)
(3) Part I I I ( C u l t u r a l Resource M a n a g e m e n t
Policy) o f Parks Canada G u i d i n g Principles
and O p e r a t i o n a l Policies (1994)
(4) C o m m e m o r a t i v e I n t e g r i t y Statement for
Grosse l i e and the Irish M e m o r i a l N a t i o n a l
H i s t o r i c Site (1998)
(5) Grosse l i e and the Irish M e m o r i a l N a t i o n a l
H i s t o r i c Site M a n a g e m e n t Plan (2001)
(6) G u i d e t o the Preparation o f C o m m e m o r a t i v e
I n t e g r i t y Statements (2002)
Chaco Culture National Historical Park
(1) Chaco C u l t u r e General M a n a g e m e n t
P l a n / D e v e l o p m e n t C o n c e p t Plan (1985)
(2) Chaco C u l t u r e Statement for I n t e r p r e t a t i o n
and I n t e r i m Interpretive Prospectus (1991)
(3) N a t i o n a l Park Service M a n a g e m e n t Policies
2001
P o r t A r t h u r H i s t o r i c Site
(1) B r o a d A r r o w Cafe C o n s e r v a t i o n Study (1998)
(2) P o r t A r t h u r H i s t o r i c Site C o n s e r v a t i o n Plan,
v o l u m e 1 (2000)
(3) P o r t A r t h u r H i s t o r i c Site C o n s e r v a t i o n Plan,
v o l u m e 2 (2000)
(4) P A H S M A A n n u a l R e p o r t 2001
Hadrian's W a l l W o r l d Heritage Site
(1) P l a n n i n g Policy Guidance 16: A r c h a e o l o g y a n d
P l a n n i n g (1990)
(2) P l a n n i n g P o lic y Guidance 15: P l a n n i n g a n d the
H i s t o r i c E n v i r o n m e n t (1994)
(3) H a d r i a n s W a l l W o r l d H e r i t a g e Site
M a n a g e m e n t Plan 1996
(4) H a d r i a n s W a l l W o r l d H e r i t a g e Site
M a n a g e m e n t Plan 2002-2007
Foreword
I a m pleased t o w r i t e this f o r e w o r d t o Heritage Values in
b e t w e e n i n t e r n a t i o n a l guidance d o c u m e n t s and technical
Site Management: Four Case Studies, the result o f research
i n t e r v e n t i o n guidelines. I t is o u r h o p e that the case stud
carried o u t b y b o t h the staff o f the G e t t y C o n s e r v a t i o n
ies p r o v i d e the reader w i t h a n e w and different v i e w p o i n t
Institute ( G C I ) a n d o u r colleagues i n heritage organiza
over the landscape o f m a n a g i n g and preserving c o m p l e x
tions a r o u n d the w o r l d . T h e b o o k presents the results o f
heritage sites.
the w o r k o f a g r o u p o f dedicated professionals, w h o came
T h e case studies themselves are available o n the
together over a p e r i o d o f t w o years t o discuss values-
G C I W e b site at w w w g e t t y . e d u / conservation. H o w e v e r ,
based m a n a g e m e n t o f c u l t u r a l heritage sites.
this p u b l i c a t i o n o f the case studies also includes a compar
T h e case studies presented i n this v o l u m e are
i s o n o f the m a n a g e m e n t policies i m p l e m e n t e d at the dif
the result o f a collaborative project o f the A u s t r a l i a n H e r
ferent sites and an explanation o f the m e t h o d o l o g i e s and
itage C o m m i s s i o n ( n o w the A u s t r a l i a n H e r i t a g e C o u n c i l ) ,
process f o l l o w e d i n the development o f the case studies. I t
English Heritage, the U n i t e d States N a t i o n a l Park Service,
is o u r expectation that these methods, w h e n used b y o t h
Parks Canada, and the G C I . T h e individuals representing
ers i n the conservation field, m i g h t p r o v i d e a critical mass
these organizations-Jane L e n n o n , C h r i s t o p h e r Y o u n g ,
o f i n f o r m a t i o n t o create guidelines and evaluation stan
Kate Clarke, Francis M c M a n a m o n , D w i g h t Pitcaithley,
dards for best practice.
Christina C a m e r o n , G o r d o n Bennett, and Francois
I hope that this v o l u m e w i l l p r o v i d e unconven
LeBlancsteered the development o f the case studies
t i o n a l insights i n t o the challenges o f preserving the
and w o r k e d closely w i t h the quartet w h o c o o r d i n a t e d
u n i q u e , ever-changing, and often-conflicting values o f
the w o r k and w r o t e the text: M a r t a de la T o r r e and D a v i d
c u l t u r a l heritage sites t o b o t h students and practitioners
M y e r s o f the G C I and M a r g a r e t G. H . M a c L e a n and Ran
i n the field.
dall M a s o n . I a m g r a t e f u l t o all o f t h e m for t h e i r t i m e and

expertise, and this v o l u m e owes a great deal t o t h e i r
Timothy P. Whalen
insights and experience. I n particular, I w o u l d like t o rec
Director
ognize and t h a n k M a r t a de la T o r r e , w h o s e v i s i o n and
The Getty Conservation
Institute
leadership g u i d e d b o t h the research project and the case

studies t e a m .
T h e case studies project b r o u g h t together t w o
areas i n w h i c h the G C I has done considerable w o r k : site
management, and research i n significance and values i n
the conservation o f c u l t u r a l heritage sites. These case
studies c o n t i n u e this w o r k , presenting an i n - d e p t h analysis
o f h o w four i m p o r t a n t organizations i n different h e m i
spheres identify, understand, and p r o t e c t the values attrib
u t e d t o c u l t u r a l heritage sites w h e n considering the
preservation, care, and m a n a g e m e n t o f those sites.
T h e sites i n these case studies are diverse and
include a v a r i e t y o f elements, r a n g i n g from buildings,
archaeological remains, and v i e w s and landscapes, t o
t o w n s and a g r i c u l t u r a l lands. Focusing o n these f o u r sites
and their u n i q u e characteristics and challenges, the case
studies bridge a gap i n the conservation l i t e r a t u r e
PART ONE
Project Background
Introduction
m e n t guidelines w i t h on-site p l a n n i n g and o p e r a t i o n a l
P r e s e n t a t i o n o f t h e Project
T h i s p u b l i c a t i o n presents f o u r case studies developed i n a
collaborative p r o j e c t o f the G e t t y C o n s e r v a t i o n I n s t i t u t e ,
the A u s t r a l i a n H e r i t a g e C o m m i s s i o n (as o f January 2004,
the A u s t r a l i a n H e r i t a g e C o u n c i l ) , E n g l i s h H e r i t a g e , the
U.S. N a t i o n a l Park Service, a n d Parks Canada. Each case
focuses o n a specific c u l t u r a l site a n d analyzes its manage
m e n t t h r o u g h the lens o f the site's values a n d significance.
These materials have a didactic i n t e n t , a n d i t is anticipated
t h a t t h e y w i l l be used b y i n s t i t u t i o n s and i n d i v i d u a l s
engaged i n the study o r practice o f site m a n a g e m e n t , con
servation p l a n n i n g , a n d h i s t o r i c preservation. T h e case
studies are preceded b y a discussion o f site m a n a g e m e n t
concepts used i n the case analyses. T h e y are f o l l o w e d b y a
s u m m a r y o f some o f the m o r e i m p o r t a n t p o i n t s t h a t
e m e r g e d i n the studies, c o m p a r i n g , i n some instances,
h o w a p a r t i c u l a r issue developed at the different sites.
T h e heritage l i t e r a t u r e contains a large n u m b e r
o f charters and guidance d o c u m e n t s i n t e n d e d t o assist the
practitioners i n p l a n n i n g a n d m a n a g e m e n t .
More
recently, m a n y i n t e r n a t i o n a l d o c u m e n t s have started t o

advocate n e w comprehensive m a n a g e m e n t approaches
focused o n the values o f a place. T h e organizations partic
i p a t i n g i n this p r o j e c t share a b e l i e f i n the usefulness o f
values-based m a n a g e m e n t i n a b r o a d range o f local,
regional, n a t i o n a l , a n d i n t e r n a t i o n a l contexts. T h e y also
recognized t h a t there is l i t t l e i n f o r m a t i o n a b o u t the appli
c a t i o n o f theoretical guidelines t o specific cases a n d c r i t i
cal analyses o f actual m a n a g e m e n t practices. These cases
are i n t e n d e d t o fill some o f t h a t gap b y i l l u s t r a t i n g h o w
values a n d significance are u n d e r s t o o d and used i n actual
m a n a g e m e n t practices.
T h e case studies i n this p u b l i c a t i o n deal w i t h sites
t h a t are u n i q u e , a n d thus each one emphasizes the issues
t h a t w e r e considered t o be i m p o r t a n t i n t h a t place a n d its
circumstances. O p e r a t i o n a l activities generally target
decisions b y l o o k i n g at all the values a t t r i b u t e d t o the

sites, and examine h o w these values influence manage
m e n t . O n e o f the clearest insights e m e r g i n g from this
study is the c o m p l e x i t y o f the relationships o f a site's val
ues and the m a n y i m p l i c a t i o n s t h a t m o s t r o u t i n e manage
m e n t decisions have for t h e m . L o o k i n g at the ramifications
o f such decisions and their i m p a c t o n the various aspects
o f the place, i t becomes evident that heritage m a n a g e m e n t
w i l l benefit from approaches that p r o m o t e holistic think
ing, that g o b e y o n d the prescriptions issued i n charters and
guidelines, and that can sustain activities t o m o n i t o r the
i n t e g r i t y o f values and significance.
T h e cases d o n o t measure the success o f a g i v e n
m a n a g e m e n t m o d e l against some set standard. Rather,
t h e y are i n t e n d e d t o illustrate and explain h o w f o u r differ
ent g r o u p s have dealt w i t h the p r o t e c t i o n o f values i n the
m a n a g e m e n t o f f o u r specific sites, and h o w they are
h e l p e d o r h i n d e r e d i n these efforts b y legislation, regula
tions, and o t h e r policies.
I t m u s t be said from the start that the responses
t h a t an o r g a n i z a t i o n can give t o a specific s i t u a t i o n are n o t
u n l i m i t e d . L i m i t a t i o n s are created b y the legal and a d m i n
istrative context. T h e m a n a g i n g authorities i n v o l v e d i n the
cases are g o v e r n m e n t a l agencies, i n three cases n a t i o n a l
ones. I n practical t e r m s this means t h a t the approaches
used and the decisions m a d e i n these sites are governed as
m u c h b y the n a t i o n a l policies a n d regulations as b y the
specific situations o f the sites. Balancing h i g h e r authorities
w i t h local needs is a challenge faced b y m o s t managers. I f
negative impacts o f policies o r actions have been p o i n t e d
o u t i n the case studies, i t has been done t o illustrate the
c o m p l e x i t y o f m a n a g i n g sites w i t h m u l t i p l e values. These
c o m m e n t s s h o u l d n o t be t a k e n as an evaluation o f the
actions o f the site authorities.
T H E SITES AND T H E I R GOVERNING AGENCIES
specific p r o b l e m s and rarely a l l o w the t i m e t o consider
T h e f o u r sites studied as p a r t o f this projectGrosse l i e
b r o a d i m p l i c a t i o n s . T h e case studies step b a c k t o l o o k at
a n d the I r i s h M e m o r i a l N a t i o n a l H i s t o r i c Site i n Canada,
the i m p a c t o f the o p e r a t i o n a l decisions o n the essential
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l P a r k i n the U.S., P o r t
qualities o f the site. T h e y p r o v i d e detailed analyses o f the
A r t h u r H i s t o r i c Site i n Australia, and Hadrian's W a l l
processes t h a t connect p o l i c y statements a n d manage
W o r l d H e r i t a g e Site i n the U n i t e d K i n g d o m w e r e p u t
3
f o r t h b y t h e i r g o v e r n i n g agencies as examples o f h o w val
objective, t o dealing w i t h places i n w h i c h the heritage is
ues issues have been addressed. T h e sites w e r e chosen t o
o n l y one a m o n g m a n y elements o f a l i v i n g and e v o l v i n g
present a variety o f resources and circumstances that affect
e n v i r o n m e n t . N o n e o f the cases presented here are con
m a n a g e m e n t . T h e administrative e n v i r o n m e n t o f each is
cerned exclusively w i t h a single structure. T h e sites v a r y i n
different, d e t e r m i n e d b y its legal status, applicable legisla
degree o f complexity, b u t all i n c l u d e buildings, archaeolog
t i o n , and policies o f g o v e r n i n g agencies. T h e sites also v a r y
ical remains, and i m p o r t a n t v i e w s a n d landscapes, a n d i n
i n t h e i r h i s t o r y as a heritage place, and those that have
the case o f H a d r i a n s W a l l , t o w n s and a g r i c u l t u r a l lands.
enjoyed heritage status the longest have seen a m o r e thor

o u g h t r a n s f o r m a t i o n o f t h e i r values and significance.
M a r k e t (or business) approaches have b e e n

applied i n the heritage w o r l d i n recent decades. T h i s is a
l o g i c a l m o v e i f v i e w e d as t u r n i n g for solutions t o a disci
Site M a n a g e m e n t
p l i n e w i t h experience i n a l l o c a t i n g resources a n d r e s o l v i n g
conflicts i n c o m p l e x a n d d y n a m i c e n v i r o n m e n t s . A t the
T H E CHANGING MANAGEMENT ENVIRONMENT
same t i m e , the g l o b a l t r e n d t o w a r d p r i v a t i z a t i o n o f activi
T h e m a n a g e m e n t o f c u l t u r a l sites has b e c o m e a t o p i c o f
ties a n d f u n c t i o n s t r a d i t i o n a l l y i n the p u b l i c d o m a i n has
m u c h interest i n recent years. H e r i t a g e m a n a g e m e n t , h o w
also e n c o u r a g e d this shift.
ever, is n o t a n e w enterprise. Sites have b e e n m a n a g e d i n
H o w e v e r , w h i l e the application o f m a r k e t con
one w a y o r another since the m o m e n t t h e y came t o be
cepts and business approaches can be useful for heritage
considered "heritage." Some o f the recent a t t e n t i o n can be
m a n a g e m e n t , i t also has dangers. A g o o d example o f
a t t r i b u t e d t o i m p o r t a n t changes t h a t have o c c u r r e d i n the
efforts t o adapt business m e t h o d s t o the c u l t u r a l field is
e n v i r o n m e n t i n w h i c h sites are m a n a g e d and the need t o
cost-benefit analysis. As one o f the m o s t frequently used
f i n d ways o f d o i n g an o l d task u n d e r n e w conditions.
tools i n business d e c i s i o n - m a k i n g processes, i t was applied
H e r i t a g e m a n a g e m e n t used t o be the c o n c e r n o f
early o n t o the heritage field. I n an a t t e m p t t o b r i n g her
small g r o u p s o f experts w h o defined and c o n t r o l l e d w h a t
itage i n t o the e c o n o m i c arena, the benefits o f heritage
c o n s t i t u t e d heritage a n d d e t e r m i n e d h o w i t was conserved
decisions w e r e j u s t i f i e d b y e c o n o m i c outcomes, such as
and i n t e r p r e t e d . C o n s e r v a t i o n o f physical resources was
g e n e r a t i o n o f e m p l o y m e n t o r increased revenues from vis
the c e n t r a l concern, since value was defined i n t e r m s o f
itors. H o w e v e r , i t was s o o n evident t h a t m o n e t a r y mea
m a t e r i a l " a u t h e n t i c i t y " and "integrity." A l l the o t h e r activ
surements never account for the t o t a l i t y o f either benefits
ities that o c c u r r e d at a site w e r e generally measured
o r costs o f heritage decisions. T h e r e are i n t a n g i b l e benefits
against the i m p a c t t h e y h a d o n the fabric. (This does n o t
o f p r e s e r v i n g heritage a n d costs i n its loss that cannot be
m e a n t h a t decisions t h a t h a d a negative i m p a c t w e r e never
assigned a m o n e t a r y o r quantitative value. T h i s has l e d the
taken; b u t t h e y w e r e seen i n i t i a l l y as "necessary c o m p r o
heritage field t o use these quantitative tools w i t h reserva
mises" and later as "bad decisions.")
tions, and m o r e i m p o r t a n t , t o seek m e a s u r e m e n t m e t h o d s
As a result o f years o f w o r k , the care a n d conser

v a t i o n o f materials have b e e n g r e a t l y advanced, a n d t o d a y
that are m o r e suitable t o c u l t u r a l resources.
Basically, the benefits o f heritage are defined b y
there are m a n y effectivealbeit often expensive a n d
the values t h a t society attributes t o i t . T h e r e are m a n y
c o m p l e x s o l u t i o n s . H o w e v e r , i n spite o f technical solu
sources o f i n f o r m a t i o n t h a t can be t a p p e d t o establish the
tions, the p r e s e r v a t i o n a n d m a n a g e m e n t o f heritage have
values o f a heritage place. H i s t o r i c a l records a n d research
b e c o m e m o r e difficult a n d c o m p l e x . A m o n g the factors
findings have b e e n used m o s t i n the past, and generally are
c o n t r i b u t i n g t o this c o m p l e x i t y are the expansion o f the
c o n s u l t e d first. T h e values t h a t generally emerge
concept a n d scope o f heritage, the t r e n d t o l o o k for solu
these sources are the t r a d i t i o n a l ones: historic, scientific,
tions i n m a r k e t approaches, a n d the g r o w i n g p a r t i c i p a t i o n
a n d aesthetic.
o f n e w g r o u p s i n heritage decisions.
T h e idea o f w h a t constitutes heritage has
from
M o r e recently, the v a r i o u s g r o u p s w h o have a

stake i n the place, be t h e y experts, politicians, ethnic o r
extended from i n d i v i d u a l b u i l d i n g s a n d m o n u m e n t s t o
religious g r o u p s , o r n e i g h b o r h o o d c o m m u n i t i e s , have
m u c h greater ensembles o f h u m a n creations, such as
been r e c o g n i z e d as an i m p o r t a n t source o f k n o w l e d g e
cities a n d landscapesmany n o w p r o t e c t e d as W o r l d H e r
a b o u t values. Social benefits such as ethnic dignity, eco
itage Sites. H e r i t a g e professionals have h a d t o m a k e the
n o m i c d e v e l o p m e n t , spiritual life, a n d social stability have
t r a n s i t i o n f r o m m a n a g i n g a n d c o n s e r v i n g one b u i l d i n g ,
started t o be recognized. N o d o u b t , m a n y g r o u p s a n d
w h e r e the p r o t e c t i o n o f the m o n u m e n t was the p r i n c i p a l
individuals derive e c o n o m i c benefits from the heritage.
PROJECT B A C K G R O U N D
Values a n d
A n d , as n e w values emerge, there are questions as t o
Significance
w h e t h e r the n e w ones are as "valuable" as the m o r e tradi

tional ones o r those that can be measured i n m o n e t a r y
terms. A greater interest i n heritage is a g o o d t h i n g
indeed, b u t i t also creates complex and sometimes difficult
management situations.
and structured operation of a heritage site with the

primary purpose of protecting the significance of
VALUES-BASED MANAGEMENT
the place as defined by designation criteria, govern
Heritage resource management can be defined simply as

"the w a y that those responsible choose t o use it, exploit it,
o r conserve i t . " However, as m o r e people feel responsibil
5
i t y for heritage, authorities can seldom make manage

m e n t choices solely o n their o w n . N e w interested groups
come w i t h opinions about the values o f their heritage and
h o w i t is t o be conserved and managedopinions that do
n o t always coincide w i t h the views o f experts. People have
come t o anticipate benefits from these resources, and
authorities m u s t take i n t o consideration these expecta
ment authorities or other owners, experts of various

stripes, and other citizens with legitimate interests
in the place.
"Value" and "significance" are terms used i n cul
tural management w i t h increasing frequency
b u t w i t h various definitions. T h e y are also cen
tral concepts t o values-based management and
tions. Sometimes, the values o f different groups are

incompatible and can result i n serious conflicts. Heritage
professionals have been l o o k i n g for ways t o b r i n g f o r t h
the views o f all stakeholders and t o resolve the conflicts
that inevitably arise. I n this changed e n v i r o n m e n t , deci
sions about heritage need t o be negotiated. T h e search is
o n for an approach that assures equity, avoiding those i n
w h i c h the values that prevail b e l o n g t o the g r o u p w i t h the
to the case studies o f this publication.
I n this project, "value" has been used t o m e a n

positive characteristics attributed t o heritage
objects and places b y legislation, governing
authorities, and other stakeholders. These
2
m o s t political power.
T h e approaches m o s t often favored are those
called "values-based," i n w h i c h the m a i n management
goal is the preservation o f the significance and values o f a
place. Understanding all the values attributed t o c u l t u r a l
resources is fundamental t o these methods. O n l y after this
happens can one consider h o w these values are t o be effec
tively protected. This systematic analysis o f values distin
guishes these approaches f r o m m o r e traditional ones,
w h i c h are m o r e likely t o focus o n resolving specific prob
lems or issues w i t h o u t f o r m a l consideration o f the i m p a c t
o f solutions o n the totality o f the site or its values, o r t o
focus o n the conservation o f the tangible resources.
Values-based site management is the coordinated
characteristics are w h a t make a heritage site

significant and are the reason w h y stakeholders
and authorities are interested i n it. T h e benefits
o f heritage are inextricably l i n k e d t o these
values.
"Significance" has been used t o m e a n the
overall i m p o r t a n c e o f a site, d e t e r m i n e d
These n e w management methods are seen t o

have a n u m b e r o f advantages. T h e y require awareness o f
all the values o f a site; they rely o n consultation and there
fore involve m o r e o f society i n the conservation process;
and they create a deeper understanding o f the resource.
M o s t importantly, they are seen as means o f achieving
sustainability for the heritage, b y p r o m o t i n g the participa
t h r o u g h an analysis o f the t o t a l i t y o f the val

ues a t t r i b u t e d t o it. Significance also reflects
the i m p o r t a n c e a place has w i t h respect t o one
or several o f its values, and i n r e l a t i o n t o o t h e r
comparable sites.
t i o n and i n v o l v e m e n t o f all those w h o care.
INTRODUCTION
Nevertheless, values-based m a n a g e m e n t is a n e w
approach w i t h m a n y aspects r e m a i n i n g t o be explored.
T h e r e p o r t o f a recent m e e t i n g o f experts brings o u t
Notes
1
See, f o r e x a m p l e , R. M a s o n a n d E . A v r a m i , " H e r i t a g e V a l u e s
a n d C h a l l e n g e s o f C o n s e r v a t i o n P l a n n i n g , " i n J. M . T e u t o n i c o
a n d G . P a l u m b o , Management Planningfor Archaeological Sites,

L o s A n g e l e s : T h e G e t t y C o n s e r v a t i o n I n s t i t u t e , 2000,13.
2
A s w i l l b e c o m e e v i d e n t i n t h e cases, e a c h o f t h e o r g a n i z a
advantages a n d challenges o f m a n a g i n g m u l t i p l e values

i n a p a r t i c i p a t o r y process w h e n i t says " [ T ] r a d i t i o n a l
absolute values are replaced b y relative, pluralistic value
systems, w h i c h i n t u r n a l l o w the b r i d g i n g o f large c u l t u r a l
differences. T h e m e t h o d s o f d e c i s i o n - m a k i n g and the
d e t e r m i n a t i o n o f policies have m o v e d away b o t h f r o m
t i o n s i n v o l v e d i n t h e s t u d y defines v a l u e s i n s l i g h t l y , b u t n o t
over-regulated, state-dominated process and the simplistic
significantly, different ways.
use o f o p t i m i z a t i o n m o d e l s . . . t o partially chaotic, n o t

foreseeable social processes." T h i s p u b l i c a t i o n attempts
7
t o shed n e w l i g h t o n some o f the less k n o w n aspects o f

these n e w approaches.
Values
O n e o f the m o s t i m p o r t a n t steps i n values-based manage
m e n t is the identification o f the values o f the place
t h r o u g h an elicitation process i n v o l v i n g stakeholders.
O n l y after this has been done, a n d i n c o n j u n c t i o n w i t h a
t h o r o u g h u n d e r s t a n d i n g o f the physical resources, is m a n
agement i n a p o s i t i o n t o establish the significance o f the
place a n d the appropriate policies and strategies.
I n reality, however, planners and managers almost
always deal w i t h sites w h o s e p r i m a r y significance has
been established earlier, usually at the t i m e o f designa
t i o n . T h e significance o f the sites i n c l u d e d i n this study
was established b y legislation o r as p a r t o f the designation
process. T h i s significance can be called different things:
"purpose o f the p a r k " i n the N a t i o n a l Park System; crite
ria for listing, i n the case o f H a d r i a n s Wall's W o r l d H e r
itage Site status; and " c o m m e m o r a t i v e i n t e n t " i n Parks
Canada. A l l heritage designation schemes are based o n
specific criteria that favor certain values. For example,
n a t i o n a l heritage systems consider o n l y those values
generally historic onesthat are i m p o r t a n t t o the n a t i o n
as a w h o l e . W o r l d H e r i t a g e l i s t i n g is based o n criteria that
consider so-called universal values. Official designations
address the values that m a k e sites significant at the
n a t i o n a l o r i n t e r n a t i o n a l level, b u t i n almost all instances
exclude o t h e r i m p o r t a n t values h e l d b y l e g i t i m a t e stake
holders. I n general, the h i g h e r the designation level, the
n a r r o w e r the values that are recognized as significant.
Since heritage places have a m u l t i p l i c i t y o f values, favor
i n g certain ones at the t i m e o f designation can create
interesting challenges for m a n a g e m e n t , a n d these issues
are explored i n each o f the case studies. A l l the agencies
i n v o l v e d i n this study use m a n a g e m e n t approaches that
a t t e m p t t o recognize and p r o t e c t values t h a t g o b e y o n d
managed. B u t , as stakeholders m u l t i p l y , heritage m a n
those identified b y designation o r l i s t i n g processes. T h e
agers face w i d e - r a n g i n g a n d sometimes c o n f l i c t i n g inter
ability o f each o r g a n i z a t i o n t o recognize a d d i t i o n a l values
ests. I n practice, i n v o l v i n g different g r o u p s i n the p l a n n i n g
varies, a n d depends o n t h e b r o a d e r legal a n d administra
a n d m a n a g e m e n t processes creates n e w challenges t o
tive f r a m e w o r k i n w h i c h the g o v e r n i n g a u t h o r i t y exists.
identify l e g i t i m a t e spokespersons, choose appropriate
I t is i m p o r t a n t t o recognize that i n all cases the

g o v e r n i n g agencies consider the p r o t e c t i o n o f the physical
e l i c i t a t i o n m e t h o d s , and consider all the values o f a place.

I n m o r e t r a d i t i o n a l approaches, authorities still
resources t o be p a r a m o u n t . As expressed b y English H e r
take i t u p o n themselves t o articulate w h a t they believe t o
itage: "significance involves a detailed u n d e r s t a n d i n g o f
be the v i e w s o f the different groups, o r selected i n f o r m a n t -
the historic fabric o f the site and h o w i t has changed
stakeholders are consulted i n the early stages o f the plan
t h r o u g h t i m e , and t h e n an assessment o f the v a l u e s b o t h
n i n g process. T h e i n v o l v e m e n t o f stakeholders i n the plan
historic a n d c o n t e m p o r a r y a s c r i b e d t o that fabric."
n i n g process o r the r e c o g n i t i o n o f t h e i r values is n o t a
guarantee t h a t they w i l l be i n v o l v e d i n m a n a g e m e n t deci
E L I C I T I N G VALUES
sions. I n m a n y instances, "experts" o r the authorities inter
G o v e r n i n g authorities deal differently w i t h the

i d e n t i f i c a t i o n o f stakeholders and the e l i c i t a t i o n o f values.
T h e i n v o l v e m e n t o f stakeholder g r o u p s can h a p p e n i n
several ways. I n m a n y instances, interested g r o u p s m a k e
t h e i r v i e w s k n o w n a n d d e m a n d i n v o l v e m e n t i n the deci
s i o n - m a k i n g process. Less frequently, authorities m a y
request the p a r t i c i p a t i o n o f l e g i t i m a t e stakeholders.
Often, e l i c i t i n g i n f o r m a t i o n a b o u t values is n o t a simple
process, a n d the r e c o g n i t i o n o f this challenge b y the her
itage field has l e d t o some i m p o r t a n t recent w o r k o n values-elicitation a n d assessment t o o l s .
T r a d i t i o n a l stakeholders o f c u l t u r a l sites have

b e e n professionals i n various disciplines, such as history,
archaeology, architecture, ecology, biology, a n d so f o r t h ,
w h o s i m u l t a n e o u s l y express a n d create value t h r o u g h
t h e i r research o r expert o p i n i o n s . E v e r y site has a g r o u p o f
people w h o are considered t o be the p r i n c i p a l stakehold
ers. O f t e n , t h e y are the ones w h o w e r e i n v o l v e d w i t h t h e
place w h e n its significance was first recognized. T h e i r
l o n g - t e r m interest a n d s t r o n g association w i t h the o r i g i n a l
values have often earned t h e m a p r i v i l e g e d relationship
w i t h the m a n a g i n g agencies, a n d t h e y are the "experts"
w h o are c o n s u l t e d i n m a j o r decisions.
M o r e recently, g r o u p s w h o value heritage sites
for different reasons have c o m e f o r t h a n d d e m a n d e d t o be
i n v o l v e d . These n e w stakeholder g r o u p s can range
from
c o m m u n i t i e s l i v i n g close by, t o g r o u p s w i t h t r a d i t i o n a l
ties o r interests i n p a r t i c u l a r aspects o f the site. N e w val
ues often surface as a result o f the i n v o l v e m e n t o f these
p r e t the values o f a w i d e s p e c t r u m o f stakeholders as

needed i n the m a n a g e m e n t process, o r consult o n l y those
groups w h o s e values they consider w o u l d be m o s t directly
affected b y a decision. T h i s is necessary since any manage
m e n t approach r e q u i r i n g constant consultations w i t h
m a n y g r o u p s w o u l d be extremely inefficient. I n this situa
t i o n , w h a t becomes i m p o r t a n t is that those w i t h the p o w e r
o f decision have sufficient i n t e r a c t i o n w i t h stakeholders so
t h a t they m a y t r u l y take t h e i r v i e w s i n t o consideration.
F i n d i n g the r i g h t spokespersons for a g r o u p is
critical. O n l y g r o u p s w i t h f o r m a l structures, such as tribes
or r e l i g i o u s sects, can easily designate representatives w h o
speak for the g r o u p as a w h o l e . I n all o t h e r instances,
authorities m u s t rely o n t h e i r k n o w l e d g e o f the g r o u p s o r
o n i n f o r m a n t s t o identify l e g i t i m a t e representatives. I f
those representing a g r o u p are n o t considered t o have the
a u t h o r i t y t o d o so, the i n f o r m a t i o n they p r o v i d e is l i k e l y
to be contested later o n .
H e r i t a g e places m i g h t be seen t o r e m a i n fairly
u n c h a n g e d over t i m e , b u t like stakeholder groups, values
also evolve a n d n e w ones emerge. T h e r e are m a n y ways i n
w h i c h a site changes, even after its designation as "her
itage" guarantees its preservation. A r c h a e o l o g i c a l w o r k
can b r i n g t o l i g h t a d d i t i o n a l resources; research a n d n e w
i n f o r m a t i o n can generate value for objects; events can
give n e w significance t o a place; and, alas, d e t e r i o r a t i o n
can d i m i n i s h values.
ECONOMIC VALUE
groups. B r o a d i n v o l v e m e n t o f p u b l i c g r o u p s provides
H e r i t a g e m a n a g e m e n t tends t o assess t h e c u l t u r a l a n d
l e g i t i m a c y t o the results o f the p l a n n i n g process a n d can
social values o f sites separately f r o m t h e i r e c o n o m i c
assist m a n a g e m e n t i n the i m p l e m e n t a t i o n o f the plans.
d i m e n s i o n . T h i s happens i n spite o f the fact t h a t i n m a n y
H o w e v e r , the i n v o l v e m e n t o f n e w g r o u p s is n o t always an
instances, e c o n o m i c value is significant a n d a large n u m
easy process. M o s t o f the values a r t i c u l a t e d i n a values-
ber o f individuals benefit from i t . T h i s s i t u a t i o n seems t o
e l i c i t a t i o n o r c o n s u l t a t i o n process are l e g i t i m a t e a n d
be created b y t w o separate factors: first, the field's t r a d i
m e r i t serious c o n s i d e r a t i o n and p r o t e c t i o n as the site is
t i o n a l aversion t o assigning "a p r i c e " t o heritage, insisting

INTRODUCTION
t h a t the value o f " h e r i t a g e " s o m e t h i n g t h a t is u n i q u e
conflict, and managers m u s t m a k e decisions t h a t favor
a n d irreplaceablecannot be measured i n m o n e t a r y
some b u t n o t others. T h i s involves setting priorities a m o n g
t e r m s ; a n d second, the real difficulties t h a t exist i n c o m
the values. Some priorities are m a n d a t e d b y law, usually
p a r i n g e c o n o m i c a n d c u l t u r a l values.
favoring those values that u p h o l d the heritage designation.
Considerable effort has b e e n devoted i n recent

years t o researching the e c o n o m i c value o f heritage a n d
Each o f the case studies i n this p u b l i c a t i o n dis

cusses conflicts t h a t have b e e n faced b y site authorities.
t o f i n d i n g the means o f i n t e g r a t i n g i t w i t h o t h e r values.
T h e source o f conflict can be t h e uses t h a t different stake
T h i s is an i m p o r t a n t p r o b l e m r e q u i r i n g s o l u t i o n . As her
holders w a n t t o m a k e o f the site i n accordance w i t h t h e i r
itage becomes u b i q u i t o u s , the a m o u n t o f resources
values, a n d others can surface w h e n the p r o t e c t i o n o f a
needed for its care becomes significant a n d has t o be con
certain value has a negative i m p a c t o n another.
sidered i n the c o n t e x t o f o t h e r possible investment. I n
T h e p r i o r i t y g i v e n t o c e r t a i n values o f t e n depends
order for this t o be done responsibly, there need t o be
o n the system t h a t labels c u l t u r a l heritage. I n W o r l d H e r
tools t h a t measure t h e f u l l value o f heritage, a n d n o t o n l y
itage Sites, for example, n a t i o n a l authorities are c o m m i t
monetary contributions.
ted t o p r o t e c t i n g those values t h a t m a k e t h e sites
Overemphasis o f any value can be d e t r i m e n t a l t o
significant at a universal level. T h e choice o f j u s t i f i c a t i o n
heritage, a n d this is m o s t t r u e o f e c o n o m i c considera
for i n s c r i p t i o n i n the list is left t o the c o u n t r y n o m i n a t i n g
tions. P l a y i n g u p t o the e c o n o m i c value o f heritage has
the site, b u t the site m u s t m e e t the c r i t e r i o n o r criteria
generally m e a n t increasing t h e n u m b e r o f visitors, gener
selected b e y o n d the local o r n a t i o n a l level. T h i s restric
ally tourists. V i s i t o r access a n d p r e s e r v a t i o n have always
t i o n , b y d e f i n i t i o n , w i l l n o t a l l o w all values o f a site t o be
b e e n r e c o g n i z e d as a p o t e n t i a l source o f conflict. M o r e
p a r t o f the W o r l d H e r i t a g e N o m i n a t i o n a n d affects all
recently, the e c o n o m i c benefits generated b y t o u r i s m have
o t h e r values n o t m e e t i n g the "universal" c r i t e r i o n .
c o m e t o be seen as t h e means o f assuring preservation.

W h i l e t o u r i s m can be either a positive o r a nega
tive factor i n c u l t u r a l sites, there are o t h e r " e c o n o m i c val
ues" t h a t are w i t h o u t a d o u b t d e t r i m e n t a l . Such a case is
w h e r e the c u l t u r a l resource sits o n l a n d t h a t has alternative
uses t h a t c o u l d generate significant e c o n o m i c benefits,
such as m i n i n g o r development. Unless the c u l t u r a l
resource enjoys a v e r y s t r o n g legal p r o t e c t i o n , this is a dan
gerous s i t u a t i o n because the realization o f the p o t e n t i a l
e c o n o m i c benefits c o u l d b r i n g about its destruction.
C o n s i d e r a t i o n o f e c o n o m i c values w i l l c o n t i n u e
t o g a i n i m p o r t a n c e i n the f u t u r e as heritage encompasses
larger areas a n d m o r e " w o r k i n g " e n v i r o n m e n t s , w i t h the
p r i v a t i z a t i o n trends, a n d the emphasis o n public-private
partnerships. M a n y i n the w o r l d o f heritage have already
n o t e d t h a t the n a r r o w v i e w o f c o n s e r v a t i o n as the care o f
the m a t e r i a l c u l t u r a l p r o p e r t y m u s t y i e l d t o a w i d e r con
cept o f c o n s e r v a t i o n as an e c o n o m i c a l l y sustainable prac
tice t h a t involves society at large.
P R O T E C T I O N OF VALUES
T H E IMPORTANCE OF FABRIC
W h i l e the values and significance o f a place o u g h t t o be the
touchstone o f m a n a g e m e n t decisions, day-to-day opera
tions are m o s t often concerned w i t h the use and care o f the
physical resources. T h u s , t o p r o t e c t values and significance,
i t is critical t o d e t e r m i n e the relationship o f values t o fabric.
I n its m o s t literal sense this can m e a n m a p p i n g the values
o n the features o f the site and answering questions such as,
w h i c h features capture the essence o f a g i v e n value? W h a t
about t h e m m u s t be guarded i n order t o retain that value? I f
a v i e w is seen t o be i m p o r t a n t t o the value o f the place,
w h a t are its essential elements? W h a t a m o u n t o f change is
possible w i t h o u t c o m p r o m i s i n g the value? Clear under
standing o f w h e r e values reside allows site managers t o
p r o t e c t w h a t makes a site significant. T h i s is s o m e w h a t dif
ferent from the rationale b e h i n d the p r o t e c t i o n o f the fabric
i n t r a d i t i o n a l conservation. I n that perspective, the o r i g i n a l
materials w e r e the o n l y essential elements o f significance
and sustained the concepts o f " i n t e g r i t y " and "authentic
ity." Values-based m a n a g e m e n t does n o t d i m i n i s h the value
T h e purpose o f k n o w i n g and understanding the ways a
o f the physical materials, b u t the conservation o f o t h e r ele
place is v a l u e d is t o p r o t e c t the significance a t t r i b u t e d t o i t
mentssome tangible, others notis also i m p o r t a n t , such
b y different groups i n society and create a sustainable
as the conservation o f landscape v i e w s and t r a d i t i o n a l uses.
preservation e n v i r o n m e n t . However, because c u l t u r a l her
Heritage agencies use different means t o deter
itage has a m u l t i t u d e o f values, i t is n o t always possible t o
m i n e w h e r e values reside. Traditionally, w o r k was con
p r o t e c t all o f t h e m equally. Values are sometimes i n
ducted as i f values resided i n any m a t e r i a l that was "authen-
tic" and any structure that h a d ' ' i n t e g r i t y " T h e values-based
means different things i n different cultures. I f "authenticity"
p l a n n i n g process calls for t w o stepsdocumentation o f the
is s e e n as a s u r r o g a t e f o r " v a l u e , " i t is easier t o u n d e r s t a n d

w h y i t c a n h a v e s u c h d i f f e r e n t m e a n i n g s across c u l t u r e s . F o r
site and assessment o f the conditions o f the resources
m o r e d e t a i l s o n a u t h e n t i c i t y , see K . E . L a r s e n , e d . , Nara Con
that provide a clear understanding o f the place, w h i c h is

fundamental t o the c o n n e c t i o n b e t w e e n values and fabric.
ference on Authenticity, Japan 1994, Paris: U N E S C O , I C O M O S

10
3c I C C R O M , 1995, a n d G . A r a o z a n d M . M a c L e a n , eds.,
Authenticity in the Conservation and Management of the Cultural

Conclusions
Heritage of the Americas, W a s h i n g t o n , D . C . : U S / I C O M O S &

T h e G e t t y C o n s e r v a t i o n I n s t i t u t e , 1999.
VALUES-BASED MANAGEMENT: A FRAMEWORK
4.
C a m b r i d g e : C a m b r i d g e U n i v e r s i t y Press, 2001.
FOR CONSERVATION
T h e e v o l u t i o n f r o m a v i s i o n o f i d e n t i f y i n g and c a r i n g for
5.
M . P e a r s o n a n d S. S u l l i v a n , Looking After Heritage Places:
The Basics of Heritage Planningfor Managers, Landowners,
specific resources t o one that focuses o n the benefits t o be
M e l b o u r n e : M e l b o u r n e U n i v e r s i t y Press, 1995,7.
o b t a i n e d from these activities has t r a n s f o r m e d the her

itage field i n recent years. Nevertheless, one o f the m a j o r
See, f o r e x a m p l e , D . T h r o s b y , Economics and Culture,
6.
Values-based h e r i t a g e m a n a g e m e n t has b e e n m o s t t h o r
oughly formalized i n Australia, w h e r e the B u r r a Charter
challenges i n this n e w v i s i o n has b e e n m a k i n g a clear
guides practitioners. Faced w i t h the technical a n d p h i l o s o p h i
statement o f the objectives t o be achieved a n d f i n d i n g
cal challenges p o s e d b y a b o r i g i n a l places, n o n a r c h i t e c t u r a l
ways o f m e a s u r i n g success.
sites, a n d v e r n a c u l a r h e r i t a g e , A u s t r a l i a n h e r i t a g e p r o f e s s i o n
M o n i t o r i n g continues t o be one o f the weakest
als f o u n d t h a t t h e e x i s t i n g g u i d a n c e i n t h e f i e l d f a i l e d t o p r o
areas o f professional heritage practice i n spite o f recent
v i d e a d e q u a t e l a n g u a g e a n d sensitivities. B u i l d i n g o n t h e basic
ethics a n d p r i n c i p l e s o f t h e V e n i c e C h a r t e r , t h e y d e v i s e d
efforts t o establish indicators o r n e w tools t o assist i n this
g u i d e l i n e s f o r h e r i t a g e m a n a g e m e n t a site-specific a p p r o a c h
task. M e m b e r s o f the Steering C o m m i t t e e o f the Case
t h a t calls f o r a n e x a m i n a t i o n o f t h e v a l u e s a s c r i b e d t o t h e
Study Project have suggested that values-based manage
p l a c e b y all its s t a k e h o l d e r s , a n d t h e precise a r t i c u l a t i o n o f
m e n t c o u l d p r o v i d e a n e w framework for heritage care.
w h a t c o n s t i t u t e s t h e site's p a r t i c u l a r significance. W h i l e i t is
T h i s w o u l d occur w h e n the p r o t e c t i o n a n d preservation
o f f i c i a l l y e n d o r s e d o n l y i n A u s t r a l i a , t h e B u r r a C h a r t e r has
o f significance are accepted as the p r i n c i p a l objective o f
b e c o m e an adaptable m o d e l for c u l t u r a l l y tailored approaches
m a n a g e m e n t , w h i c h i n t u r n w o u l d require t h a t heritage
t o site m a n a g e m e n t i n o t h e r p a r t s o f t h e w o r l d .
m a n a g e m e n t focus o n the i n t a n g i b l e values o f the place
7.
R . N a n d a , " G r o u p R e p o r t : V a l u e s a n d Society," i n N . S. B a e r
w h i l e at the same t i m e p r o t e c t i n g the physical and t a n g i
a n d F. Snickars, Rational Decision-Making in the Preservation of
ble e m b o d i m e n t o f those values. W i t h this n e w perspec
Cultural Property, B e r l i n : D a h l e m U n i v e r s i t y Press, 2001, 76.
tive, the effectiveness o f m a n a g e m e n t can be m o n i t o r e d
8.
s t r u c t i o n , a n d S p e c u l a t i v e R e c r e a t i o n o f A r c h a e o l o g i c a l Sites
by i d e n t i f y i n g appropriate indicators.
I n c l u d i n g R u i n s , " Feb. 2001: p a r a . 32.
T h e cases t h a t f o l l o w illustrate the reality o f

m a n y o f the issues discussed i n this i n t r o d u c t i o n . T h e
9.
r o n m e n t s affected specific issues.
F o r m o r e i n f o r m a t i o n , see M . de l a T o r r e , Assessing the Values

of Cultural Heritage Research Report 2002, L o s A n g e l e s : T h e
final chapter o f this p u b l i c a t i o n l o o k s across the f o u r cases

t o c o m p a r e h o w the local administrative and legal envi
English Heritage, "Policy Statement o n Restoration, Recon
Getty Conservation Institute.

10.
F o r a step-by-step e x p l a n a t i o n o f t h i s p r o c e s s , see M . D e m a s ,
"Planning for Conservation and M a n a g e m e n t o f Archaeo
l o g i c a l Sites: A V a l u e s - B a s e d A p p r o a c h , " i n J. M . T e u t o n i c o
a n d G . P a l u m b o , Management Planningfor Archaeological Sites,
Notes
1.
Los Angeles: T h e G e t t y C o n s e r v a t i o n Institute, 2000,27-54.
A l i s t o f c h a r t e r s a n d o t h e r i n t e r n a t i o n a l s t a n d a r d s is avail
a b l e o n t h e W e b sites o f t h e I n t e r n a t i o n a l C o u n c i l o n M o n u
m e n t s a n d Sites ( h t t p : / / w w w . i c o m o s . o r g ) ; a m o r e c o m p r e
h e n s i v e l i s t o f c u l t u r a l h e r i t a g e d o c u m e n t s is a v a i l a b l e at
h t t p : / / w w w . g e t t y . e d u / c o n s e r v a t i o n / resources.
2.
T h e rationale and m e t h o d o l o g y used i n the development o f

t h e cases are p r e s e n t e d i n t h e n e x t s e c t i o n o f t h i s p u b l i c a t i o n .
3.
T h e concept o f a u t h e n t i c i t y was the focus o f considerable

i n t e r n a t i o n a l d e b a t e i n r e c e n t years. T h e s e d e b a t e s b r o u g h t
i n t o e v i d e n c e t h a t " a u t h e n t i c i t y " is d i f f i c u l t t o d e f i n e a n d
NOTES
About the Case Studies: Purpose, Design, and Methods
T h e five partners i n v o l v e d i n this p r o j e c t h o p e t h a t these
culated. T h e w i l l i n g n e s s o f t h e U.S. N a t i o n a l Park Service,
case studies w i l l m o t i v a t e o t h e r g r o u p s o r agencies t o cre
Parks Canada, the A u s t r a l i a n H e r i t a g e C o m m i s s i o n , a n d
ate examples o f values-based site m a n a g e m e n t . As s o o n as
E n g l i s h H e r i t a g e t o c o m m i t t o a t i m e - a n d labor-intensive
the first case was m a d e available o n the W e b , t h e G C I
project like this was the final a n d essential factor, a l l o w i n g
received i n q u i r i e s as t o the m e t h o d o l o g y f o l l o w e d for its
the c r e a t i o n o f a g o o d w o r k i n g t e a m .
d e v e l o p m e n t . T h i s section explains the process t h a t was
F r o m the start the p r o j e c t h a d a didactic i n t e n t .
f o l l o w e d a n d the reasons for some o f the choices m a d e as
T h e objective set early o n b y the m e m b e r s o f the Steering
p a r t o f t h a t process.
C o m m i t t e e o f the Case Study Project was t o create cases
Representatives o f all five organizationsthe

A u s t r a l i a n H e r i t a g e C o m m i s s i o n , E n g l i s h H e r i t a g e , the
focused o n the m a n a g e m e n t o f values i n heritage sites

w i t h the i n t e n t i o n o f f i l l i n g a gap t h e y perceived i n the
G C I , Parks Canada, and the U.S. N a t i o n a l Park Service
c o n s e r v a t i o n a n d heritage m a n a g e m e n t l i t e r a t u r e
m e t i n Los Angeles i n February 2001 at the i n v i t a t i o n o f
between publications dealing w i t h guiding principles
the G C I a n d agreed t o w o r k t o g e t h e r t o create f o u r case
w h e t h e r i n the f o r m o f charters o r p o l i c y d o c u m e n t s
studies. I n this first m e e t i n g i t was established t h a t this
a n d those o f m a n a g e m e n t plans for specific sites. I t was
n e w l y c o n s t i t u t e d g r o u p w o u l d d e t e r m i n e the final objec
felt case studies focusing o n analyses o f the processes o f
tives o f the project, identify the sites, a n d generally steer
p l a n n i n g a n d m a n a g e m e n t for specific sites, t h e applica
the p r o j e c t as the cases w e r e developed.
t i o n o f principles a n d guidelines t o u n i q u e situations, a n d
W h i l e the idea o f the project was conceived at the

G C I , i t was o n l y w i t h the spirited guidance o f all the experi
enced and t h o u g h t f u l m e m b e r s o f the project t e a m that
this b r o a d idea was challenged and refined, b e c o m i n g the
case studies here: the systematic analyses o f actual p l a n n i n g
and m a n a g e m e n t efforts, o f the i n t e r p r e t a t i o n o f principles
and guidelines i n u n i q u e situations, and o f the i n t e n d e d and
u n i n t e n d e d outcomes o f operational decisions.
The P a r t n e r s h i p a n d P u r p o s e o f the Project
S E L E C T I O N OF PARTNERS
T h e choice o f partners for this p r o j e c t was i n large p a r t a
practical decision o f the G C I . For an effort w i t h n o real
precedent, the p o t e n t i a l for f i n d i n g a c o m m o n set o f goals
a n d objectives was l i k e l y t o be h i g h e r i n a c o l l a b o r a t i o n
a m o n g organizations w h o s e policies w e r e b r o a d l y k n o w n
a n d w e l l established. I t was also h e l p f u l t o start w i t h
organizations w i t h w h i c h the I n s t i t u t e h a d some p r i o r
association. A d d i t i o n a l l y , the use o f a c o m m o n language
w o u l d h e l p ease the process, g i v e n the n u m b e r o f d o c u
m e n t s t h a t w o u l d n e e d t o be f o u n d , read, w r i t t e n , a n d cir
10
the results o f o p e r a t i o n a l decisions w o u l d p r o v i d e m u c h needed i n f o r m a t i o n o n p l a n n i n g a n d m a n a g e m e n t .

AUDIENCES FOR, AND USES OF, T H E CASES
T h e organizations p a r t i c i p a t i n g i n this p r o j e c t share a
b e l i e f i n t h e p o t e n t i a l usefulness o f values-based manage
m e n t i n a b r o a d range o f i n t e r n a t i o n a l contexts. T h e cases
w e r e w r i t t e n for use b y people engaged i n the study
a n d / o r practice o f site m a n a g e m e n t , c o n s e r v a t i o n p l a n
n i n g , and h i s t o r i c preservation. T h e y are teachers,
researchers, a n d / o r site managers, o r s t u d y i n g t o d o one
or m o r e o f these things. T h e reader is assumed t o be
familiar w i t h heritage m a n a g e m e n t concepts a n d t e r m i
nology, i n t e r n a t i o n a l charters a n d guidance, a n d general
c o n s e r v a t i o n principles.
H e r i t a g e professionals i n the target audience m a y
represent m a n y disciplines, all o f w h i c h have a r o l e i n the
m a n a g e m e n t o f c u l t u r a l sites. I n fact, one o f the objec
tives o f the p r o j e c t is t o present values-based approaches
as a c o m m o n f r a m e w o r k t h a t can b r i n g t o g e t h e r a diverse
a n d b r o a d l y representative g r o u p o f people w h o m u s t
w o r k t o g e t h e r i n m a n a g i n g c u l t u r a l sites.
S E L E C T I O N OF SITES
O n e i m p o r t a n t task o f the Steering C o m m i t t e e was t o
identify one site t o be studied from each o f t h e f o u r partic
H o w d o m a n a g e m e n t decisions and actions on-site
affect the values?

Once the central questions w e r e established, the
i p a t i n g countries. W h i l e the final decision fell t o the
g r o u p focused o n the m o s t appropriate scope a n d t o n e for
respective officials from each o r g a n i z a t i o n , the g r o u p sug
the finished cases. T h e y agreed t h a t each site w o u l d be
gested the f o l l o w i n g criteria:
e x a m i n e d t h r o u g h its o w n lens, a n d the analysis w o u l d
Significance at a n a t i o n a l level
exclude any c o m p a r i s o n o f the relative success o f its m a n
N o t overly difficult t o travel t o o r visit
agement against an external o r a r b i t r a r y standard. Also,
Accessibility a n d completeness o f d o c u m e n t a t i o n
o n the site a n d its h i s t o r y
Access t o organizations a n d stakeholders
involved
each case w o u l d present o n l y t h a t site and n o t assume t h a t

the steward agency handles all its sites i n the same way.
G i v e n the h i g h level o f interest a n d experience o f the i n d i
viduals i n v o l v e d , i t r e m a i n e d a challenge t h r o u g h o u t the
A published management plan and information

o n the process used t o develop i t
D e m o n s t r a t e d c o n s u l t a t i o n w i t h stakeholders
S t r o n g interest o f site staff i n p a r t i c i p a t i n g i n this
project
project t o steer clear o f j u d g m e n t , w h i l e at the same t i m e

m a i n t a i n i n g a c o n s t r u c t i v e l y critical a n d r i g o r o u s t o n e .
I n order t o p r o v i d e a context for the discussion o f
values, policies, a n d actions, each case first needed t o
include a h i s t o r y o f the place as a heritage site. Second, i t
Examples o f conflicts a n d t h e i r resolutions

Evidence o f c o n s i d e r a t i o n o f the relationship o f
values t o fabric
Presence o f p o l i t i c a l sensitivities
S t r o n g didactic p o t e n t i a l
T h e sites selected w e r e Grosse l i e and the Irish
M e m o r i a l N a t i o n a l H i s t o r i c Site (Parks Canada), the
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l Park (U.S. N a t i o n a l
Park Service), P o r t A r t h u r H i s t o r i c Site ( T h e A u s t r a l i a n
H e r i t a g e C o m m i s s i o n a n d P o r t A r t h u r Site M a n a g e m e n t
A u t h o r i t y ) , a n d H a d r i a n s W a l l W o r l d H e r i t a g e Site (Eng
lish H e r i t a g e ) . Together, these sites represent a range o f
situations w i t h diverse stakeholders a n d values; interest
i n g differences a m o n g the m a n a g e m e n t plans i n t e r m s o f
date, style, a n d i m p l e m e n t a t i o n ; a n d an assortment o f
p l a n n i n g processes t h a t presented specific challenges w i t h
obvious p o t e n t i a l for use i n t e a c h i n g / l e a r n i n g contexts.
was i m p o r t a n t t o examine the administrative and legal

e n v i r o n m e n t w i t h i n w h i c h m a n a g e m e n t p l a n n i n g was
done, w i t h a v i e w t o w a r d h o w site authorities w e r e helped
or h i n d e r e d i n t h e i r tasks b y legislation, regulations, and
o t h e r policies. T h i r d , i t was crucial t o study the actual
place, i n order t o see the i m p a c t o f particular m a n a g e m e n t
decisions.
T H E PROCESS OF CREATING T H E CASES
A five-step process was used t o create each case study:
1. Research and document
collection
T h e case-writing t e a m first c o n d u c t e d a t h o r o u g h
r e v i e w o f the relevant heritage statutes and policies and
became familiar w i t h the h i s t o r y o f each site. T h e y con
d u c t e d a L E X I S - N E X I S search for relevant news articles
and o b t a i n e d copies of, a n d became familiar w i t h , o t h e r
p e r t i n e n t site-management d o c u m e n t s . T h e y w r o t e s u m
maries o f the key d o c u m e n t s a n d generated a t i m e line o f
The D e s i g n a n d M e t h o d s o f t h e Project
T H E I N T E L L E C T U A L CONSTRUCT
A t the first m e e t i n g i n 2001, the b r o a d outlines o f the p r o j
ect w e r e defined, a n d the Steering C o m m i t t e e m e m b e r s
began t o focus o n the issues a n d questions t h a t w o u l d
guide the research. W h i l e each successive m e e t i n g refined
the issues further, three central questions w e r e agreed t o
early o n :
H o w are t h e values associated w i t h the site
u n d e r s t o o d a n d articulated?
H o w are these values t a k e n i n t o account i n the
site's m a n a g e m e n t policies a n d strategies?
key dates i n the h i s t o r y o f the site. T h e g o v e r n i n g agency

a n d the staff o f the site p r o v i d e d p e r t i n e n t d o c u m e n t s ,
i n c l u d i n g the m a n a g e m e n t p l a n , w h i c h w e r e t h e n assem
b l e d w i t h o t h e r i n f o r m a t i o n a n d sent t o each m e m b e r o f
the t e a m i n advance o f the site visit.
2. Site visit
T h e entire p r o j e c t t e a m traveled t o the site. D u r
i n g the four- o r five-day visit, the g r o u p t o u r e d the site,
h e a r d staff presentations, a n d m e t w i t h site staff a n d rep
resentatives o f o t h e r agencies o r partners. These meetings
t o o k the f o r m o f g r o u p discussions as w e l l as one-on-one
i n t e r v i e w s . ( I n t w o cases, r e t u r n visits w e r e m a d e b y case
w r i t e r s for a d d i t i o n a l i n t e r v i e w s o r t o use the site
archives.)
A B O U T T H E CASE STUDIES
I I
O n the last half-day o f the visit, the p r o j e c t t e a m m e t t o
panies this p u b l i c a t i o n . A list o f these d o c u m e n t s is p r o
r e v i e w the m a i n issues that h a d surfaced d u r i n g the visit
v i d e d o n page iv.
and t o discuss h o w they m i g h t be addressed i n the case.
A l t h o u g h the f o u r cases f o l l o w the c o n t e n t out
3. Drafting
line established at the b e g i n n i n g o f the project, each one
F o u r people associated w i t h the G C I w e r e respon
has u n i q u e features c o r r e s p o n d i n g t o the issues f o u n d at
sible for w r i t i n g the cases. T h e decision t o assign responsi
each site. T h e studies are presented here as a set, b u t they
b i l i t y for the w r i t i n g t o these people instead o f employees
are also i n t e n d e d t o be used as separate units for analysis
o f the respective agencies associated w i t h the sites was
o r teaching.
based o n the need t o have consistency a m o n g the cases, t o

m a i n t a i n objectivity, and t o avoid b u r d e n i n g the partner
agencies w i t h additional w o r k .
Starting w i t h the o u t l i n e and the three questions
( n o t e d above) that h a d b e e n established, the case w r i t e r s
set t o w o r k . T h e y studied the official m a n a g e m e n t docu
m e n t s for the site, the legislation t h a t established the site,
p l a n n i n g guidelines used b y the o p e r a t i n g agencies, news
stories, professional j o u r n a l s , personal observations, his
t o r i c p h o t o g r a p h s , t h e i r o w n p h o t o g r a p h s , and t h e i r
extensive notes from the project t e a m meetings as w e l l as
field i n t e r v i e w s . As questions arose, the w r i t e r s consulted
w i t h one another, o t h e r p r o j e c t t e a m m e m b e r s , site staff,
and stakeholders for clarification.
4. Review of drafts
Each case was subjected t o at least three revisions
f o l l o w i n g reviews b y all m e m b e r s o f the project team, the
relevant site staff, and representatives o f the g o v e r n i n g
agency. T h e p u r p o s e for such extensive r e v i e w was t o
ensure t h a t the m a n y issues, interests, a n d sensitivities
w e r e presented i n an accurate a n d balanced way. Also,
w h i l e the final texts m i g h t reflect the perspectives o f the
project t e a m m o r e t h a n those o f the site staff, i t was v e r y
i m p o r t a n t t o e l i m i n a t e errors o f fact t h r o u g h this v e t t i n g .
I n each case, the g o v e r n i n g agency p r o v i d e d a sign-off o n
the study o f its site.
5. Production
Photographs w e r e chosen t o s u p p o r t the c o n t e n t
o f the case studies, and maps w e r e created t o o r i e n t the
reader. T h e texts w e r e g i v e n a final editorial r e v i e w and
made available i n P D F f o r m a t o n the GCFs W e b site.
I t is i m p o r t a n t t o r e m e m b e r t h a t all f o u r case
studies present situations t h a t w e r e already f o u n d d u r i n g
the t i m e o f the project, and some m a n a g e m e n t policies
and decisions have already started t o change i n the s h o r t
t i m e elapsed since its conclusion. T h e same holds t r u e o f
the guidance a n d m a n a g e m e n t d o c u m e n t s used at the
sites. Because o f the i m p o r t a n c e t h a t these d o c u m e n t s
played i n the d e v e l o p m e n t o f the cases, the m a i n ones for
each site are m a d e available i n the C D - R O M t h a t accom
12
Steering Committee of the Case Study Project

M e m b e r s ' affiliations are g i v e n as o f the t i m e o f the project.
Gordon Bennett
Margaret G. H.
MacLean
Director
Heritage Consultant
Policy and G o v e r n m e n t Relations
Los Angeles
N a t i o n a l H i s t o r i c Sites D i r e c t o r a t e
Parks Canada
Francis P.
McManamon
D e p a r t m e n t a l C o n s u l t i n g Archaeologist
Christina
Cameron
D i r e c t o r General
A r c h a e o l o g y and E t h n o g r a p h y
U.S. N a t i o n a l Park Service
Parks Canada
Randall
Mason
Assistant Professor and D i r e c t o r

Kate Clarke
Graduate P r o g r a m i n H i s t o r i c Preservation
Head o f Historic Environment Management
University o f M a r y l a n d
English Heritage
David
Myers
Marta de la Torre
Research Associate
Principal Project Specialist
Dwight
Francois
LeBlanc
Head
Pitcaithley
Chief Historian
U.S. N a t i o n a l Park Service
Field Projects
Christopher
Young
H e a d o f W o r l d H e r i t a g e and I n t e r n a t i o n a l Policy
Jane Lennon
English H e r i t a g e
Commissioner
Australian Heritage Commission
S T E E R I N G C O M M I T T E E OF T H E CASE S T U D Y PROJECT
13
PART TWO
The Case Studies
Grosse Tie and the Irish Memorial National Historic Site

Margaret G. H . MacLean and David Myers
About This Case Study
T h i s case study examines Grosse lie and the Irish M e m o
T h i s study o f the m a n a g e m e n t o f Grosse fie a n d
rial N a t i o n a l H i s t o r i c Site, w h i c h is managed b y Parks
the Irish M e m o r i a l N a t i o n a l H i s t o r i c Site draws o n exten
Canada. T h e small island o f Grosse lie is located i n the
sive c o n s u l t a t i o n a m o n g the m e m b e r s o f the project
St. Lawrence River, near the city o f Quebec. Largely
steering c o m m i t t e e , staff o f the site, and Parks Canada
because o f its strategic l o c a t i o n , i t began t o play an i m p o r
authorities. T h e authors have consulted m a n y reports,
tant role i n Canadian h i s t o r y i n 1832, f u n c t i o n i n g as a
plans, and s t a t u t o r y and guidance d o c u m e n t s r e l a t i n g t o
quarantine station that received n e w l y a r r i v i n g i m m i
this site, t o o t h e r Level I heritage sites i n Canada, and t o
grants from E u r o p e and the British Isles before they
Parks Canada i n general. T h e y have relied o n the staff o f
reached the m a i n l a n d . For 150 years i t was a place o f
the site and o f the r e g i o n a l Parks Canada office i n Quebec
intense activity; as o f 1984, i t was recognized as a place o f
for the i n t e r p r e t a t i o n o f this d o c u m e n t a t i o n and the
m e m o r y b y Parks Canada. Its m a n a g e m e n t is still evolv
rationale for m a n y decisions m a d e on-site.

T h e situation studied i n this case existed b e t w e e n
i n g , and the eventful first phases o f p l a n n i n g are still fresh

i n the m i n d s o f staff.
T h i s section consists o f a b r i e f o r i e n t a t i o n t o the
June 2001 and June 2002, w h e n the case was developed and
w r i t t e n . Parks Canada is a d y n a m i c organization, and cer
site itself and a p r e v i e w o f issues that are discussed i n the
tain changes have taken place i n the i n t e r i m , i n c l u d i n g p o l
rest o f the case study.
icy reviews and adjustments; also, certain activities have
T h e next section, " M a n a g e m e n t C o n t e x t and
been c o m p l e t e d on-site that h a d been i n the p l a n n i n g stages
H i s t o r y o f Grosse l i e / ' describes Parks Canada, i n c l u d i n g
d u r i n g the research for this study. T h e analysis focuses o n
its place i n the g o v e r n m e n t , its organization, a n d the
the situation as i t was, n o t o n the recent changes.

D i g i t a l reproductions o f the f o l l o w i n g supplemen
guidance i t provides for the resources u n d e r its steward

ship. T h i s b a c k g r o u n d is m e a n t t o aid the reader i n under
tary documents are contained w i t h i n the accompanying
standing the e v o l u t i o n o f Parks Canada and the c u r r e n t
C D - R O M : Grosse lie N a t i o n a l H i s t o r i c SiteDevelopment
e n v i r o n m e n t i n w h i c h decisions are made. T h i s section
Concept (1992); Grosse lie N a t i o n a l Historic SiteReport
continues w i t h a description o f the strategic l o c a t i o n o f
o n the Public C o n s u l t a t i o n P r o g r a m (1994); Part I I I (Cul
Grosse l i e , the h i s t o r y o f its use, and its e v o l u t i o n as a
t u r a l Resource M a n a g e m e n t Policy) o f Parks Canada G u i d
heritage site.
i n g Principles and Operational Policies (1994); C o m m e m o
T h e f o l l o w i n g section, " U n d e r s t a n d i n g and Pro
rative I n t e g r i t y Statement for Grosse lie and the Irish
t e c t i n g the Values o f Grosse l i e and the Irish M e m o r i a l
M e m o r i a l N a t i o n a l Historic Site (1998); Grosse lie and the
N a t i o n a l H i s t o r i c Site," focuses o n the identification and
Irish M e m o r i a l N a t i o n a l H i s t o r i c Site M a n a g e m e n t Plan
m a n a g e m e n t o f the values o f the site and takes as its
(2001); and Guide t o the Preparation o f C o m m e m o r a t i v e
structure the three questions h i g h l i g h t e d o n page 11: t h e
Integrity Statements (2002).
identification o f the values associated w i t h the site, t h e i r

Issues A d d r e s s e d i n This Case S t u d y
place i n m a n a g e m e n t policies and strategies, and the

i m p a c t that the actual m a n a g e m e n t o f the site is h a v i n g
o n the values.
T h e final section, "Conclusions," reviews t h e
p r i n c i p a l issues and questions that have emerged i n the
discussion o f this case. Some o f these m a y also be appli
cable t o o t h e r cases i n this series, as w e l l as t o manage
m e n t situations at o t h e r sites w i t h w h i c h the reader m a y
be familiar.
18
M a n y o f the challenges o f m a n a g i n g a heritage site desig

nated as h a v i n g n a t i o n a l significance are v e r y similar from
one site t o another: d e f i n i n g w h a t is i m p o r t a n t and deter
m i n i n g w h a t is fragile, w h a t requires v i g i l a n t p r o t e c t i o n ,
and w h a t m e r i t s i n t e r p r e t a t i o n for the p u b l i c o n w h o s e
b e h a l f i t is h e l d i n trust. T h e three questions t h a t anchor
the discussion testify t o these similarities. T h e difficulties
faced b y those w h o p l a n for and manage heritage sites
GROSSE I L E A N D T H E I R I S H M E M O R I A L N A T I O N A L H I S T O R I C SITE
quite often arise w h e n policies conflict o r w h e n the

balance a m o n g social, administrative, o r o t h e r c o m p o
nents is upset. These p r o b l e m s and t h e i r resolutions are
o p p o r t u n i t i e s o r " l e a r n i n g p o i n t s " f r o m w h i c h others
i n v o l v e d i n heritage site maintenance can learn.
I n this case study, f o u r m a i n l e a r n i n g points
emerge:
1. As practiced b y the planners and stewards o f
Grosse l i e and the Irish M e m o r i a l N a t i o n a l H i s t o r i c Site,
values-based site m a n a g e m e n t places significant w e i g h t
o n the role and voice o f stakeholders. I n i t i a l assumptions
about categories o f stakeholders differed s o m e w h a t
from
the actual stakeholders w h o stepped f o r w a r d . T h e process

was designed t o be flexible and inclusive, and i t expanded
and w o r k e d effectively, even i n ways that w e r e n o t always
anticipated.
2. W i t h regard t o a n a t i o n a l historic site like Grosse
lie, the m i s s i o n o f Parks Canada is t o foster appreciation
o f Canada's past b y p r o t e c t i n g and presenting the site for
the benefit, education, and e n j o y m e n t o f c u r r e n t and
future generations. T h e stewards are responsible for
focusing o n aspects o f the site that define its value t o the
n a t i o n . T h u s , local values and interest i n the site are sec
o n d a r y t o values that are m e a n i n g f u l at the n a t i o n a l level.
3. Parks Canada has developed t w o p i v o t a l con
c e p t s c o m m e m o r a t i v e i n t e n t and c o m m e m o r a t i v e
i n t e g r i t y t h a t define the p r i n c i p a l objectives for the p r o
t e c t i o n and presentation o f a national-level site and
describe i n detail w h a t constitutes the site i n its o p t i m a l
c o n d i t i o n . These t w o concepts serve t o anchor p o l i c y dis
cussions about objectives and l i m i t s o f acceptable change.
4. A t Grosse l i e , one o f the m o s t interesting chal
lenges i n the d e v e l o p m e n t o f the interpretive scheme is
h o w t o tell one o f the p r i n c i p a l stories o f the site w h e n
m u c h o f the historic fabric associated w i t h that story has
been destroyed and overlaid w i t h later additions. Interpre
tive p r o g r a m m i n g that enables visitors t o see past the
visual confusion created b y the existing physical condi
tions is difficult b u t necessary. Moreover, choices regard
i n g t r e a t m e n t i n t e r v e n t i o n s ( w h i c h affect the appearance
o f the b u i l t resources) m u s t balance historical accuracy
w i t h physical d u r a b i l i t y w h i l e m a i n t a i n i n g the hierarchy
o f messages m a n d a t e d b y authorities.
ABOUT THIS CASE STUDY 19
Management Context and History of Grosse lie
T h i s section looks first at Parks Canada, t h e agency
c o m m e m o r a t i o n , w h i c h recognizes n a t i o n a l l y significant
responsible for Grosse lie and the Irish M e m o r i a l , as
places, persons and events." I t comprises n o t o n l y t h e
an administrative e n t i t y and as a keeper o f heritage sites
historic sites b u t also t h e m o r e t h a n five h u n d r e d persons
o n b e h a l f o f the Canadian people. T h e o r g a n i z a t i o n
and three h u n d r e d events d e e m e d t o be o f n a t i o n a l
has evolved over t i m e , and its p u r p o s e and mission are
significance. Parks Canada has direct responsibility for
reflected i n the w a y i n w h i c h its holdings have been and
145 o f the 849 designated n a t i o n a l historic sites across
are v a l u e d and managed. F o l l o w i n g this account o f t h e
the country. T h e agency contributes t o t h e conservation
m a n a g e m e n t context is a fuller description o f Grosse lie
a n d / o r presentation o f an additional seventy-one sites
itself, o f its l o c a t i o n i n the St. Lawrence River, and o f h o w
t h r o u g h cost-sharing agreements.
i t came t o occupy a p o s i t i o n o f significance.
Parks Canada has a b r o a d range o f responsibili

ties i n the m a n a g e m e n t o f n a t i o n a l historic sites. These
Parks Canada
include developing policies for conserving and presenting
T h e Parks Canada A g e n c y was established o n i A p r i l 1999

b y an A c t o f the Parliament o f Canada.
T h e C h i e f Executive Office o f Parks Canada

reports directly t o t h e m i n i s t e r o f Canadian heritage. T h i s
m i n i s t e r "is responsible for n a t i o n a l policies and p r o g r a m s
relating t o broadcasting, c u l t u r a l industries, arts, heritage,
official languages, Canadian identity, Canadian symbols,
exchanges, m u l t i c u l t u r a l i s m , and sport."
Canada h a d b e e n p a r t o f three different departments dur

i n g the p e r i o d o f t i m e covered i n this case study. For each
o f these three departments, t h e official responsible for
Parks Canada was an assistant d e p u t y minister. F r o m 1974
t o 1979, Parks Canada was p a r t o f the D e p a r t m e n t o f
I n d i a n and N o r t h e r n Affairs; from 1979 t o 1993, i t was p a r t
o f the D e p a r t m e n t o f the E n v i r o n m e n t ; a n d from 1993 t o
1999, i t was p a r t o f the D e p a r t m e n t o f Canadian Heritage.
T h e m a n d a t e o f Parks Canada is "to p r o t e c t and
present n a t i o n a l l y significant examples o f Canada's natu
r a l and c u l t u r a l heritage, and foster p u b l i c understanding,
appreciation and e n j o y m e n t i n ways that ensure their eco
logical and c o m m e m o r a t i v e i n t e g r i t y for present and
3
T h e agency administers three systemsnational

parks, n a t i o n a l historic sites, and n a t i o n a l m a r i n e conser
v a t i o n areasand other p r o g r a m s concerned w i t h
Canada's heritage.
T h e n a t i o n a l historic sites directorate o f Parks
Canada "is responsible for Canada's p r o g r a m o f historical
20
t a t i o n . These activities often involve c o n s u l t a t i o n w i t h

interested m e m b e r s o f the Canadian public. T h e agency
also reviews existing heritage legislation i n order t o p r o
pose enhancements t o federal l a w for the p r o t e c t i o n o f
n a t i o n a l historic sites.
T h e federally appointed H i s t o r i c Sites and M o n u
P r i o r t o the passage o f the Agency Act, Parks
future generations."
each site's c u l t u r a l resources, for conserving n a t u r a l

resources, and for p r o v i d i n g infrastructure for p u b l i c visi
m e n t s B o a r d o f Canada ( H S M B C , o r "the Board") advises

the m i n i s t e r o f Canadian heritage o n various aspects
o f the w o r k o f the historic sites p r o g r a m . T h e B o a r d is
m a d e u p o f individuals representing all o f the Canadian
provinces and territories and some o f the n a t i o n a l her
itage agencies. T h e i r duties and functions are described
i n the Historic Sites and Monuments Act, and the B o a r d
develops its o w n policies and procedures, w h i c h are t h e n
approved b y the minister. W i t h the administrative s u p p o r t
o f staff from the n a t i o n a l historic sites p r o g r a m , t h e
B o a r d examines n e w site o r m o n u m e n t n o m i n a t i o n s ,
commissions research as needed, balances stakeholder
claims, and formulates r e c o m m e n d a t i o n s t o t h e m i n i s t e r
regarding designation and the m o s t appropriate f o r m o f
c o m m e m o r a t i o n o f a g i v e n subject.
T h e criteria for n a t i o n a l significance (as stated b y
the H S M B C ) are as follows:
A place m a y be designated o f n a t i o n a l historic
significance b y v i r t u e o f a direct association w i t h a n a t i o n
ally significant aspect o f Canadian history. A n archaeolog
ical site, structure, b u i l d i n g , g r o u p o f buildings, district, o r
Peopling the Land
Governing Canada
Canada's earliest inhabitants
P o l i t i c s a n d p o l i t i c a l processes
Migration and i m m i g r a t i o n
Government
Settlement
Security and law
People and the e n v i r o n m e n t
institutions
M i l i t a r y a n d defense
Canada and the w o r l d
Expressing
Intellectual and
Cultural Life
Developing Economies
H u n t i n g and gathering
L e a r n i n g a n d t h e arts
Figure
l.i. N a t i o n a l H i s t o r i c
Sites o f C a n a d a t h e m a t i c
framework.
Extraction and production
Architecture and design

Science
Building
Social and
Community Life
Sports a n d leisure
Philosophy and
spirituality
Community
Trade and commerce

Communications
and transportation
organizations
Religious institutions
Technology and
engineering
Labor
E d u c a t i o n a n d social
well-being
Social m o v e m e n t s
c u l t u r a l landscape o f p o t e n t i a l n a t i o n a l historic
G e o g r a p h y a n d H i s t o r y o f Grosse Tie
significance w i l l :
a. illustrate an exceptional creative achievement i n
BEFORE 1832
concept and design, technology, a n d / o r p l a n n i n g ,
H u m a n h a b i t a t i o n o n Grosse lie p r i o r t o European con
o r a significant stage i n the development o f
tact appears t o have been occasional and seasonal, proba
Canada; o r
b l y attracted b y the fish and game resources that still d r a w
b. illustrate o r symbolize i n w h o l e o r i n p a r t a cul
h u n t e r s t o this area. W h e n the Europeans arrived i n the

7
t u r a l t r a d i t i o n , a w a y o f life, o r ideas i m p o r t a n t i n
sixteenth century, they q u i c k l y recognized the value o f
the development o f Canada; o r
the St. Lawrence River, w h i c h gave their ships access w e l l
c. be m o s t explicitly and m e a n i n g f u l l y associated

o r identified w i t h persons w h o are d e e m e d o f
n a t i o n a l historic i m p o r t a n c e ; o r
d. be m o s t explicitly and m e a n i n g f u l l y associated
i n t o the N o r t h A m e r i c a n interior.
T h e first record o f a l a n d concession o n Grosse
lie dates t o 1662, o n l y fifty-four years after the city o f Que
bec was f o u n d e d o n the site o f the indigenous settlement
o r identified w i t h events that are d e e m e d o f
o f Stadacona. For the next 150 years, Grosse lie was used
n a t i o n a l historic i m p o r t a n c e .
p r i m a r i l y for h u n t i n g and fishing b y nonresident colonial
Since 1981 the w o r k o f the B o a r d i n the

identification o f subjects for c o m m e m o r a t i o n has also
landowners. B y 1816, records indicate the presence o f

homesteads and agriculture; f a r m i n g c o n t i n u e d o n Grosse
been g u i d e d b y the N a t i o n a l H i s t o r i c Sites o f Canada Sys
lie u n t i l 1832, w h e n the island was expropriated b y the
t e m Plan, w h i c h provides a f r a m e w o r k t o ensure that the
g o v e r n m e n t for use as an i m m i g r a n t quarantine station.
N a t i o n a l H i s t o r i c Sites System adequately represents each

o f the i m p o r t a n t historic themes i n Canadian history.
T h e system p l a n uses a thematic construct t o organize
history, classify sites, and p r o v i d e a comprehensive v i e w
o f Canadian history; the themes o f the c u r r e n t p l a n are
presented i n figure 1.1. Today, Grosse lie and the Irish
M e m o r i a l N a t i o n a l H i s t o r i c Site is associated w i t h the
"Peopling the L a n d " t h e m e , u n d e r the subtheme " M i g r a
t i o n and i m m i g r a t i o n / '
1832 TO 1937
After the end o f the N a p o l e o n i c wars i n 1815, e m i g r a t i o n
t o N o r t h A m e r i c a from Ireland, Scotland, and E n g l a n d
surged. B y 1830, Quebec h a d b e c o m e b y far Canada's
largest i m m i g r a n t p o r t , accepting some t h i r t y thousand
entrants annually, t w o - t h i r d s o f w h o m came from Ireland.
W i t h these n e w arrivals came the cholera epidemic that
was t h e n r a g i n g i n the British Isles; about t h i r t y - e i g h t
h u n d r e d people died o f cholera i n 1832 i n Quebec City,
M A N A G E M E N T C O N T E X T A N D HISTORY
21
Figure
1.2. M a p o f t h e r e g i o n . T h i s m a p s h o w s t h e C a n a d i a n\
M a r i t i m e P r o v i n c e s , j u s t n o r t h o f t h e N e w E n g l a n d states, a n d
t h e w a t e r w a y t h a t leads f r o m t h e N o r t h A t l a n t i c O c e a n i n t o t h e
G u l f o f St. L a w r e n c e a n d c o n t i n u e s as t h e St. L a w r e n c e R i v e r p a s t
Q u e b e c a n d i n t o t h e i n t e r i o r . G r o s s e l i e , s h o w n o n t h e m a p , sits at a
t r a n s i t i o n a l p o s i t i o n i n t h e river w h e r e f r e s h w a t e r m e e t s s e a w a t e r ; i t is
therefore h o m e t o a distinctive array o f flora and fauna. T h e t o w n s
s h o w n o n t h e s o u t h s h o r e are t h o s e from w h i c h f e r r y s e r v i c e c a r r i e s
visitors t o the island.
and h a l f t h a t n u m b e r d i e d i n M o n t r e a l . W i t h this, and
grants t o Quebec C i t y r e m a i n e d b e t w e e n 25,000 and
w i t h t h e i r experience w i t h outbreaks o f t y p h u s a m o n g
26,800, they w e r e c o m i n g from different places. D u r i n g
i m m i g r a n t s i n the 1820s, the B r i t i s h authorities recognized
this p e r i o d the Irish became the m i n o r i t y ; E n g l i s h e m i
the need for an i m m i g r a n t quarantine station for the p o r t
grants w e r e m o s t n u m e r o u s , and m o r e Scandinavians and
o f Quebec t o check the spread o f disease. T h e y chose
o t h e r w e s t e r n Europeans w e r e j o i n i n g t h e m . T h e y all
Grosse l i e for its size, its harbor, its p r o x i m i t y t o Quebec
w e r e leaving considerably less-desperate c o n d i t i o n s i n
City, a n d its isolated p o s i t i o n i n the river.

T h e Great Famine r a k e d over I r e l a n d from 1845 t o
E u r o p e and Great B r i t a i n . T h e y arrived i n Canada i n

m u c h better health, h a v i n g been far better a c c o m m o d a t e d
1849; d u r i n g its peak years o f 1847-48, a b o u t 100,000 E u r o
and fed o n b o a r d t h a n earlier i m m i g r a n t s . T h e replace
pean e m i g r a n t s came t o Quebec City, m o s t o f t h e m Irish.
m e n t o f sailing vessels w i t h steamships cut the crossing
Already weakened by malnutrition, m a n y contracted
t i m e from Great B r i t a i n t o t w e l v e daysone-quarter o f
t y p h u s and dysentery d u r i n g the six-week sea voyage.
the previous passage. A n d , t o w a r d the e n d o f the nine
Waves o f gravely i l l passengers o v e r w h e l m e d the quaran
t e e n t h century, St. J o h n and Halifax, better connected t o
tine station s staff and facilitiesthere w e r e o n l y 200 beds
the c o u n t r y ' s i n t e r i o r b y r a i l r o a d , began t o c o m p e t e w i t h
for sick i m m i g r a n t s and a b o u t 800 for the healthy; yet, b y
Quebec as i m m i g r a t i o n ports.
D u r i n g the e c o n o m i c b o o m from 1900 t o 1915,
the spring o f 1847, m o r e t h a n 12,000 individuals w e r e

detained at Grosse l i e .
C o l o n i a l authorities scrambled t o b u i l d hospitals
annual arrivals t o Quebec surged t o 92,000. W h i l e e m i

grants from Great B r i t a i n still d o m i n a t e d and m a n y still
and shelters. W h e n the station s facilities w e r e finally ade
came from Scandinavia and w e s t e r n E u r o p e , j o i n i n g t h e m
quate, the e n d o f the sailing season stopped the seemingly
n o w w e r e people from the M i d d l e East, Australia, N o r t h
endless stream o f i m m i g r a n t ships. D u r i n g the course o f
and S o u t h Africa, Asia, and the Caribbean.

D u r i n g W o r l d W a r I a n d c o n t i n u i n g t h r o u g h the
1847, m o r e t h a n 5,000 i m m i g r a n t s h a d perished at sea, and

5,424 m o r e h a d d i e d and w e r e b u r i e d o n Grosse lie. T h o u
Depression, i m m i g r a t i o n n u m b e r s d r o p p e d markedly.
sands m o r e perished i n Quebec, M o n t r e a l , and o t h e r cities
B e t w e e n 1932 a n d 1941, Quebec received o n l y a q u a r t e r o f
i n eastern Canada.
After a less-devastating epidemic o f cholera h i t i n
those a r r i v i n g i n Canada, reflecting the o p e n i n g o f n e w

p o r t s o f entry, some o n the Pacific coast. I n February 1937,
1854, the f u n c t i o n o f Grosse l i e began t o change. F r o m
the Canadian g o v e r n m e n t finally closed the Grosse l i e
1861 t o 1900, w h i l e the average annual n u m b e r o f i m m i
quarantine station; i t was n o l o n g e r needed.
22
Figure
1.3. M a p o f G r o s s e l i e . G r o s s e l i e
is o n e o f t h e t w e n t y - o n e islands i n t h e
I l e s - a u x - G r u e s a r c h i p e l a g o i n t h e St.
L a w r e n c e River, a b o u t 48 k i l o m e t e r s
(30 m i l e s ) n o r t h e a s t ( d o w n s t r e a m )
from
t h e c i t y o f Q u e b e c . T h e i s l a n d is 2.5 k i l o
m e t e r s {1V1 m i l e s ) l o n g a n d 800 m e t e r s
( r o u g h l y h a l f a m i l e ) w i d e at its b r o a d e s t
p o i n t , w i t h a l a n d surface o f a p p r o x i
m a t e l y 185 hectares (457 acres). T h e
s h o r e l i n e i n c l u d e s beaches (at C h o l e r a
B a y ) , cliffs ( o n t h e s o u t h e r n edge o f t h e
W e s t e r n a n d C e n t r a l Sectors), t i d a l w e t
lands ( H o s p i t a l Bay), a n d tide pools. Pine
trees a n d o t h e r w o o d l a n d p l a n t s c o v e r
m u c h o f the island n o r t h o f the gravel
r o a d . Access t o t h e i s l a n d is l a r g e l y b y
f e r r y from t h e s o u t h s h o r e o f t h e St.
L a w r e n c e R i v e r ; staff a n d v i s i t o r s are fer
r i e d t o t h e w h a r f , w h i c h is l o c a t e d at t h e
n o r t h e a s t e n d o f t h e W e s t e r n Sector.
( N u m b e r e d a n d n a m e d features are dis
cussed i n t h e t e x t a n d / o r s h o w n i n
photographs.)
1897: T H E FIRST PILGRIMAGE
1937 TO 1988
D u r i n g W o r l d W a r I I , u n d e r the Canadian D e p a r t m e n t o f
Grosse l i e was first recognized as a place o f significance i n
N a t i o n a l Defense, Grosse lie became the W a r Disease
1897, w h e n a g r o u p from the A n c i e n t O r d e r o f H i b e r n i
C o n t r o l Station. T a k i n g advantage o f the site's i s o l a t i o n ,
ans, an Irish C a t h o l i c fraternal o r g a n i z a t i o n w h o s e m e m
scientists e x p e r i m e n t e d w i t h viruses a n d vaccines t o pre
bers w e r e Canadians o f Irish descent, visited Grosse l i e t o
v e n t the deliberate i n t r o d u c t i o n o f a n i m a l diseases t o
c o m m e m o r a t e the fiftieth anniversary o f the t e r r i b l e year
N o r t h A m e r i c a . A l t h o u g h this w o r k ended i n 1945, similar
o f 1847. I t is i m p o r t a n t t o n o t e that the Great Famine o f
scientific w o r k was p e r f o r m e d there from 1951 t o 1956 i n
the mid-i840s i n I r e l a n d was n o t a simple n a t u r a l disaster;
response t o the K o r e a n W a r and the C o l d War.
rather, i t was a tragic coincidence o f failed a g r i c u l t u r a l

m e t h o d s , harsh social policies, u n r e l e n t i n g poverty, and
I n 1957 a n i m a l disease research o n the island

shifted t o the Canadian D e p a r t m e n t o f A g r i c u l t u r e ,
inadequate m e d i c a l practices, the legacies o f w h i c h still
w h o s e w o r k c o n t i n u e d there u n t i l 1988. I n 1965 A g r i c u l
h a u n t English-Irish relations. A t o n l y fifty years after the
t u r e Canada's contagious disease d i v i s i o n also started
fact, some w h o m a d e the H i b e r n i a n p i l g r i m a g e t o Grosse
u s i n g the island as a quarantine station for i m p o r t e d live
lie i n 1897 w e r e themselves l i k e l y t o have b e e n survivors o f
stock. A l t h o u g h there have b e e n n o a n i m a l quarantine
t h a t t r a u m a t i c t i m e ; others m a y have b e e n relatives o r
activities o n Grosse l i e since 1986, lands a n d facilities used
friends o f those w h o perished. For t h e m a n d for m a n y
b y A g r i c u l t u r e Canada are still subject t o sectoral agree
others, Grosse l i e h a d the p o w e r f u l a n d p o i g n a n t q u a l i t y
m e n t s b e t w e e n Parks Canada a n d A g r i c u l t u r e Canada.
o f a c e m e t e r y o f innocents.
Grosse lie Becomes a H e r i t a g e Site
1909: DEDICATION OF T H E C E L T I C CROSS

I n 1909 the A n c i e n t O r d e r o f H i b e r n i a n s dedicated
T h i s section traces the e v o l u t i o n o f the status o f Grosse
a Celtic Cross o n a h i g h p r o m o n t o r y o n the s o u t h w e s t e r n
lie as a heritage site a n d discusses h o w ideas and c o n t r i b u
e n d o f the island as a m e m o r i a l t o the lost i m m i g r a n t s .
tions l e a d i n g t o an u n d e r s t a n d i n g o f the site's values a n d
Inscriptions o n the base o f the m o n u m e n t testify p a r t i c u
significance e m e r g e d d u r i n g this process a n d coalesced.
larly t o residual bitterness a b o u t the c o n d i t i o n s that forced
23
m e n d a t i o n b y the minister, Grosse l i e became a n a t i o n a l

historic site. T h e plaque, u n v e i l e d i n 1980, b o r e the f o l l o w
ing inscription:
11
I n 1832, a q u a r a n t i n e s t a t i o n w a s e s t a b l i s h e d h e r e o n G r o s s e
lie i n an a t t e m p t t o prevent the i n t r o d u c t i o n o f cholera f r o m
E u r o p e . T h e s t a t i o n s m e d i c a l a n d q u a r a n t i n e facilities
p r o v e d i n a d e q u a t e i n t h e face o f t h e c h o l e r a a n d t y p h u s
w h i c h p e r i o d i c a l l y a c c o m p a n i e d i m m i g r a n t ships; conse
quently, epidemics spread t h r o u g h the Canadas o n a n u m b e r
o f occasions i n the course o f the n i n e t e e n t h century. O r i g i
n a l l y d e s i g n e d as a t e m p o r a r y e s t a b l i s h m e n t u n d e r m i l i t a r y
c o m m a n d , t h e s t a t i o n w a s l a t e r o p e r a t e d as a r e g u l a r s e r v i c e
b y t h e C a n a d i a n g o v e r n m e n t u n t i l s u p e r s e d e d i n 1937 b y
n e w f a c i l i t i e s at Q u e b e c .
1 2
1981: NATIONAL HISTORIC SITES OF

Figure
CANADA SYSTEM PLAN
1.4. T h e C e l t i c C r o s s . E r e c t e d i n 1909 b y t h e A n c i e n t O r d e r o f
H i b e r n i a n s t o c o m m e m o r a t e t h e I r i s h e m i g r a t i o n , i t stands o n a s o u t h -
W i t h the i n t r o d u c t i o n o f the N a t i o n a l H i s t o r i c Sites o f
f a c i n g c l i f f i n t h e W e s t e r n S e c t o r o f G r o s s e l i e ; c u t from I r i s h s t o n e , i t
Canada System Plan, all o f the n a t i o n a l historic sites w e r e
is a b o u t 15 m e t e r s (49 feet) h i g h .
concatenated i n t o a t h e m a t i c
framework,
described ear
l i e r . B y categorizing sites according t o t h e m e s a n d sub13
the f l i g h t o f so m a n y Irish t o the N e w W o r l d . T h e E n g l i s h

i n s c r i p t i o n reads, "Sacred t o the m e m o r y o f thousands o f
Irish e m i g r a n t s w h o , t o preserve the faith, suffered
h u n g e r a n d exile i n 1847-48, a n d stricken w i t h fever, ended
here t h e i r s o r r o w f u l p i l g r i m a g e . " T h e t r a n s l a t i o n o f the
Gaelic i n s c r i p t i o n reads rather differently: " C h i l d r e n o f
themes, the system p l a n aids the H S M B C a n d Parks

Canada t o see the strengths a n d gaps i n the c o m m e m o r a
tive p r o g r a m s t h e y oversee a n d t o i d e n t i f y needs o r
o p p o r t u n i t i e s for e d u c a t i o n p r o g r a m s o r strategic
planning.
1984: T H E BOARD REAFFIRMS T H E SIGNIFICANCE
the Gael d i e d i n the thousands o n this island, h a v i n g fled
OF GROSSE I L E IN CANADIAN HISTORY
f r o m the laws o f f o r e i g n tyrants a n d artificial famine i n

the years 1847-48. God's blessing o n t h e m . L e t this m o n u
I n 1983 a n d 1984, the H S M B C discussed at l e n g t h the
m e n t be a t o k e n t o t h e i r n a m e a n d h o n o r from the Gaels
t h e m e o f i m m i g r a t i o n . T h e m i n u t e s o f its meetings
o f A m e r i c a . G o d Save Ireland."
r e c o r d t h a t "the B o a r d once m o r e stated its o p i n i o n t h a t
F r o m 1909 o n , the A n c i e n t O r d e r o f H i b e r n i a n s
o r g a n i z e d a nearly annual p i l g r i m a g e from Quebec C i t y
the t h e m e o f I m m i g r a t i o n is a m o n g the m o s t significant

i n Canadian history." I n the same m e e t i n g , the B o a r d
t o the great stone cross, a t r a d i t i o n t h a t continues t o the
"reaffirmed its statement o f June 1974 t h a t the Q u a r a n t i n e
p r e s e n t . T o g o there as a p i l g r i m was t o retrace the steps
Stations at Grosse l i e a n d Partridge Island are o f n a t i o n a l
10
o f one's forebears a n d t o acknowledge the courage a n d
historic significance" a n d r e c o m m e n d e d t h a t " i n l i g h t o f
pathos o f the i m m i g r a n t s ' j o u r n e y s . T h e isolated l o c a t i o n
the n u m b e r a n d q u a l i t y o f the i n s i t u resources o n Grosse
o f the island a n d its m i n i m a l d e v e l o p m e n t easily evoked
lie related t o the t h e m e o f i m m i g r a t i o n , the M i n i s t e r
earlier times a n d surely added t o the e m o t i o n a l p o w e r o f
s h o u l d consider a c q u i r i n g the island, o r p o r t i o n s o f i t ,
the experience.
a n d there d e v e l o p i n g a n a t i o n a l historic p a r k . "
14
1988: GROSSE I L E COMES UNDER
1974: HSMBC RECOMMENDS NATIONAL
T H E JURISDICTION OF PARKS CANADA
HISTORIC SITE DESIGNATION

I n 1974, l o n g after Grosse l i e h a d finished its w o r k as an
F o l l o w i n g the r e c o m m e n d a t i o n s o f the Board, the envi
i m m i g r a n t q u a r a n t i n e station a n d h a d seen service as
r o n m e n t m i n i s t e r ( t h e n responsible for Parks Canada)
a b i o l o g i c a l testing station, an a g r i c u l t u r a l research
reached an u n d e r s t a n d i n g w i t h the a g r i c u l t u r e minister,
station, a n d a livestock q u a r a n t i n e station, the H S M B C
a n d i n A u g u s t 1988 a f o r m a l a g r e e m e n t was reached
m a d e its r e c o m m e n d a t i o n t o place a c o m m e m o r a t i v e
b e t w e e n the t w o d e p a r t m e n t s t o transfer the b u i l d i n g s
plaque o n Grosse l i e . W i t h the acceptance o f this r e c o m
a n d sites o f h i s t o r i c a l interest t o Parks C a n a d a .
24
15
Figure
T w o o f t h e f e r r i e s t h a t o p e r a t e o u t o f t h e p r i v a t e m a r i n a at
B e r t h i e r - s u r - M e r . T h e o n e o n t h e l e f t c a n c a r r y 140 passengers; t h e o n e
o n t h e r i g h t , 50.
Figure
1.6. A v i e w t o w a r d t h e east, s h o w i n g t h e D i s i n f e c t i o n B u i l d i n g
and the Carpentry and P l u m b i n g Building ( n o w the Visitor Center and

g i f t s h o p ) at t h e l e f t . B u i l t i n 1892 o n t h e n o r t h e n d o f t h e w e s t e r n
wharf, the Disinfection Building housed three disinfection chambers
a n d , e v e n t u a l l y , s h o w e r s . T h e s o u t h w i n g w a s e r e c t e d i n 1915; t h e
n o r t h , i n 1927. T h e D i s i n f e c t i o n B u i l d i n g has b e e n r e s t o r e d t o its 1927
a p p e a r a n c e ; i t is t h e f i r s t p l a c e m o d e r n v i s i t o r s e n t e r .
B e g i n n i n g i n the late 1980s and extending i n t o
q u o t e d i n U.S. dollars). T h e ferry service from M o n t
the mid-1990s, the p e r i o d covered b y p l a n n i n g for the m a n
m a g n y m a i n l y transports site staff. T h e j o u r n e y takes
agement o f Grosse lie, there were significant p o l i c y
some forty-five minutes, depending o n the tides. T w o
changes and related developments i n Parks Canada. These
r o u n d - t r i p ferries depart from this small dockearly each
i n c l u d e d the development and approval o f the c u l t u r a l
m o r n i n g and i n the late afternoon.
resource m a n a g e m e n t p o l i c y and o f c o m m e m o r a t i v e
integrity, b o t h o f w h i c h w e r e m u c h m o r e explicitly values-
Ferries from the p o r t o f Quebec are m a r k e t e d as

cruises offering sightseeing along the river rather t h a n as
based t h a n Parks Canada's previous p o l i c y documents.
t r a n s p o r t a t i o n exclusively t o Grosse lie. T h e y are available
W h i l e i t was a challenge for people involved i n p l a n n i n g
b y reservation only. T h e boat t r i p takes approximately
(and management) t o integrate the latest t h i n k i n g , there
three h o u r s each way, thus a l l o w i n g visitors t o stay at the
was, overall, surprisingly little lag b e t w e e n n e w p o l i c y
site for about three hours. Tickets for this service from
direction and other activities.
Quebec are about $48 for adults and about $24 for children.
U p o n arrival at the w h a r f o n the s o u t h shore o f
Facilities a n d Services T o d a y
Grosse l i e and the Irish M e m o r i a l N a t i o n a l H i s t o r i c Site
is o p e n t o the p u b l i c M a y t h r o u g h October. H i g h season
for v i s i t a t i o n generally lasts from mid-June t h r o u g h the
b e g i n n i n g o f September. A l l visitors t o the island arrive
b y private ferry service from either the s o u t h shore o f the
St. Lawrence o r from the p o r t o f Quebec. Ferries from the
s o u t h shore depart from the p o r t s o f Berthier-sur-Mer and
M o n t m a g n y (fig. 1.2). M o s t visitors depart from Berthiersur-Mer for the t h i r t y - m i n u t e boat ride t o the island. T h i s
schedule allows visitors t o stay at the site f r o m t w o t o four
hours. I n 2001, adult tickets from Berthier-sur-Mer w e r e
about $34 each, and a child's ticket (ages 6-12) was about
$17. A d m i s s i o n t o the site is i n c l u d e d i n ticket prices (all
16
Grosse l i e , w h i c h is situated i n the island's W e s t e r n Sector,

visitors are m e t b y t r a i n e d guides. G u i d e d tours are
d i v i d e d i n t o three parts. T h e y b e g i n w i t h a visit t o the
Disinfection B u i l d i n g ( l o c a t i o n 8, fig. 1.3), w h e r e several
exhibits explain the h i s t o r y and w o r k i n g s o f the quaran
tine station. T h i s b u i l d i n g was fitted w i t h b a t h i n g facilities
for n e w arrivals and w i t h a steam chamber for disinfecting
their c l o t h i n g and carried items.
Visitors can t h e n take a sixty-minute h i k e a r o u n d
the W e s t e r n Sector, t o see the hotels and o t h e r facilities
(locations 2-6, fig. 1.3), the Celtic Cross ( l o c a t i o n 1, f i g .
1.4), and the Irish M e m o r i a l at the Irish Cemetery. T h i s
l o o p takes the visitors back a r o u n d t o a p o i n t at the head
o f H o s p i t a l Bay, w h e r e a t r a m takes visitors o u t t o the
C e n t r a l and Eastern Sectors.
M A N A G E M E N T C O N T E X TA N D HISTORY
25
Figure
1.7. T h e C a t h o l i c P r e s b y t e r y a n d t h e c h a p e l n e x t d o o r , b u i l t i n
Figure
1.8. A s m a l l e x c a v a t i o n i n t h e b a c k o f t h e C a t h o l i c P r e s b y t e r y
1848 a n d 1874, r e s p e c t i v e l y T h e p r e s b y t e r y w a s r e m o d e l e d i n 1913,
O p e n e d i n a u t u m n 2001 as p a r t o f a w a t e r p i p i n g p r o j e c t , t h e d i g
w h e n a w r a p a r o u n d p o r c h was removed and a second story was
revealed w o o d e n piers o n w h i c h a small o u t b u i l d i n g stood. W h i l e n o
expanded. I n the backyard o f this structure, archaeological w o r k ,
traces o f the b u i l d i n g r e m a i n e d above g r o u n d , this f i n d substantiates
s h o w n i n f i g u r e 1.8, w a s d o n e i n s u m m e r 2001.
records and photographs o f the t i m e .
Figure
T h i s a p p r o x i m a t e l y s i x t y - m i n u t e t o u r includes
1.9. T h e P u b l i c W o r k s
O f f i c e r s H o u s e ( l o c a t i o n 12, f i g .
a stop at the Catholic Chapel and Presbytery (locations 17
1.3). I t w a s a n i m p o r t a n t b u i l d
and 18, fig. 1.7) and the Lazaretto ( l o c a t i o n 19, fig. 1.3),
i n g , j u d g i n g from t h e q u a l i t y o f
w h e r e the interpretive scheme focuses o n the tragedy o f
its d e c o r a t i o n . T h e e x t e r i o r has
recently been restored, and the
1847. Fifteen o f the b u i l d i n g s s u r v i v i n g from the quaran
i n t e r i o r has b e e n c o n s e r v e d .
tine station w i l l eventually be accessible t o v i s i t o r s . Sev

17
eral are u n d e r g o i n g conservation w o r k and w i l l be o p e n

t o the p u b l i c i n the near f u t u r e , such as the Public W o r k s
Officer's H o u s e , the A n g l i c a n Chapel, and the M a r c o n i
Station. T h e o t h e r historic buildings, as w e l l as those from
the Canadian A r m y a n d A g r i c u l t u r e Canada's o c c u p a t i o n
o f the island, are n o t o p e n t o the p u b l i c .
Some o f the historic structures are used b y visi
tors and staff for o t h e r purposes. T h e o l d C a r p e n t r y a n d
P l u m b i n g B u i l d i n g ( l o c a t i o n 7, fig. 1.3) houses the V i s i t o r
Center and its gift shop. T h e second f l o o r holds the
Figure
1.10. T h e A n g l i c a n C h a p e l
( l o c a t i o n 11, f i g . 1.3). B u i l t i n
1877-78, t h e A n g l i c a n C h a p e l w a s
administrative offices o f the site. T h e D i s i n f e c t i o n B u i l d

i n g ( l o c a t i o n 8) and the T h i r d Class H o t e l ( l o c a t i o n 4)
m a d e o f w o o d a n d set o n
house p u b l i c w a s h r o o m s . T h e T h i r d Class H o t e l also
m a s o n r y pillars. I t was intended
accommodates the cafeteria that serves visitors as w e l l as
f o r t h e use o f t h e s t a f f a n d resi
site staff a n d others w o r k i n g o n the i s l a n d . R o o m s o n
dents o f the island, n o t for the
the u p p e r floors o f this b u i l d i n g are used as s h o r t - t e r m
i m m i g r a n t s . I n order t o preserve
sleeping a c c o m m o d a t i o n s for staff and others w o r k i n g o n
the structure's largely o r i g i n a l

a p p e a r a n c e a n d t o s t o p leaks, t h e
18
site. T h e M e d i c a l E x a m i n a t i o n Office ( l o c a t i o n 9) as w e l l
p i l l a r s are b e i n g r e i n f o r c e d ; a
as some buildings i n the C e n t r a l Sector are also used as
m o i s t u r e b a r r i e r is b e i n g p l a c e d
seasonal residences for staff.
19
M o r e - m o d e r n facilities o n the island include an
between the interior walls and the

board-and-batten exterior skin;
aircraft l a n d i n g strip i n the Eastern Sector, used exclu
a n d t h e t i n r o o f is b e i n g r e p a i r e d .
sively b y Parks Canada; a w a s t e w a t e r t r e a t m e n t plant; an

u n d e r g r o u n d w a t e r storage tank; and h e a t i n g o i l tanks.
26
GROSSE I L E A N D T H E IRISH M E M O R I A L N A T I O N A L H I S T O R I C SITE
Figure
l.u.
T h e gift shop interior.
Figure
1.12. B u i l t i n 1912 o f c o n c r e t e w i t h s o m e w o o d e n c l a d d i n g a n d
o t h e r details, t h e F i r s t Class H o t e l a c c o m m o d a t e d a r r i v i n g p a s s e n g e r s
w h o were placed under medical observation. B y the second half o f the
n i n e t e e n t h century, t h e s h i p p i n g c o m p a n i e s h a d m a d e i t clear t o t h e
a u t h o r i t i e s t h a t f a c i l i t i e s f o r p a s s e n g e r s b e i n g d e t a i n e d f o r m e d i c a l rea
sons n e e d e d t o c o r r e s p o n d t o t h e i r classes o f passage, t o a v o i d u n c o m
f o r t a b l e m i x i n g o f passengers.
Figure
1.13. N o w c a l l e d t h e S e c o n d Class H o t e l , t h i s b u i l d i n g s e r v e d as
t h e first-class h o t e l from i t s c o n s t r u c t i o n i n 1893 u n t i l 1912. T h i s t w o s t o r y w o o d e n b u i l d i n g is 46 m e t e r s (150 feet) l o n g a n d h a d r o o m f o r 152

c a b i n passengers; t h e r e w a s a d i n i n g r o o m , a s i t t i n g r o o m , a n d w a s h
rooms.
Figure
1.14. T h e T h i r d Class H o t e l , b u i l t i n 1914, is t h e l a r g e s t o f t h e
t h r e e h o t e l s , d e s i g n e d t o h o l d 140 b e d s i n i t s
fifty-two
rooms. Built o f
h e a t i n g . T o d a y t h i s b u i l d i n g h o u s e s t h e caf eter ia t h a t caters t o v i s i t o r s

t o G r o s s e He. A l s o s e e n h e r e is t h e s q u a r e - p l a n B a k e r y , b u i l t b e t w e e n
c o n c r e t e , i t i n c l u d e d k i t c h e n s a n d d i n i n g areas at e i t h e r e n d o f e a c h
1902 a n d 1910. I n s i d e t h e w o o d e n b u i l d i n g are m a n y o f t h e o r i g i n a l spe
f l o o r o f the b u i l d i n g , w i t h l i v i n g quarters i n t h e center. W h i l e i t offered
c i a l i z e d features u s e d f o r m a k i n g a n d b a k i n g b r e a d .
close q u a r t e r s a n d l i t t l e p r i v a c y , i t w a s fitted w i t h e l e c t r i c i t y a n d c e n t r a l
27
Understanding and Protecting the Values of Grosse lie

and the Irish Memorial National Historic Site
V a l u e s A s s o c i a t e d w i t h Grosse Tie
o f the site, a n d the p r o p o s e d means and strategies
I n essence, the values associated w i t h Grosse lie emerge

i n three categories: the r o l e played b y this island i n
Canada's h i s t o r y ; the g o o d c o n d i t i o n and representative
character o f the bu ildings and o t h e r features r e l a t i n g t o its
various roles over the p e r i o d o f a century; and the p o t e n
tial for effective c o m m u n i c a t i o n o f its i m p o r t a n c e . Even
t h o u g h all o f the elements o f value that are c u r r e n t l y rec
o g n i z e d and captured i n the m a n a g e m e n t policies a n d
principles for the site w e r e present i n the earliest discus
sions, t h e y w e r e articulated and p r i o r i t i z e d slightly differ
ently b y the stakeholders as the process detailed b e l o w
unfolded.
for achieving statement m a n a g e m e n t objectives. T h e

m a n a g e m e n t p l a n provides a framework w i t h i n w h i c h
subsequent decision m a k i n g and detailed p l a n n i n g c o u l d
take place.
T h e Quebec r e g i o n a l staff o f Parks Canada
u n d e r t o o k a n d r e p o r t e d o n t h e i r w o r k o n items 1 t h r o u g h
3 i n 1989 i n a p u b l i c i n f o r m a t i o n paper. T h e i n f o r m a t i o n
22
paper became the basis o f the development concept dis

cussed b e l o w , and i t represented the first official proposal
23
o f Parks Canada regarding the values o f Grosse l i e . I t con

sidered h o w the site m i g h t best be presented t o the p u b l i c
and elaborated o n the themes that w o u l d frame the inter
pretive p r o g r a m .
PARKS CANADA BEGINS T O FORMULATE

ITS P E R S P E C T I V E
2 4
T h e general t h e m e was "Canada: L a n d o f W e l

c o m e and H o p e / ' t o be expressed t h r o u g h t w o themes.
For Grosse l i e , as w i t h m o s t historic sites o f n a t i o n a l o r
T h e m a i n t h e m e , " I m m i g r a t i o n t o Canada v i a Quebec
i n t e r n a t i o n a l interest, perspectives o n the value o f the
C i t y (1830-1939)," w o u l d be conveyed b y six concepts:
place e m e r g e d g r a d u a l l y from several directions. F o l l o w
the n a t i o n a l a n d i n t e r n a t i o n a l context s u r r o u n d
i n g the 1988 a g r e e m e n t t o transfer historic resources o n
i n g the a r r i v a l o f i m m i g r a n t s i n Canada
the island t o Parks Canada, the staff l a u n c h e d the process
government policy
o f p l a n n i n g for the preservation a n d presentation o f the
risks and perils o f the A t l a n t i c crossing
n e w n a t i o n a l historic site. T h e products r e q u i r e d o f this
profiles o f i m m i g r a n t s
p l a n n i n g process are described i n detail i n Parks Canada
p u b l i c o p i n i o n a b o u t n e w arrivals
m a n a g e m e n t directives. T h e y were:
c o n t r i b u t i o n s o f i m m i g r a n t s t o Canadian society
20
21
1. Themes and objectivesbased
o n the c o m m e m o r a
tive i n t e n t established b y the H S M B C w h e n the site was
T h e second t h e m e , "Grosse l i e Q u a r a n t i n e Sta

t i o n (1832-1937)," w o u l d be conveyed b y five concepts:
designated, w h i c h articulates the historical rationale and
selecting the site o f Grosse l i e
n a t i o n a l context for p l a n n i n g , m a n a g e m e n t , a n d develop
the station as i t dealt w i t h people a n d t h e i r
m e n t o f the site.
2. Terms of referenceprovide
illnesses
d i r e c t i o n o n essential
o p e r a t i o n o f the station (authorities, legislation,
p r o t e c t i o n and site o p e r a t i o n measures, p e n d i n g the
r e c e p t i o n o f i m m i g r a n t s , the tragic years o f 1832,
approval o f a m a n a g e m e n t p l a n .
1834, and 1847)
3. Interim management guidelinesprovide
direction
daily life
o n the priorities, roles, responsibilities, and i m p l e m e n t a
geographical a n d e n v i r o n m e n t a l features
t i o n o f the p l a n n i n g p r o g r a m .
T h i s last s u b t h e m e dealing w i t h the g e o g r a p h i c a l
4. Management plan conceptsidentify
a range o f
setting seemingly recognizes the n a t u r a l value o f the site
possible options that w o u l d direct the f u t u r e m a n a g e m e n t
and " w i l l t r y t o evoke the n a t u r a l e n v i r o n m e n t as i t m a y
o f the site.
have b e e n at the t i m e . . . and w i l l consider the n a t u r a l
5. Management planarticulates
long-range direc
e n v i r o n m e n t as i t appears today."
t i o n for the p r o t e c t i o n , presentation, and use o f resources
28
25
I n effect, Parks Canada was devising an approach

t o presenting the stories o f a small island and a t t e m p t i n g
surface remains o f h i s t o r i c features w e r e located all over

the island. These h i s t o r i c featureshousing, kitchens, dis
t o connect t h e m t o the expansive concepts that f r a m e d the
i n f e c t i o n facilities, i s o l a t i o n wards, hospitals, residences,
n a t i o n a l experience. I t h a d w o r k e d t o present Grosse l i e i n
piers, roads, churches, a n d so o n w e r e f o u n d t o be
the proposal d o c u m e n t s as a n a t i o n a l historic site and
r e m a r k a b l y authentic, as f e w m a j o r changes w e r e ever
endeavored t o reveal the values recognized for the place b y
made. T h e y w e r e witness t o all chapters i n the h i s t o r y o f
means o f research and expert testimony. T h e H S M B C h a d
Grosse l i e .
F u r n i t u r e , fittings, personal items, and even vehi
stipulated that i n t e r p r e t a t i o n s h o u l d focus o n the n a t i o n a l

significance o f the i m m i g r a t i o n t h e m e and n o t exclusively
cles from all phases o f the island's use w e r e also f o u n d i n
o n i m m i g r a t i o n from Ireland, a l t h o u g h p a r t i c u l a r empha
g o o d c o n d i t i o n , e v o k i n g the q u a l i t y o f life for the various
sis w o u l d be placed o n Irish i m m i g r a t i o n .
k i n d s o f residents, patients, a n d visitors w h o passed
2 6
I n w h a t can be
seen as an early version o f a statement o f significance, the
t h r o u g h . M o r e o v e r , the u n i q u e character o f the island i n
p u b l i c i n f o r m a t i o n paper states:
its riverine l o c a t i o n gave rise t o a great v a r i e t y o f habitats,

flora, and fauna.
T h e Grosse l i e q u a r a n t i n e station played a m a j o r role i n
T h e paper concludes w i t h a s u m m a r y o f reasons
t h e process o f i m m i g r a t i o n t o c e n t r a l Canada f o r m o r e
t h a n a century. T h e c o n t r i b u t i o n o f i m m i g r a t i o n t o t h e for
m a t i o n o f the Canadian p o p u l a t i o n was substantial. I m m i
b e c o m e a significant site i n the n a t i o n a l system: the con

t i n u i n g i m p o r t a n c e o f i m m i g r a t i o n i n Canada's h i s t o r y ;
g r a n t s a r r i v i n g from e v e r y c o r n e r o f E u r o p e , from e v e r y
class, h e l p e d t o b u i l d t h e c o u n t r y b y b r i n g i n g t h e i r c o u r a g e ,
the n u m b e r , diversity, and representative q u a l i t y o f the

c u l t u r a l resources; the e m o t i o n a l p o w e r o f the place for
toil, and culture. Some o f t h e m settled i n Quebec, w h i l e
thousands o f descendants o f i m m i g r a n t s (particularly the
others traveled o n w a r d t o various regions o f Canada and
Irish); a n d its geographic l o c a t i o n and favorable p o s i t i o n
t h e U n i t e d States. T h e least f o r t u n a t e , n o d o u b t s e v e r a l
o n the t o u r i s m m a r k e t .
t h o u s a n d strong, saw their adventures e n d before their

n e w lives b e g a n .
w h y Parks Canada p r e d i c t e d t h a t Grosse l i e w o u l d
2 7
PARKS CANADA PRESENTS ITS IDEAS

AND PLANS TO T H E PUBLIC
T h e Parks Canada guidance available at the t i m e states
W h i l e this perspective shaped the research a n d
that
its o u t c o m e t o a considerable extent, o t h e r values w e r e

also r e c o g n i z e d a n d described i n this early d o c u m e n t .
m a n a g e m e n t p l a n n i n g is b a s e d o n consensus, b o t h i n t e r n a l l y
T h e i n f o r m a t i o n paper also i n c o r p o r a t e s the results o f a
t h r o u g h t e a m w o r k a n d f u n c t i o n a l review, a n d externally,
m a r k e t i n g study c o n d u c t e d o n b e h a l f o f Parks Canada.
t h r o u g h public p a r t i c i p a t i o n . . . . A comprehensive public con
28
Perhaps as a result o f this m a r k e t o r i e n t a t i o n , the infor
sultation strategy s h o u l d be developed early i n the p l a n n i n g
m a t i o n paper recognizes the e c o n o m i c value placed o n
p r o g r a m t o e n s u r e t h a t o p e r a t i o n a l l y r e l e v a n t i n f o r m a t i o n is
the site b y the authorities, interest groups, a n d c o m m u n i
s o u g h t , o b t a i n e d a n d u s e d p r o a c t i v e l y , a n d t o facilitate c o n s e n
ties o n the s o u t h shore o f the St. L a w r e n c e River, w h o
sus b u i l d i n g w i t h s t a k e h o l d e r s a n d w i t h t h e p u b l i c at l a r g e .
2 9
saw the d e v e l o p m e n t o f Grosse l i e as a p o t e n t i a l engine

for r e g i o n a l t o u r i s m a n d e c o n o m i c d e v e l o p m e n t . T h e
i n f o r m a t i o n paper also identified actual a n d p o t e n t i a l
stakeholders o f the n a t i o n a l h i s t o r i c site, such as some
ethnic a n d c u l t u r a l c o m m u n i t i e s ( m e n t i o n i n g the Irish
specifically), w h i c h i t recognized w o u l d a t t r i b u t e spiritual
and associative values t o the site. A n d , w h i l e i t is n o t dis
cussed i n the paper, an i n t e r e s t i n g challenge t a k i n g shape
was t h a t o f presenting a n a t i o n a l s t o r y w i t h an Irish con
n e c t i o n w i t h i n a long-established local society t h a t was
French speaking a n d n o t p a r t i c u l a r l y enthusiastic a b o u t all
aspects o f i m m i g r a t i o n .
M a n y o f the b u i l d i n g s and structures d a t i n g from
1847 o n w a r d still stood, and identifiable r u i n s a n d sub
I n early 1982, the p u b l i c c o n s u l t a t i o n effort was

l a u n c h e d b y Parks Canada t o present its plans for the p r o
t e c t i o n and i n t e r p r e t a t i o n o f the site. I n advance o f the
p u b l i c meetings, copies o f the d e v e l o p m e n t concept docu
m e n t w e r e m a d e available t o interest g r o u p s a n d the press
i n areas w h e r e the meetings w o u l d be h e l d .
I n spite o f the extensive research a n d p r e p a r a t i o n
o f t h o r o u g h a n d comprehensive i n t e r n a l d o c u m e n t s relat
i n g t o all aspects o f the h i s t o r y o f Grosse l i e , the develop
m e n t concept was subject t o fairly b r o a d and, i n some
cases, q u i t e negative i n t e r p r e t a t i o n b y certain groups.
T h e d e v e l o p m e n t concept c a r r i e d f o r t h the themes o f
U N D E R S T A N D I N G A N D P R O T E C T I N G T H E VALUES
29
i m m i g r a t i o n and quarantine identified i n the i n f o r m a t i o n
T w o h u n d r e d Irish Canadians w h o attended the
paper, b u t i t d i d n o t reflect the sensitivity t o the Irish
final m e e t i n g i n this series insisted t h a t a d d i t i o n a l meet
tragedy t h a t was evident i n o t h e r p r e l i m i n a r y d o c u m e n t s .
ings be h e l d outside Quebec i n order t o give m o r e people
T h r o u g h o u t , from descriptions o f the status and

c o n d i t i o n o f i n d i v i d u a l features and classes o f resources
from across Canada the chance t o be heard, a d d i n g t h a t

the d e v e l o p m e n t concept d i d n o t do justice t o , o r was o t h
o n the island t h r o u g h a detailed section a b o u t the govern
erwise deficient w i t h , respect t o the "Irish d i m e n s i o n " o f
m e n t ' s objectives for the site, there is n o m e n t i o n o f the
the site. T h i s p o i n t o f v i e w was echoed i n statements from
30
experience o f the Irish i n 1847. T h e m a i n p o i n t o f con
across the country. T h e m i n i s t e r directed Parks Canada t o
t e n t i o n d u r i n g the p u b l i c debate was t h a t some g r o u p s felt
organize a second r o u n d o f p u b l i c meetings i n spring 1993.
significance was b e i n g t a k e n away from the Irish tragedy

o f 1847. I n a discussion o f h o w the site s h o u l d be p r o
16 February 1993
T h e Grosse tie National Historic SiteDevelopment
m o t e d , the t o p i c arises:
Supplement
33
A s f o r t h e " i m a g e " o f t h e site t o b e p r o m o t e d , b o t h
Concept
was issued i n response t o the clearly unex
pected reactions o f m a n y Irish Canadians t o the o r i g i n a l
c u r r e n t a n d p o t e n t i a l clienteles clearly stated t h a t the t h e m e
d e v e l o p m e n t concept d o c u m e n t . T h i s s u p p l e m e n t was
o f i m m i g r a t i o n has l i t t l e i m p a c t . I n t h a t respect, t h e i m a g e
i n t e n d e d t o "expand u p o n and clarify certain p o i n t s before
m u s t b e m o d e l e d o n c l i e n t e l e e x p e c t a t i o n s , interests, a n d
c o n t i n u i n g w i t h the p u b l i c exercise." T h e d o c u m e n t
34
m o t i v a t i o n s , u s i n g t h e t h e m a t i c c o n t e x t p r i m a r i l y as a b a c k
acknowledges the inappropriateness o f the emphasis o f
drop
the d e v e l o p m e n t concept:
I t is also felt t h a t t h e r e s h o u l d n o t b e t o o m u c h
e m p h a s i s o n t h e t r a g i c aspects o f t h e h i s t o r y o f G r o s s e l i e .
B a s e d o n t h i s passage [quoted above], r e p r e s e n t a
On the contrary, the-painful events of 1832 to 1847, which have often
tives o f t h e I r i s h c o m m u n i t y h a v e g e n e r a l l y a t t r i b u t e d t o t h e
been overemphasized in the past, need to be put back into perspective,

without robbing them of their importance [emphasis a d d e d ] .
Canadian Parks Service the i n t e n t i o n o f m i n i m i z i n g the
31
i m p o r t a n c e o f the tragedy that Irish i m m i g r a n t s experi

e n c e d i n 1832 a n d 1847. S u c h is n o t t h e case. T h e passage i n
T h e u n f o r t u n a t e last sentence o f this statement w o u l d be
q u e s t i o n expresses t h e p e r s o n a l o p i n i o n o f i n d i v i d u a l s w h o
q u o t e d often i n the n e x t phase o f the process.
p a r t i c i p a t e d i n t h e m a r k e t s t u d y ; t h a t is, t h a t promotion of the
A f t e r a l e n g t h y e x p l o r a t i o n o f the local c o m m e r
site f o r f u t u r e t o u r i s t s w h i c h w a s t h e specific issue t h e y
cial d e v e l o p m e n t interests and logistical considerations
w e r e addressingshould n o t be based solely o n the tragic
r e l a t i n g t o t r a n s p o r t a t i o n and infrastructure, the r e p o r t
e v e n t s o f 1832 a n d 1 8 4 7 .
35
r e t u r n e d t o the subject o f values and themes, stating t h a t

one o f the three d e v e l o p m e n t principles s h o u l d be respect
for the e m o t i o n s felt b y visitors w h o are connected t o
those w h o d i e d o n the island and the fact t h a t the island is
seen as a "place o f p i l g r i m a g e , r e m e m b r a n c e , and con
t e m p l a t i o n . " T h e second principle was t h a t the i n t e r p r e
tive p r o g r a m s h o u l d cover the f u l l range o f historical
themes chosen for the site. T h e t h i r d p r i n c i p l e was t h a t
the d e v e l o p m e n t o f Grosse l i e w o u l d f o l l o w an i n t e g r a t e d
approach, " d r a w i n g o n b o t h the n a t u r a l and c u l t u r a l
facets o f the site."
32
C o r r e c t i n g w h a t h a d b e c o m e a n d w o u l d con
t i n u e t o bean e m o t i o n a l l y charged s i t u a t i o n p r o m i s e d
t o be a test for those w h o w o u l d manage the n e x t phase o f
the process. I n this d o c u m e n t , Parks Canada a c k n o w l
edges t h a t clarification is needed w h e n i t states, " i n l i g h t o f
the reactions and c o m m e n t s received, the Canadian Parks
Service has c o n c l u d e d t h a t the M a r c h 1992 d o c u m e n t d i d
n o t fulfill its m i s s i o n o f i n f o r m i n g the p u b l i c . I t is i n d e e d
s o m e w h a t vague o n certain points, p a r t i c u l a r l y those o f
specific c o n c e r n t o the Irish c o m m u n i t y . " T h e last page
36
T H E PUBLIC RESPONDS
o f this d o c u m e n t attempts t o correct the vagueness o f the
17 March-8
d e v e l o p m e n t concept b y stating clearly and forcefully the
April 1992
Several i n f o r m a t i o n sessions w e r e h e l d i n M o n t m a g n y
i n t e n t i o n s o f the Canadian Parks Service w i t h regard t o
Quebec, L'lle-aux-Grues, St. Malachie, and M o n t r e a l ,
the site, w h i c h i n c l u d e u t m o s t respect for the Irish events
attended b y a p p r o x i m a t e l y t w o h u n d r e d people.
o n the island. I t f u r t h e r r e c o m m e n d s t h a t "the expression
22 April-20
May 1992
A series o f three f o r m a l p u b l i c meetings w e r e h e l d i n

M o n t m a g n y , Quebec, and M o n t r e a l .
30
o f the i m m i g r a t i o n t h e m e as 'Canada: L a n d o f W e l c o m e
and H o p e ' s h o u l d be d r o p p e d ; the t r a g i c dimensions o f
events o n the island m a k e i t i n a p p r o p r i a t e . T h e s t o r y t o l d ,
and the t h e m e , is immigration; s i m p l y t h a t . "
37
22 March-if
c o n f r o n t a t i o n a l edge, Parks Canada p u b l i s h e d its experi
April 1993
I n this second r o u n d , seven public meetings w e r e convened
ence o f this p i v o t a l phase o f p l a n n i n g at Grosse lie. T h e
i n Vancouver; Fredericton, N . B . ; C h a r l o t t e t o w n , P.E.I.; and
staff transcribed all the audiotaped verbal presentations
T o r o n t o . Participants at these meetings made statements
at the p u b l i c meetings as w e l l as the messages left at the
and s u b m i t t e d briefs; people w h o d i d n o t attend w e r e
toll-free telephone n u m b e r . T h e y collected all the briefs
invited t o s u b m i t f o r m a l statements as w e l l . A toll-free tele
presented and all the letters received b y the g o v e r n m e n t .
p h o n e n u m b e r was set u p t o take statements from callers.
Each one h a d its o w n c o m p u t e r file, and the topics cov
W r i t t e n statements w e r e received from 228 people, m o s t o f
ered w e r e classified and charted. T h i s d o c u m e n t a t i o n n o w
Irish descent. Some 920 people sent letters t o P r i m e Minis
constitutes an i m p o r t a n t resource for those i n search o f
ter Brian Mulroney, whose Irish heritage d i d n o t escape the
models for heritage preservation.
w r i t e r s ' notice. A b o u t two-thirds o f the w r i t e r s used boiler

plate text that h a d been suggested for this purpose. T h e let
ters and the w r i t t e n briefs demonstrate the deep e m o t i o n
stirred b y reaction t o the perceived shortcomings o f the
development plan, b u t m o s t convey concern w i t h o u t accu
sations. Three petitions w e r e also received bearing signa
tures o f 23,855 additional p e o p l e .
March 1994
Parks Canada p u b l i s h e d Grosse lie National Historic
Site
Report on the Public Consultation Program (Parks Canada

1994c), w h i c h presents passages q u o t e d from these files,
organized u n d e r five topic areas. I t also lists the names
40
o f people and organizations present at each o f the p u b l i c
38
T h e c o n t e n t o f the responses r e l a t i n g t o the
meetings.
T h e r e p o r t contains o n l y m i n i m a l analysis o r
significance o f the site stressed the i m p o r t a n c e o f Grosse
j u d g m e n t o f the commentaries, and n o a t t e m p t was made
lie as a m e m o r i a l t o the dead and as a r e m i n d e r o f a b i t t e r
t o react t o the issues. I t is r e m a r k a b l y free o f defensiveness
chapter i n Irish history. Present i n m a n y o f the statements
and, i n fact, encourages still m o r e feedback. T h e final page
was the appreciation that m a n y i m m i g r a n t s recovered
i n the r e p o r t text i n f o r m s the reader that the H S M B C
from illnesses and w e n t o n t o thrive; even so, this was n o t
w o u l d be responsible for the analysis o f the findings from
considered sufficient reason t o forget the tragedy. Some

n o t e that the i m m i g r a n t experience o f the 1840s was n o t
a simple, j o y f u l arrival o n the fertile shores o f Canada as
m u c h as i t was the e n d t o a treacherous crossing t h r o u g h
h e l l and h i g h water.
A p a r t f r o m the occasional i n f l a m m a t o r y mis
sives, these w e r e genuine sentiments, p u t f o r t h i n g o o d
faith d u r i n g this u n c o m f o r t a b l e episode. Some difficulty
was p r o b a b l y inevitable at this p o i n t , as the site was, i n
effect, converted from a shrine o f significance t o a specific
g r o u p t o a n a t i o n a l historic site. A n d w h i l e the f o r m e r
m e m o r i a l i z e s a tragedy, the latter was i n t e n d e d t o cele
brate the arrival and c o n t r i b u t i o n s o f thousands o f i m m i
grants t o Canada. T h e N a t i o n a l H i s t o r i c Sites o f Canada
System P l a n h a d n o t b e e n i n force for v e r y l o n g , a n d i t
39
seemed t o some t h a t these efforts t o convey the story o f

i m m i g r a t i o n a t one o f the few sites w i t h the historic
fabric t o s u p p o r t the s t o r y w e r e t a k i n g over the l o n g established significance o f the site. T h e task ahead for
Parks Canada w o u l d be t o recognize a n d shelter the spiri
t u a l qualities o f the place as the d e v e l o p m e n t o f the
n a t i o n a l historic site w e n t f o r w a r d .
the c o n s u l t a t i o n phase and w o u l d s u b m i t its r e c o m m e n

dations t o the minister. T h e g o v e r n m e n t w o u l d t h e n for
m u l a t e and announce its p o s i t i o n regarding the "orienta
t i o n o f the project."
10 August 1994
M i n i s t e r o f Canadian H e r i t a g e M i c h e l D u p u y announced
that he h a d accepted the n e w advice o f the H S M B C
regarding the f u t u r e d e v e l o p m e n t o f Grosse lie, and thus
he w o u l d direct Parks Canada t o tell "the f u l l s t o r y o f the
Canadian i m m i g r a n t experience at Grosse lie. T h e Irish
experience o n the island, especially d u r i n g the tragic epi
d e m i c years o f the first h a l f o f the n i n e t e e n t h century, is
t o be a p a r t i c u l a r focus o f the c o m m e m o r a t i o n . . . . [ H e ]
also a n n o u n c e d the establishment o f a panel o f p r o m i
n e n t Canadians r e p o r t i n g t o h i m t o assist Parks Canada
i n the i m p l e m e n t a t i o n o f his decision o n Grosse l i e . "
41
T h e m e m b e r s o f the panel, together w i t h eight

r a n k i n g Parks Canada staff, analyzed all the responses and
requests received d u r i n g the p u b l i c c o n s u l t a t i o n p r o g r a m ,
and they f o r m u l a t e d and j u s t i f i e d a set o f r e c o m m e n d a
tions for submission t o D u p u y .
August 199$
RESULTS OF T H E PUBLIC
Parks Canada p u b l i s h e d the r e p o r t o f the advisory p a n e l ,
CONSULTATION PROGRAM
w h i c h contains eleven r e c o m m e n d a t i o n s o n matters o f
A l t h o u g h the p u b l i c c o n s u l t a t i o n p r o g r a m h a d a s t r o n g
42
i n t e r p r e t a t i o n , use o f specific historic buildings, r a n k i n g
31
o f the island's resources w i t h regard t o t h e i r care, themes
was s o m e w h a t s u r p r i s i n g for the Parks Canada staff
for development, t o n e o f presentations, ambience and
w o r k i n g o n this project. I t seemed t o be o u t o f p r o p o r t i o n
atmosphere, financing, and access. Each r e c o m m e n d a t i o n
a n d based o n a m i s r e a d i n g o f i m p e r f e c t materialsand
is accompanied b y specific o p e r a t i o n a l suggestions as t o
possibly related t o the p o l i t i c a l events o f the m o m e n t
h o w i t m i g h t best be realized.
i n Ireland.
A n i m p o r t a n t p o i n t one m a y glean from this case
O n e dependable fact i n the heritage field is t h a t

values evolve w i t h t i m e a n d w i t h the i n v o l v e m e n t o f n e w
is t h a t stakeholders' divergent v i e w s o n values are subject
stakeholders. I n t h e case o f Grosse l i e , however, i t was
t o a b r o a d range o f influences n o t c o n f i n e d t o official his
b e c o m i n g clear t h a t the values o f the o r i g i n a l Irish stake
tories o r even t o facts. A n t i c i p a t i n g p o t e n t i a l sources o f
holders h a d n o t changed t o p e r m i t a b r o a d acceptance
influence i n a p l a n n i n g s i t u a t i o n can prepare participants
o f the proposals as stated i n the d e v e l o p m e n t concept. I t
for effective p u b l i c consultations; retrospective analysis o f
appeared t h a t an o p t i m i s t i c , t h e m a t i c c o n s t r u c t t h a t k n i t
consultations can shed n e w l i g h t o n h o w values have
t e d together Canada's n a t i o n a l h i s t o r i c sites had, i n Grosse
e m e r g e d a n d h o w t h e y m a y have changed.
fie, c o l l i d e d w i t h m e m o r i e s o f suffering and injustice t h a t
NEW STATEMENT OF COMMEMORATIVE INTENT
still r e m a i n p r o f o u n d l y i m p o r t a n t t o some people o f Irish

n a t i o n a l i t y o r descent. I t also became evident t h a t b o t h
positions represent l e g i t i m a t e values o f Grosse l i e a n d
t h a t t h e y needed t o be preserved a n d presented i n the
n e w n a t i o n a l site.
I n r e c o u n t i n g events w h o s e r e s o l u t i o n is n o w
k n o w n , one risks the t r a p o f ' p r e s e n t - i s m " j u d g i n g a
past s i t u a t i o n t h r o u g h present sensibilities. C o n t e x t u a l i z i n g a n d e x p l a i n i n g the reasoning o f Parks Canada is
done n o t t o stanch discussion b u t , rather, t o i n f o r m i t .
T o w a r d this end, t h e n , the q u e s t i o n can be posed: W h o
w e r e the Irish? T h i s m a y seem t o be a curious question,
b u t i t is an i m p o r t a n t one g i v e n recent scholarship o n
the I r i s h i n Canada.
T r a d i t i o n a l l y i t has been p r e s u m e d that the Irish i n
Canada w e r e p r i m a r i l y R o m a n Catholic and largely u r b a n
dwellers (and p r o b a b l y anti-British and republican as w e l l ) ,
m u c h as was the case i n the U n i t e d States. B u t recent schol
arship, particularly o n nineteenth-century Irish i m m i g r a
AND ITS IMPACTS

A statement o f c o m m e m o r a t i v e i n t e n t is the concise dec
l a r a t i o n o f the reasons a n d p u r p o s e for w h i c h a n a t i o n a l
historic site has b e e n so designated. F o l l o w i n g extensive
research a n d deliberations, the H S M B C w r i t e s this state
m e n t for the approval o f the m i n i s t e r o f Canadian her
itage. O n c e approved, i t becomes t h e t o u c h s t o n e for
the m a n a g e m e n t p l a n n i n g at the site. T h e statement o f
c o m m e m o r a t i v e i n t e n t d e l i m i t s a n d p r i o r i t i z e s the m a i n
interests o f Parks Canada r e g a r d i n g the stewardship a n d
presentation o f a site u n d e r its j u r i s d i c t i o n . I n M a r c h 1996
the M i n i s t e r o f Canadian H e r i t a g e clarified the c o m m e m
orative i n t e n t o f Grosse l i e b y m o d i f y i n g the n a m e o f the
n a t i o n a l h i s t o r i c site, w h i c h became "Grosse l i e a n d the
Irish M e m o r i a l , "
4 4
thereby b r i n g i n g the fateful year o f
1847 i n t o sharper focus t h a n was p r o p o s e d b y the develop

m e n t concept f o u r years earlier. T h e statement o f c o m
m e m o r a t i v e i n t e n t became:
T h e G r o s s e l i e a n d t h e I r i s h M e m o r i a l N a t i o n a l H i s t o r i c Site
t i o n t o Canada, has challenged that view. I n fact, based o n
c o m m e m o r a t e s the significance o f i m m i g r a t i o n t o Canada,
quantitative data, approximately t w o - t h i r d s o f Irish i m m i
e s p e c i a l l y v i a t h e g a t e w a y o f Q u e b e c C i t y , from t h e b e g i n
g r a t i o n t o Canada was Protestant; the i m m i g r a n t s m o r e
n i n g o f the 19th c e n t u r y u p t o the First W o r l d W a r .
typically settled initially i n r u r a l areas and i n smaller t o w n s ;
G r o s s e l i e also c o m m e m o r a t e s t h e t r a g i c e v e n t s s u f f e r e d b y
and they m a y w e l l have chosen Canada ( w h i c h before 1867
Irish i m m i g r a n t s o n the island m a i n l y d u r i n g the t y p h u s epi
was c o m m o n l y referred t o as British N o r t h A m e r i c a ) rather
d e m i c o f 1847.
t h a n the U n i t e d States because i t was British.
F i n a l l y , t h e site c o m m e m o r a t e s t h e r o l e p l a y e d b y t h e i s l a n d ,
I n the case o f Grosse l i e , references t o "the I r i s h "
from
1832 t o 1937, as t h e q u a r a n t i n e s t a t i o n f o r t h e p o r t o f
( i n c l u d i n g t o the " I r i s h M e m o r i a l " ) generally indicate the
Quebec, for years t h e p r i n c i p a l p o i n t o f e n t r y f o r i m m i
I r i s h C a t h o l i c c o m m u n i t y , b u t this n a r r o w e r use needs t o
grants to Canada.
4 5
be u n d e r s t o o d i n context, because Canadians o f I r i s h o r i

W h e n c o m p a r e d t o the w o r d i n g i n t h e develop
g i n constitute a m u c h b r o a d e r g r o u p , a n d the g r o u p as a
w h o l e does n o t necessarily have the same concerns o r
share the same v i e w s .
43
m e n t concept, this statement demonstrates t h a t w h i l e the

recognized facts are the same a n d n o n e w values have
Therefore, the s t r e n g t h o f the p u b l i c r e a c t i o n
b e e n added, an i m p o r t a n t shift i n emphasis has t a k e n
t o the perceived underemphasis o n the "Irish tragedy"
place. Instead o f s h y i n g away from p u t t i n g the " I r i s h
32
tragedy" i n a p o s i t i o n o f p r o m i n e n c e that (it h a d been

t h o u g h t ) m i g h t overshadow the o t h e r aspects a n d inter
pretive o p p o r t u n i t i e s o f the site, this statement reflects
the voices o f the stakeholders b y p r o m o t i n g the tragedy
to p r o m i n e n c e a l o n g w i t h the r e c o g n i t i o n o f the role o f
i m m i g r a t i o n and o f this island i n the establishment o f
m o d e r n Canada.
I n 1998, a n e w H S M B C plaque replaced the one
dedicated i n 1980; the n e w text referred t o the r o l e o f
Grosse l i e as a quarantine station, stressed the p h e n o m e
n o n o f i m m i g r a t i o n , and gave special a t t e n t i o n t o the
Irish experience o f 1847.
T h e three elements m o s t closely associated w i t h
the tragic events are located i n the W e s t e r n Sector o f the
island. T h e Celtic Cross, erected i n 1909, stands above the
southeastern cliff o f Grosse l i e (fig. 1.4) and is reached
o n l y b y a rustic w o o d l a n d t r a i l , seen i n figure 1.15. T h e
o t h e r t w o elements are the D o c t o r s ' M e m o r i a l and the
Irish C e m e t e r y (figs. 1.16,1.17).
Figure
1.17. T h e I r i s h C e m e t e r y w a s l a i d o u t i n 1832 b e t w e e n t w o crags
l o c a t e d s o u t h w e s t o f C h o l e r a Bay. T h i s v i e w l o o k s east across t h e

c e m e t e r y , w i t h H o s p i t a l B a y i n t h e d i s t a n c e . U n t i l 1847 i n d i v i d u a l b u r i
als w e r e p e r f o r m e d h e r e . T h a t year, b e c a u s e o f t h e h i g h r a t e o f m o r t a l
i t y from t y p h u s , l o n g t r e n c h e s w e r e u s e d as m a s s graves. T h e c e m e
t e r y ' s t o p o g r a p h y s h o w s e v i d e n c e o f t h e t r e n c h e s . T h i s c e m e t e r y is
b e l i e v e d t o h o l d o v e r 6,000 o f G r o s s e l i e ' s 7,553 d e a d .
Figure
A n e w e l e m e n t was p l a n n e d as an enhancement
1.1$. A w o o d l a n d t r a i l ,
w h i c h leads t o t h e c l i f f - t o p
to the spiritual aspect o f Grosse l i e a n e w Irish M e m o
l o c a t i o n o f the Celtic Cross.
rial. A design c o m p e t i t i o n was held, and, f r o m the w i n

n i n g design, an expressive e a r t h w o r k and s u r r o u n d were
b u i l t t o c o m m e m o r a t e those w h o h a d died and been
b u r i e d i n u n m a r k e d graves o n Grosse lie. T h e n e w
m e m o r i a l , a few meters s o u t h o f the Irish Cemetery,
evokes an ancient b a r r o w t o m b . I t consists o f paths i n the
shape o f a Celtic cross c u t t h r o u g h an earthen m o u n d ,
w h i c h is t o p p e d b y native shale. I t is f r a m e d o n the n o r t h
by an arc o f glass panels that bear the engraved names o f
those w h o d i e d o n the island. I n A u g u s t 1998, Parks
Canada i n a u g u r a t e d this m e m o r i a l i n the presence o f Ire
land's president, M a r y McAleese.
A t the e n d o f a difficult b u t successful process
Figure
1.16. T h e D o c t o r s ' M e m o
r i a l . T h e t r a i l s h o w n i n f i g u r e 1.15
that was best u n d e r s t o o d i n retrospect, the values cited

i n the c o m m e m o r a t i v e i n t e n t o f the historic site o f
continues over the t o p o f the crag;
Grosse l i e and the Irish M e m o r i a l are a p o i g n a n t b l e n d
o n t h e o t h e r side, a s m a l l m a r b l e
o f o p t i m i s m and sadness that captures the f u l l character
m o n u m e n t stands i n a b i r c h g r o v e
o f the place.
next to the Irish Cemetery. This

stele is a m e m o r i a l t o t h e p h y s i
cians w h o s a c r i f i c e d t h e i r lives i n
t h e 1830s a n d 1840s f o r t h e s i c k
i m m i g r a n t s . It was placed here i n
a b o u t 1853 b y D r . D o u g l a s , t h e
first superintendent o f the quar
antine station.
C o n s i d e r a t i o n o f Values in M a n a g e m e n t
Policies a n d S t r a t e g i e s
Once discovered and stated, h o w w o u l d the values
expressed i n the statement o f c o m m e m o r a t i v e i n t e n t
be f r a m e d w i t h i n a m a n a g e m e n t plan? H o w are they
connected to, and i n c o r p o r a t e d i n t o , the guidance regard
i n g actions r e c o m m e n d e d o n the site?
33
Figure
1.18. T h e n e w I r i s h M e m o r i a l is t u c k e d a g a i n s t t h e h i l l s i d e , j u s t
s o u t h w e s t o f the D o c t o r s ' M e m o r i a l a n d above the Irish Cemetery.
Figure
1.19. Glass p a n e l s at t h e I r i s h M e m o r i a l o n w h i c h v i s i t o r s m a y
r e a d t h e n a m e s o f t h o s e w h o d i e d e i t h e r e n r o u t e t o o r at G r o s s e l i e .
T h e s t o n e s t r u c t u r e i n t h e c e n t e r is framed b y glass p a n e l s e t c h e d w i t h
t h e n a m e s o f t h e d e a d from t h e e p i d e m i c y e a r s .
COMMEMORATIVE INTENT AND
site a n d as a means o f assessing its state and d e t e r m i n i n g
COMMEMORATIVE INTEGRITY
the necessary measures t o be taken.
As o f 1994, Parks Canada has e m p l o y e d a p o w e r f u l nor
T h e first p a r t o f the statement identifies a n d eval
m a t i v e approach t o establishing t h e m a n a g e m e n t a n d
uates the c u l t u r a l resources w i t h reference t o t h e h i s t o r i c
i n t e r p r e t i v e f r a m e w o r k for the sites u n d e r its stewardship.
values t h a t p r o m p t e d the n a t i o n a l designation o f the site.
T w o core concepts h e l p t o m a i n t a i n the focus o f manage
I n c l u d e d are specific goals a n d objectives r e g a r d i n g the
m e n t decisions: c o m m e m o r a t i v e i n t e n t (described above)
desired state o f these resources as w e l l as w o r k t h a t m a y
a n d c o m m e m o r a t i v e i n t e g r i t y . Each o f these concepts is
be necessary t o achieve these goals. T h e second p a r t is t h e
o p e r a t i o n a l i z e d b y a d o c u m e n t t h a t defines i n detail the
a r t i c u l a t i o n o f the k e y messages, any secondary messages,
concept as i t applies t o a specific site.
and any c o n t e x t o r t o n e t h a t is seen as i m p o r t a n t t o associ
46
Commemorative integrity is a t e r m used t o describe
ate w i t h the messages t h a t are t o be c o m m u n i c a t e d t o the
the h e a l t h o r wholeness o f a n a t i o n a l h i s t o r i c site. A state
p u b l i c a b o u t the site. I n c l u d e d i n this p a r t is the m e n t i o n
o f c o m m e m o r a t i v e i n t e g r i t y can be said t o exist w h e n :
o f any challenges t h a t are already anticipated i n t h e area
the resources t h a t s y m b o l i z e o r represent a site's

i m p o r t a n c e are n o t i m p a i r e d o r u n d e r threat;
the reasons for the site's n a t i o n a l h i s t o r i c
significance are effectively c o m m u n i c a t e d t o the p u b l i c ;
the site's heritage values ( i n c l u d i n g those n o t
related t o n a t i o n a l significance) are respected b y all w h o s e
decisions a n d actions affect the s i t e .
o f c o m m u n i c a t i o n . T h e t h i r d p a r t o f the statement
describes resources a n d o t h e r values t h a t are n o t o f
n a t i o n a l significance b u t t h a t c a r r y h i s t o r i c significance
for the site, a n d i t identifies messages r e g a r d i n g these
resources t h a t are i m p o r t a n t t o c o m m u n i c a t e t h r o u g h
the i n t e r p r e t i v e p r o g r a m .
47
CULTURAL RESOURCE MANAGEMENT POLICY
T h e c o m m e m o r a t i v e i n t e g r i t y statement is a
detailed d o c u m e n t w r i t t e n as p a r t o f the m a n a g e m e n t
p l a n n i n g process for a site. I t ties t h e c o m m e m o r a t i v e
i n t e n t t o the physical features w h e r e value resides, a n d
expands o n the specific characteristics o f t h a t value. I t also
emphasizes t h e o b l i g a t i o n o f the site managers t o ensure
t h a t t h e site retains its c o m m e m o r a t i v e integrity. T h e
statement serves as a guide for the m a n a g e m e n t o f the
34
AND VALUES PRESERVATION

For Parks Canada, historic v a l u e r a t h e r t h a n social, cul
t u r a l , scientific, e c o n o m i c , use, p r o g r a m , o r o t h e r val
uesdetermines w h e t h e r a resource is a c u l t u r a l resource
and, hence, w h e t h e r i t s h o u l d be m a n a g e d u n d e r the p o l
icy. T h e seminal guidance c o n t a i n e d i n the c u l t u r a l
resource m a n a g e m e n t policy, p a r t o f the Guiding
Principles
and Operational Policies** ensures a values-based a p p r o a c h
t o heritage m a n a g e m e n t t h r o u g h its d e f i n i t i o n o f its p r i n
the i m p o r t a n t relationship b e t w e e n value a n d resource
ciples, practice, a n d activities. T h r o u g h o u t , all the p r i n c i
and c o n c e r n e d m o r e w i t h process t h a n w i t h o u t c o m e .
ples deal i n one w a y o r a n o t h e r w i t h values, even w h e n

the w o r d value is n o t specifically used. T h e f o l l o w i n g
excerpts d e m o n s t r a t e this f u n d a m e n t a l c o m m i t m e n t :
1.1
PRINCIPLES
1. 1.2
W h i l e a l l c u l t u r a l r e s o u r c e s are v a l u e d , s o m e c u l
4 9
t u r a l r e s o u r c e s are d e e m e d t o b e o f t h e h i g h e s t p o s s i b l e
value a n d w i l l be p r o t e c t e d a n d presented accordingly. Parks
Canada w i l l value m o s t h i g h l y those c u l t u r a l resources o f
n a t i o n a l historic significance.
1. 1.4
C u l t u r a l resources w i l l be v a l u e d n o t o n l y for
t h e i r p h y s i c a l o r m a t e r i a l p r o p e r t i e s , b u t also f o r t h e associa
t i v e a n d s y m b o l i c a t t r i b u t e s w i t h w h i c h t h e y are i m b u e d ,
a n d w h i c h f r e q u e n t l y f o r m t h e basis o f t h e i r h i s t o r i c v a l u e .
1.1.5
from
A c u l t u r a l r e s o u r c e w h o s e h i s t o r i c v a l u e derives
its w i t n e s s t o m a n y p e r i o d s i n h i s t o r y w i l l b e r e s p e c t e d
f o r t h a t e v o l u t i o n , n o t j u s t f o r its existence at a s i n g l e m o m e n t
i n time. P a r k s C a n a d a w i l l r e v e a l a n u n d e r l y i n g o r p r e v i o u s
p h y s i c a l state o f a n o b j e c t , s t r u c t u r e , o r site at t h e expense o f
l a t e r f o r m s a n d m a t e r i a l o n l y w i t h g r e a t c a u t i o n ; w h e n his
t o r i c v a l u e is c l e a r l y r e l a t e d t o a n e a r l i e r f o r m , a n d w h e n
k n o w l e d g e a n d existing m a t e r i a l o f that earlier f o r m a l l o w
SAFETY FROM IMPAIRMENT OR T H R E A T

T h e first task i n e n s u r i n g the p r o t e c t i o n o f physical
resources from i m p a i r m e n t is t o i d e n t i f y a n d characterize
all the resources i n the Level I category. B r i e f passages
extracted from the c u l t u r a l resource m a n a g e m e n t p o l i c y
define Level I a n d Level I I resources:
2.2.1
Level I :
N a t i o n a l h i s t o r i c s i g n i f i c a n c e is t h e h i g h e s t l e v e l a s s i g n e d t o
a c u l t u r a l resource i n the c u s t o d y o f Parks Canada. N a t i o n a l
historic significance w i l l be d e t e r m i n e d i n accordance w i t h
t h e N a t i o n a l H i s t o r i c Sites P o l i c y .
2.2.1.1
Evaluation to determine national historic
s i g n i f i c a n c e is u n d e r t a k e n b y t h e H i s t o r i c Sites a n d M o n u
m e n t s B o a r d o f C a n a d a . Its r e c o m m e n d a t i o n t o t h e M i n i s
ter, a n d a n y s u b s e q u e n t M i n i s t e r i a l d e s i g n a t i o n , m a y s p e c i f y
w h i c h r e s o u r c e s w i t h i n a d e s i g n a t e d n a t i o n a l h i s t o r i c site are
themselves o f n a t i o n a l historic significance.
2.2.1.2
W h e r e a M i n i s t e r i a l d e s i g n a t i o n is n o t specific
w i t h respect t o the n a t i o n a l h i s t o r i c significance o f resources

at a n a t i o n a l h i s t o r i c site, t h e p r o g r a m w i l l a p p l y t h e c o m
memorative intent o f the designation to determine w h i c h
1.2
PRACTICE
r e s o u r c e s are t o b e s p e c i f i c a l l y c o n s i d e r e d o f n a t i o n a l his
1.2.2
T o u n d e r s t a n d a n d appreciate c u l t u r a l resources
toric significance.
and the sometimes complex themes they illustrate, the pub

lic w i l l b e p r o v i d e d w i t h i n f o r m a t i o n a n d services t h a t effec
tively c o m m u n i c a t e the i m p o r t a n c e a n d value o f those
resources a n d t h e i r themes.
1.2.3
A p p r o p r i a t e uses o f c u l t u r a l r e s o u r c e s w i l l b e
t h o s e uses a n d a c t i v i t i e s t h a t r e s p e c t t h e h i s t o r i c v a l u e a n d
physical i n t e g r i t y o f the resource, a n d that p r o m o t e public
understanding and appreciation.
2.2.2
Level I I :
A r e s o u r c e t h a t is n o t o f n a t i o n a l h i s t o r i c s i g n i f i c a n c e m a y
have h i s t o r i c v a l u e a n d thus be considered a c u l t u r a l
resource.
2.2.2.1
Parks C a n a d a w i l l establish a n d a p p l y c r i t e r i a t o
d e t e r m i n e w h i c h resources u n d e r its j u r i s d i c t i o n are L e v e l I I . A

r e s o u r c e m a y b e i n c l u d e d i n t h i s c a t e g o r y b y v i r t u e o f its his
t o r i c a l , aesthetic, o r e n v i r o n m e n t a l q u a l i t i e s . C r i t e r i a w i l l also
1.4
RESPECT
g i v e c o n s i d e r a t i o n t o s u c h factors as r e g i o n a l o r l o c a l associa
1.4.1
C u l t u r a l resources w i l l be m a n a g e d w i t h c o n t i n u
t i o n ; o r p r o v i n c i a l , t e r r i t o r i a l o r m u n i c i p a l designations.
o u s care a n d w i t h r e s p e c t f o r t h e i r h i s t o r i c c h a r a c t e r ; t h a t is,
f o r t h e q u a l i t i e s f o r w h i c h t h e y are v a l u e d .
T h e c u l t u r a l resource m a n a g e m e n t p o l i c y
describes the "practice" o f c u l t u r a l resource m a n a g e m e n t
2.2.2.2
B u i l d i n g s t h a t are d e s i g n a t e d " c l a s s i f i e d " o r "rec
ognized" i n accordance w i t h the Federal Heritage Buildings

P o l i c y w i l l a u t o m a t i c a l l y b e c o n s i d e r e d as L e v e l I I c u l t u r a l
resources, unless t h e y m e e t t h e r e q u i r e m e n t s t h a t have b e e n
as p r o v i d i n g a " f r a m e w o r k for d e c i s i o n - m a k i n g rather
d e s c r i b e d f o r L e v e l I c u l t u r a l r e s o u r c e s . B u i l d i n g s m a y also
t h a n a set o f p r e d e t e r m i n e d answers. Its a i m is t o ensure
be considered Level I I c u l t u r a l resources i n accordance w i t h
t h a t the historic character for w h i c h resources are v a l u e d
criteria d e s c r i b e d . . . above.
is identified, recognized, considered, a n d c o m m u n i c a t e d . "

I n the same v e i n , i t provides the principles for decision
m a k i n g i n c o n s e r v a t i o n a n d o t h e r i n t e r v e n t i o n s . T h i s is an
i m p o r t a n t d o c u m e n t , as i t is at the same t i m e clear a b o u t
5 0
T h e c o m m e m o r a t i v e i n t e g r i t y statement catalogs
all the features and characteristics t h a t s y m b o l i z e the
i m p o r t a n c e o f Grosse l i e and draws o n historical and
archaeological research t o explain and i n t e r p r e t these
35
elements.
51
T h e Level I features are c u l t u r a l landscapes,
strategiesincluding conservation i n t e r v e n t i o n s t h a t
architectural and archaeological vestiges, and m o v a b l e
have as t h e i r objective the m i t i g a t i o n o r avoidance o f
c u l t u r a l resources. T h e c u l t u r a l landscapes i n c l u d e the
threats t o the i n t e g r i t y o f the physical resources. T h e r e
geographic l o c a t i o n as w e l l as the n a t u r a l features and
are t w o m a i n sources o f guidance for decision m a k i n g ,
characteristics o f the island that w e r e so w e l l suited t o its
covering p r e v e n t i o n and i n t e r v e n t i o n . T h e first is the
usesand that are i n ways still largely u n c h a n g e d since
c u l t u r a l resource m a n a g e m e n t p o l i c y section o f the
1832. A l s o i n c l u d e d are the roads, wharfs, views, and ceme
d o c u m e n t Parks Canada Guiding Principles and Operational
teries as w e l l as the strategic separation o f activity sectors
Policies.
e m p l o y e d for h e a l t h purposes.
" C o n s e r v a t i o n encompasses the activities that are a i m e d
52
T a k e n together, all these
55
T h e chapter o n conservation begins b y stating,
resources are v a l u e d for t h e i r authenticity, for the fact that
at the safeguarding o f a c u l t u r a l resource so as t o retain its
they represent the periods i n Canadian h i s t o r y b e i n g c o m
historic value and extend its physical l i f e / '
m e m o r a t e d , and for t h e i r ability t o help convey the
lines that f o l l o w cover the steps t o be t a k e n b y site m a n
themes t o the p u b l i c .
agers as they f o r m u l a t e approaches for the general care o f
T h e i n t e g r i t y statement also sets the stage for
5 6
T h e guide
c u l t u r a l resources o r f o r m u l a t e the detailed plans l e a d i n g
defining the m a n a g e m e n t strategies. For each class o f fea
t o a conservation i n t e r v e n t i o n . T h e y refer the user t o site
ture, the text includes objectives for securing the linkages
m a n a g e m e n t plans and t o the resources available from the
b e t w e e n the feature and the c o m m u n i c a t i o n o f its
Federal H e r i t a g e Buildings Review Office ( F H B R O )
significance, i n the f o r m o f statements o f a desired out
m o r e specific guidance.
Section 4 o f the m a n a g e m e n t p l a n
c o m e : "Presentation o f the landscape reinforces the
5 8
5 7
for
supplies
expression o f landscape c o m p o n e n t s i n such a w a y as t o
d i r e c t i o n for actions b e i n g considered for landscapes,
s u p p o r t the historic nature o f significant sites from the
buildings, and o t h e r Level I resources, as w e l l as for Level
h u m a n quarantine p e r i o d ; . . . a maintenance p r o g r a m t o
I I resources. T h e guidance p r o v i d e d for these actions
c o n t r o l vegetation, n o t a b l y i n the heritage areas, has been
indicates the i m p o r t a n c e a t t r i b u t e d t o the presentation o f
elaborated a n d i m p l e m e n t e d ; . . . the various maintenance
the resources. T h e p l a n offers the m o s t specific guidance
and presentation facilities take i n t o account the fact that
o n ensuring that decisions are m a d e according t o estab
the fences are a m o n g the d o m i n a n t and significant ele
lished policies, t a k i n g account o f concerns for the physical
m e n t s o f the island's historic landscape/'
safety o f Level I resources w h e n presentation is also a
53
59
T h i s approach is also used i n describing the struc
r e q u i r e m e n t . T h e q u a l i t y o f this guidance is d e m o n
tures, p r o c e e d i n g b u i l d i n g b y b u i l d i n g ; reestablishing con
strated b y summaries offered for t w o resource types:
nections o f historic fabric w i t h the historic uses o f the

buildings; and delineating t h e i r respective relevance t o the
Landscapes
and
Environment
Actions s h o u l d seek t o p r o t e c t significant v i e w s recognized
larger site's c o m m e m o r a t i v e i n t e n t . K e y messages associ
as Level I ; restore and m a i n t a i n the divisions and character
ated w i t h Level I features are also gathered and presented
o f the three-sector o r g a n i z a t i o n o f the station; and accen
i n a s u m m a r y s u p p o r t i n g the themes o f i m m i g r a t i o n ,
tuate the landscapes that h i g h l i g h t the areas associated
quarantine, and the Irish d i m e n s i o n .
w i t h the quarantine activities. T h e p l a n favors subtle i n d i
T h e second c o m p o n e n t o f p r o t e c t i n g the signif

icant resources from damage o r threat is the identification
cators over explicit text panels at every t u r n , such as u s i n g

vegetation t o locate features o r l i m i t v i e w s o r access.
o f risks, o f t h e i r sources, and o f t h e i r p o t e n t i a l impacts.
Buildings
A t t e n t i o n t o this is ensured t h r o u g h the guidance available
A c t i o n o r i n a c t i o n is proscribed that w i l l d i r e c t l y o r i n d i
i n the site m a n a g e m e n t plan. T h e physical c o n d i t i o n o f
rectly damage the appearance, architectural detail, o r
each o f the three classes o f Level I resources is described,
s t r u c t u r a l i n t e g r i t y o f a historic b u i l d i n g . For each b u i l d
w i t h examples o f some o f the p r i n c i p a l risks; these
i n g , an architectural i n t e r v e n t i o n p l a n is t o be p r o d u c e d
i n c l u d e i n h e r e n t characteristics o f materials o r context,
that describes p r o b l e m s anticipated i n preserving, using,
w e a t h e r and the d e t e r i o r a t i o n o f previous protective
and presenting the structure. T h e p l a n requires the use o f
measures (such as p a i n t ) , impacts caused b y vehicles, o r
best practices i n p l a n n i n g and i m p l e m e n t i n g i n t e r v e n t i o n s
changes i n v e g e t a t i o n .
54
T h e t h i r d c o m p o n e n t i n p r o t e c t i n g these
resources is developing a n d / o r e m p l o y i n g m a n a g e m e n t
36
and points the staff t o w a r d a d d i t i o n a l guidance, such as

the F H B R O Code o f Practice, w h i c h specifically governs
federally o w n e d structures.
60
F H B R O Code of
a n d spiritual. These dimensions are values related t o the
Practice
s o l e m n , serene atmosphere o f t h e place. T h e first d i m e n
Principles o f Conservation Actions
sion o f the e n c o u n t e r relates t o the sense o f place, defined
T h e first p r i n c i p l e is t h a t o f m i n i m u m i n t e r v e n t i o n ; it
d i m e n s i o n is the k n o w l e d g e t h a t can be t r a n s m i t t e d t o vis
s i d e r e d s u c h t h a t n o m o r e is d o n e t o t h e features t h a n is
i t o r s t h r o u g h the resources o f the island. T h e final d i m e n
a c t u a l l y necessary. T h i s e n s u r e s t h a t r e p l a c e m e n t ( h i g h
sion o r value is a s p i r i t u a l one, consisting o f v i s i t o r s '
i n t e r v e n t i o n ) is t h e last o p t i o n c o n s i d e r e d , n o t t h e
insights about themselves t h a t t h e y m i g h t o b t a i n t h r o u g h
first.
O t h e r p r i n c i p l e s i n t h i s set are as f o l l o w s :
as the e m o t i o n s evoked i n the v i s i t o r b y the site. A second
r e q u i r e s t h a t a p r o b l e m a n d its p o s s i b l e s o l u t i o n s b e c o n
each case unique, w h i c h d e m a n d s t h a t m e a s u r e s a n d m a t e
t h e i r visit t o the site.

A n i m p o r t a n t c o n t r i b u t i o n o f this d o c u m e n t is
rials are s e l e c t e d f o r t h e specific s i t u a t i o n at h a n d
t h a t i t analyzes and ties the various elements o f the site
balancing, w h i c h r e q u i r e s t h a t i n t e r v e n t i o n s w e i g h c o n
buildings, layout, patterns o f l a n d use, landscapes, and
s e r v a t i o n p r i n c i p l e s o f c a u t i o n , h o n e s t y , a n d fit i n rela
v i e w s t o the three statements o f the c o m m e m o r a t i v e
t i o n t o the heritage values o f the b u i l d i n g
i n t e n t and o t h e r heritage values. I t also elaborates o n the
caution, w h i c h is i m p o r t a n t p a r t i c u l a r l y w h e n t h e a u t h e n
topics t o be presented t o c o m m u n i c a t e the three elements
t i c i t y o f t h e m a t e r i a l is e s p e c i a l l y v a l u e d
o f the c o m m e m o r a t i v e i n t e n t and indicates w h i c h
honesty, w h i c h r e g u l a t e s c h o i c e s b a s e d o n e x i s t i n g e v i
resources w i l l be used t o do so. For example, u n d e r the
d e n c e , so t h a t t h e d i f f e r e n c e b e t w e e n n e w a n d o l d f a b r i c
t h e m e o f the Irish M e m o r i a l , the i n f o r m a t i o n a b o u t Irish
is l e g i b l e
fit or compatibility,
i m m i g r a t i o n d u r i n g the first h a l f o f the n i n e t e e n t h cen

w h i c h aims to encourage h a r m o n y o f
p r o p o r t i o n , t e x t u r e , m a t e r i a l s , etc., w h e n d e a l i n g w i t h
contextual values
t u r y is t o be m e n t i o n e d first i n the D i s i n f e c t i o n B u i l d i n g ,
a l t h o u g h this structure d i d n o t exist d u r i n g the p e r i o d
b e i n g discussed. Later, guides w i l l present i n f o r m a t i o n
a b o u t the Irish Famine and the tragedy o f 1847 d u r i n g the
visit t o the Celtic Cross, the I r i s h Cemetery, the n e w Irish
E F F E C T I V E COMMUNICATION OF T H E REASONS
M e m o r i a l , and the Lazaretto. Finally, the t o p i c o f the s y m
FOR T H E SITE'S IMPORTANCE
b o l i c value o f Grosse l i e t o the Irish is t o be " c o m m u n i
As e l o q u e n t as a dilapidated b u t i n t a c t n i n e t e e n t h - c e n t u r y
cated" t h r o u g h visits t o the c e m e t e r y and the Irish M e m o
l a u n d r y house m i g h t be t o an architectural h i s t o r i a n , i t
rial. Similar analyses a n d plans are presented for each o f
m a y stand m u t e before a nuclear physicist o n v a c a t i o n
the themes and t h e i r topics.
w i t h her f a m i l y As is recognized f u l l y i n all the p e r t i n e n t
T h e Plan of the Visit Experience also examines the
Parks Canada guidance, the m e a n i n g o f c u l t u r a l resources
p o t e n t i a l for, a n d constraints r e l a t i n g t o , expanding the
such as those at Grosse l i e is revealed t h r o u g h effective
audiences for Grosse l i e , i n c l u d i n g the logistics o f g e t t i n g
c o m m u n i c a t i o n o f the values h e l d t h e r e i n . F u r t h e r m o r e ,
t o and from the island. T h e p l a n proposes a range o f selec
the site is actually seen t o lose its c o m m e m o r a t i v e
tive tours, each t a r g e t i n g a p a r t i c u l a r audience o r concept,
i n t e g r i t y i f the messages a u t h o r e d for the site are n o t
to be developed and tested over t i m e . T h e various t o u r s
effectively c o m m u n i c a t e d t o visitors.
recognize the constraints i m p o s e d b y the short d u r a t i o n
T h e i n t e r p r e t i v e scheme for Grosse l i e is n o t yet

f u l l y i n place. I n k e e p i n g w i t h its responsibilities, Parks
o f visits t o the site, a result o f the t r a n s p o r t a t i o n schedule.

B o t h the m a n a g e m e n t p l a n and the i n t e g r i t y
Canada has d i v i d e d its a t t e n t i o n b e t w e e n the stabilization
statement acknowledge o t h e r issues t h a t p r o m i s e t o c o m
o f the physical resources a n d the phased d e v e l o p m e n t o f
plicate the presentation o f messages r e g a r d i n g the
the i n t e r p r e t i v e plans. Therefore, w h i l e i t is n o t yet possi
significance o f Grosse l i e i n several areas: p e r i o d i z a t i o n ,
ble t o experience a c o m p l e t e d presentation, i t is possible
s u r v i v a l o f features f r o m all phases, a n d u n e v e n represen
to r e v i e w the ideas a n d principles t h a t w i l l help shape the
tativeness o f the c u l t u r a l resources, a m o n g others.
i n t e r p r e t i v e scheme and t o see h o w they reflect the values

identified for the site. T h e Plan of the Visit Experience
T h e one-hundred-year span o f t i m e b e i n g c o m
m e m o r a t e d saw d r a m a t i c changes i n the o p e r a t i o n o f
o f Grosse l i e defines the experience t h a t the v i s i t o r w i l l
Grosse lie as a quarantine station. Public health, science,
have at the site, t h r o u g h the activities a n d services t o be
m e d i c i n e , and t r a n s p o r t a t i o n all w e n t t h r o u g h i m p o r t a n t
offered. T h i s d o c u m e n t identifies three dimensions o f the
developments t h a t left an i m p a c t o n the island; these
v i s i t o r s encounter w i t h the site: associative, educational,
changes f o r m p a r t o f the significance o f the landscape and
37
b u i l t e n v i r o n m e n t . As the i n t e g r i t y statement reports,
interpretive panels and brochures about Grosse l i e a n d the
" T h e i n i t i a l installations at the quarantine station w e r e
Irish M e m o r i a l w i l l be o n l y sparsely used.
marked by improvisation (hurried planning) and igno

rance (forms o f transmission o f epidemic diseases). T h i s
Objectives for Messages of National
phase was f o l l o w e d b y a r a t i o n a l i s a t i o n o f r e c e p t i o n infra
Significance
structures for i m m i g r a n t s t h a t w e n t b e y o n d Grosse l i e ,
Integrity
i m p r o v i n g the c o m p l e m e n t a r y facilities at the p o r t o f
Quebec, Levis, and Pointe au Pere. I n this manner, the his
Commemorative
Statement
T h e p r e s e n t a t i o n o f G r o s s e l i e is t i e d i n w i t h c o m m e m o
rative intent, l i n k i n g the resources that s y m b o l i z e the
t o r y o f quarantine is i n m a n y ways m a r k e d b y the evolu
site's n a t i o n a l s i g n i f i c a n c e w i t h messages o f n a t i o n a l his
t i o n o f the p h e n o m e n o n o f i m m i g r a t i o n i n the w o r l d and

especially at Q u e b e c . "
from the
Historic
t o n e significance.
62
T h e traces o f these events can be difficult t o
T h e messages e l a b o r a t e d i n p u r s u i n g t h e c o m m e m o r a
t i v e i n t e n t ease t h e i n t e r a c t i o n b e t w e e n t h e v i s i t o r a n d
m a i n t a i n , b u t they are i m p o r t a n t t o the story. T o realize
t h e r e s o u r c e s o f t h e n a t i o n a l h i s t o r i c site, f o r w h i c h t h e
the c o m m e m o r a t i v e i n t e n t o f the site, the s t o r y o f a par
v a l u e s are c o m m u n i c a t e d .
ticular p e r i o d m u s t be t o l d i n the physical context o f
buildings a n d o t h e r features t h a t w e r e n o t present d u r i n g
T h e r e s o u r c e s are p r e s e n t e d as a c o h e r e n t a n d s i g n i f i c a n t
whole.
that t i m e . W i t h o u t some t h o u g h t f u l i n t e r p r e t i v e cues, the
v i s i t o r w o u l d have a difficult t i m e d i s t i n g u i s h i n g the fea
T h e messages are c o m m u n i c a t e d t o t h e p u b l i c i n a c l e a r
fashion, t a k i n g i n t o account the needs o f different clien
tures o f one p e r i o d from those o f the next.
teles a n d u s i n g a p p r o p r i a t e m e a n s .
I n fact, m o s t o f the historic resources o n the
island date t o the final phase o f use o f the quarantine sta
E v a l u a t i o n m e t h o d s a n d t o o l s are e s t a b l i s h e d t o d e t e r
m i n e the efficiency o f message t r a n s m i s s i o n
6 3
t i o n . V e r y l i t t l e standing architecture survives from the

t i m e w h e n the station s m o s t d r a m a t i c events transpired
Quality of the Visitor's
and for w h i c h the site is, i n part, c o m m e m o r a t e d . T h i s sit
Experience
T h e q u a l i t y o f t h e v i s i t o r ' s e x p e r i e n c e is a c o n c e p t t h a t is
u a t i o n challenges the i n t e r p r e t i v e p r o g r a m t o address the
used i n the m a n a g e m e n t o f m a n y c u l t u r a l resources and
h i s t o r y i n o t h e r ways.
t h a t g e n e r a l l y s u m m a r i z e s w h a t t h e s t a f f h a s i d e n t i f i e d as
C o m m u n i c a t i n g the p r i n c i p a l themes and the

stories t h a t convey t h e m t h r o u g h the physical remains
t h e k e y v a l u e s o r aspects o f t h e p l a c e . F o r G r o s s e l i e a n d
requires a sophisticated p r o g r a m o f i n t e r p r e t a t i o n . W h i l e
t h e I r i s h M e m o r i a l , t h i s is d o n e i n t h e Plan of the Visit
i t m i g h t be possible t o dismantle some o f the v e r y recent
Experience, *
structures (such as storage buildings from the 1960s) i n
t o t h i s p o s i t i v e e x p e r i e n c e a n d ties i t t o specific r e s o u r c e s
order t o simplify the landscape, i t m a y n o t be appropriate.
o n t h e site. T h e e l e m e n t s i d e n t i f i e d as c o n t r i b u t i n g t o a
Requirements i n h e r e n t i n the statement o f c o m m e m o r a
q u a l i t y e x p e r i e n c e are
w h i c h identifies the factors t h a t c o n t r i b u t e
tive i n t e n t require an innovative approach that does n o t
h i s t o r i c landscapes a n d v i e w s t h a t evoke the past
sacrifice any o f the resources. T h u s the statement affords
visible archaeological remains
strong, holistic p r o t e c t i o n that calls for creative and con
i m p o r t a n t b u i l d i n g s w i t h p u b l i c access
scientious m a n a g e m e n t .
c o m p e t e n t guides
T h e management p l a n echoes these protectionist
i n t e r p r e t a t i o n routes and paths that allow the visitor t o

e x p e r i e n c e t h e site
concepts and offers guidance o n methods for realizing these
firsthand
objectives b y folding t h e m i n t o three w o r k a b l e principles:
a cultural and natural experience
respecting the spirit o f the place, e m p l o y i n g a comprehen
the presence o f partners o f Parks Canada w h o can e n r i c h

the experience o f the visitor
sive and specific v i e w o f history, and using an approach that

emphasizes the i m p o r t a n t connections b e t w e e n the n a t u r a l
e n v i r o n m e n t and the c u l t u r a l resources.
P R O T E C T I O N OF T H E SECONDARY HERITAGE
I n l i g h t o f these principles, the i n t e n t i o n expres
VALUES OF T H E SITE
sed i n the m a n a g e m e n t p l a n is t o present the historic a n d
A l l m a n a g e m e n t d o c u m e n t s t o u c h o n the secondary
n a t u r a l features i n an i n f o r m a t i v e a n d e n g a g i n g w a y w h i l e
heritage values o f the site, w h i c h i n c l u d e historic,
m a i n t a i n i n g a dignified and relatively somber image for
archaeological, o r o t h e r evidence o f paleohistoric d i m e n
the site. A l o w - k e y t o n e is preferred on-site, and off-island
sion; the early land-grant settlements; the a r m y presence
38
GROSSE f L E A N D T H E I R I S H M E M O R I A L N A T I O N A L H I S T O R I C SITE
d u r i n g periods o f w a r ; and use b y A g r i c u l t u r e Canada.
at Grosse l i e . T h e r e p o r t f o u n d that the strategic guide
T h e exceptional n a t u r a l e n v i r o n m e n t o f the island also
lines i n the p l a n that relate t o p r o t e c t i n g and presenting
falls i n this category. A s s i g n m e n t o f these diverse and
the n a t u r a l resources o f the site are enhancing the v i s i o n
interesting k i n d s o f resources t o this second level does n o t
o f the site a n d fostering s o u n d m a n a g e m e n t
i m p l y that t h e y are n o t i m p o r t a n t o r delicate o r w o r t h y o f
less, some areas o f p o t e n t i a l conflict are singled o u t for
65
6 7
Neverthe
attention. The principle o f commemorative integrity o f
m o n i t o r i n g , i n c l u d i n g the possible i m p a c t o n the shore
Parks Canada requires that the heritage values o f the
line o f n e w o r expanded v i s i t o r facilities, difficult choices
siterepresented b y Level I I resourcesbe respected i n
relating t o the effect o f vegetation (rare o r typical) o n his
m a n a g e m e n t decisions. These resources, however, are n o t
toric structures, and i m p a c t o n bat colonies o f conserva
the focus o f intensive interpretive o r protective activity.
t i o n interventions o n buildings. These areas w i l l be dis
I n some instances, buildings o f the p o s t w a r era

are i n conflict w i t h some o f the Level I landscapes, partic
cussed f u r t h e r below.
A t Grosse lie, t w o specific management policies
u l a r l y i n the C e n t r a l Sector o f the island. W h i l e the c o m
are aimed directly at p r o t e c t i n g the e n v i r o n m e n t a l values,
m e m o r a t i v e i n t e g r i t y principle requires that these struc
and they have an interesting effect o n an i m p o r t a n t objec
tures be respected, site m a n a g e m e n t staff has considered
tive o f the site. T h e first is that visitors are n o t allowed t o go
r e m o v i n g o r relocating some o f t h e m t o free some
i n t o the b a c k c o u n t r y away from the areas near the gravel
significant vistas. N o n e o f the buildings have yet been
road, the buildings, and the public spaces. Second, they are
removed, and there is serious discussion as t o the i m p a c t
not allowed t o come ashore from private transport o r from
that actions o f this t y p e w o u l d have o n the c o m m e m o r a
anywhere except the m a i n wharf. These policies b o t h pro
tive i n t e g r i t y o f the site.
tect the n a t u r a l e n v i r o n m e n t and l i m i t access t o the site t o
I n the management plan, strategic d i r e c t i o n w i t h
the c o m m e r c i a l carriers. W h i l e managers w o u l d w e l c o m e
regard t o infrastructure notes that all n e w facilities w i l l be
m o r e visitors and w o u l d like t o have visitors stay for longer
designed and located t o have the least possible i m p a c t o n
periods, they are n o t w i l l i n g t o p u t even the Level I I
c u l t u r a l and n a t u r a l resources. T h e e n v i r o n m e n t a l values
resources at risk t o accomplish these goals.
o f Grosse lie, w h i l e they are seen as Level I I , have their

o w n set o f protections under federal law. T h e Canadian
I m p a c t o f M a n a g e m e n t Policies o n the
Environmental Assessment Act, passed i n 1992, provides p o w
Site's Values a n d Their P r e s e r v a t i o n
erful support for e n v i r o n m e n t a l p r o t e c t i o n at nationally

managed sites, a m o n g other places. T h e act established a
federal e n v i r o n m e n t a l assessment process that requires
that any action that m a y have an effect o n resources o f nat
u r a l o r c u l t u r a l significance m u s t be preceded b y an assess
m e n t o f p o t e n t i a l risks o r d a m a g i n g impacts. A n effect is
considered t o be "any change that the project m a y cause i n
the e n v i r o n m e n t , i n c l u d i n g any effect o f any such change
o n health and socio-economic conditions, o n physical and
c u l t u r a l heritage, o n the c u r r e n t use o f lands and resources
for traditional purposes b y aboriginal persons, o r o n any
structure, site o r t h i n g that is o f historical, archaeological,
paleontological o r architectural significance."
66
T h e act calls for the redesign w i t h appropriate risk

m i t i g a t i o n , o r for the w i t h d r a w a l o f any project h a v i n g an
effect, i n order t o ensure a proactive protective approach.
A g a i n , all m a n a g e m e n t documents encourage avoiding
solutions that require dramatic decisions regarding the
e n v i r o n m e n t i n order t o save an i m p o r t a n t historic feature.
T h e m a n a g e m e n t p l a n contains a s u m m a r y o f
H o w d o m a n a g e m e n t decisions and actions on-site affect

the values? T h i s question m a y also be posed i n t e r m s o f
the i n t e g r i t y statement: H o w are m a n a g e m e n t decisions
affecting the p r o t e c t i o n o f the Level I resources o r the
effective c o m m u n i c a t i o n o f the site's significance o r the
m a n a g e m e n t o f the o t h e r heritage values?
This question can be addressed from at least t w o
directions. First, Parks Canada has several procedures t o
t r a c k its o w n effectiveness i n achieving the objectives
defined d u r i n g the p l a n n i n g process. Second, specific situ
ations and their resolutions can shed l i g h t o n h o w w e l l
plans are b e i n g i m p l e m e n t e d and w h e t h e r they are
p r o d u c i n g the desired effects. T h i s discussion w i l l l o o k at
each o f the areas o f value at Grosse l i e and the means
used b y Parks Canada staff to assess effectiveness. Particu
lar situations i n each o f the areas w i l l be used t o illustrate
decisions m a d e on-site.
PROTECTING L E V E L I RESOURCES
A n u m b e r o f operational controls help Parks Canada staff
the e n v i r o n m e n t a l assessment that e x a m i n e d the p o t e n
ensure the p r o t e c t i o n o f the resources for w h i c h Grosse
tial impacts o f the activities o f v i s i t a t i o n and m a n a g e m e n t
lie is recognized at the n a t i o n a l level. Each year, the crew
39
o f skilled technicians and the site managers define a w o r k
The L a z a r e t t o
p r o g r a m o f u r g e n t r e m e d i a l actions, n o r m a l mainte
nance, infrastructure i m p r o v e m e n t s , and the occasional
research activity. Various factors affect the design o f this
p r o g r a m , i n c l u d i n g o p p o r t u n i t y , i m p o r t a n c e , and avail
able resources. I n the discussions regarding these deci
sions, the staff depends o n a relational database i n w h i c h
specific resources have i n d i v i d u a l files, and t h e i r physical
lazaretto [or lazaret or lazarette] 1. A hospital

treating contagious diseases. 2. A b u i l d i n g o r
ship used as a quarantine station. 3. A storage
space b e t w e e n the decks o f a ship.
histories are tracked. H a v i n g detailed records o f this k i n d

helps m a i n t a i n objective priorities w h e n there are literally
Significance o f the B u i l d i n g
hundreds o f conservation challenges a w a i t i n g a t t e n t i o n .

A team-based approach used i n p l a n n i n g situations
c o m b i n i n g architects, archaeologists, technicians, ethnog
raphers, and interpretersand i n the field also helps the
site staff m a i n t a i n a balanced approach t o ensuring the
h e a l t h o f the resources. W h i l e each specialty has its o w n
concerns, the t e a m is u n i t e d b y the i n s t i t u t i o n a l c o m m i t
m e n t t o Grosse lie's c o m m e m o r a t i v e integrity. T h e fact
that the buildings are i m p o r t a n t because they have stories
t o tell makes i t all the m o r e i m p o r t a n t that the architects,
the technicians, and the i n t e r p r e t i v e experts all participate
i n decisions a b o u t their care.
O n e o f the reasons the H S M B C r e c o m m e n d e d
the designation o f Grosse l i e as a n a t i o n a l historic site was
the presence o f m a n y structures o n the site that repre
sented its quarantine functions. Today those buildings
constitute one o f the m o s t e l o q u e n t elements o f the site;
they also present a challenge i n t e r m s o f conservation.
T h e n u m b e r o f structures and their c o n d i t i o n call for a
l o n g p e r i o d o f conservation activities u n t i l all o f t h e m
have been stabilized and made sound. Maintenance o f
any b u i l d i n g i n this climate is always a challenge, even
w h e n there are n o requirements apart f r o m p u r e physical
preservation. H o w e v e r , w h e n the b u i l d i n g is considered
t o have value i n p a r t because o f its age, its bleak l o c a t i o n ,
and its fragile status, the j o b becomes rather m o r e
d e m a n d i n g . Parks Canada has developed approaches
t o the conservation and presentation o f the i n d i v i d u a l
buildings, s o m e t h i n g that has been discussed at various
points i n this case. T h e Grosse lie National Historic
Site
Development Concept o f 1992 states i n this regard that:
T h e Lazaretto is a Level I structure located near

the eastern t i p o f Grosse lie (location 19, fig.
1.3). I t is one o f o n l y four structures o n the
island that dates f r o m the early years o f the
quarantine station, and i t is the single one
r e m a i n i n g f r o m the tragic year o f 1847. I t is also
the o n l y r e m a i n i n g intact b u i l d i n g that served
as a hospital d u r i n g the p e r i o d c o m m e m o r a t e d
at Grosse lie. Because o f its u n i q u e significance,
i t was designated a Federal Heritage B u i l d i n g
and singled o u t for c o m m e m o r a t i o n b y the
H i s t o r i c Sites and M o n u m e n t s B o a r d .
T h e Lazaretto was b u i l t as one o f a set o f simi

lar buildings i n a c o m p l e x dedicated t o the care
o f the i l l and convalescing i m m i g r a n t s . T h e
c o m p l e x i n c l u d e d kitchens, residences for
cooks and nurses, a police station, washhouses,
outbuildings, and latrines b u i l t i n response t o
the vast n u m b e r o f i m m i g r a n t s w h o reached
the island i n 1847.
the treatment o f visible archaeological remains, structures

a n d b u i l d i n g s w o u l d r e m a i n discreet a n d non-invasive . . .
w o r k w o u l d be p e r f o r m e d o n the buildings w i t h the a i m ,
M o s t o f the structures f r o m this c o m p l e x have

since disappeared, and any r e m a i n i n g vestiges
p r i m a r i l y , o f m a i n t a i n i n g the features t h e y have generally

r e t a i n e d since t h e i r relative a b a n d o n m e n t , w h i l e p r o t e c t i n g
t h e m against f u r t h e r d e t e r i o r a t i o n . Care w o u l d be taken, i n
p a r t i c u l a r , t o p r e s e r v e t h e m a r k s left b y t h e p a s s i n g y e a r s ,
[continued on page 46]

40
are u n d e r g r o u n d o r o v e r g r o w n w i t h vegeta
t i o n ; even the Protestant Cemetery, nearby,
T h e L a z a r e t t o s e e n from t h e s o u t h w e s t .
T h e west e n d and rear o f the Lazaretto, s h o w i n g some o f

t h e w i n d o w s a n d d o o r s i n t h e b a c k w a l l o f t h e b u i l d i n g , as
w e l l as t h e b e a d - b o a r d s k i r t t h a t c o v e r s t h e r e p l a c e d p i e r s
that support the building.
was p a r t l y o b l i t e r a t e d i n the c o n s t r u c t i o n o f
were inadequate
the l a n d i n g strip. As a result, i t is h a r d t o visual
for the general use o f emigrants were converted
ize the o r i g i n a l spatial o r g a n i z a t i o n o f this
i n t o hospitals. B y 1848, the quarantine station,
special z o n e . T h u s , the survival o f the r e m a i n
w h i c h c o u l d accommodate at the opening o f
i n g Lazaretto takes o n great i m p o r t a n c e i n
navigation i n 1847 only 200 hospital patients and
c o m m u n i c a t i n g the c o m m e m o r a t i v e i n t e n t
800 healthy i m m i g r a n t s , possessed facilities
o f the site.
sufficient for 2,000 sick, 300 convalescent and
A l l the buildings intended
3,500 i m m i g r a n t s i n detention. There were t w o

History
convalescent hospitals i n the end o f the island,
A l t h o u g h Grosse l i e began o p e r a t i n g as a quar
'containing 150 beds each, together w i t h sheds
antine station i n 1832, its early r o l e was largely
capable o f l o d g i n g 3,500 i m m i g r a n t s / "
l i m i t e d t o c u r s o r y examinations o f i m m i g r a n t s
o n t h e i r w a y t o t h e p o r t o f Quebec. I t was n o t
T h e Lazaretto is one o f a d o z e n o f the q u i c k l y
u n t i l the great epidemics o f the 1840s that pas

sengers, b o t h healthy a n d sick, w e r e detained
o n the island. A h i s t o r i a n describes the situa
t i o n v i v i d l y : " C o n d i t i o n s w e r e chaotic at G I
assembled sheds erected that year t o handle

the large n u m b e r s o f a r r i v i n g i m m i g r a n t s .
B y the f o l l o w i n g year, all the a c c o m m o d a t i o n s
i n the Eastern Sector o f the island h a d b e e n
designated as sickbay, k e e p i n g the sick and
t h r o u g h o u t 1847. B o t h the facilities and staff
41
convalescing i m m i g r a n t s away from t h e i r

healthy travel companions, w h o w e r e h o u s e d
i n the W e s t e r n Sector i n the First, Second, a n d
T h i r d Class H o t e l s .
B y 1878, all the 1847 sheds h a d disappeared
except for this one. O v e r the years, this r e m a i n
i n g shed was r e p u r p o s e d several times and
T h e i n t e r i o r o f t h e east e n d o f t h e L a z a r e t t o , s h o w i n g o n e
o f t h e d i a g o n a l b r a c e s as w e l l as o n e o f t h e w i n d o w s
m o d i f i e d f o r a l a t e use o f t h e b u i l d i n g .
altered m a n y m o r e . T h e first t r a n s f o r m a t i o n
was done q u i c k l y i n 1848, t o change the shed's
use from passenger a c c o m m o d a t i o n s t o hospi
tal quarters. A t t h a t t i m e the i n t e r i o r was
d i v i d e d i n t o f o u r separate areas, evidence for
w h i c h survives t o some extent today. Floors,
ceilings, paneling, and exterior siding w e r e
changed several times over the years. D o c u
m e n t s indicate that d u r i n g its years as a hospi
tal, the i n t e r i o r and exterior walls w e r e l i m e washed regularly as a means o f disinfection.
F r o m the 1850s u n t i l i t ceased b e i n g used as a
hospital i n the 1920s, i t h o u s e d m a i n l y smallpox
T h e M a r c o n i S t a t i o n i n S e p t e m b e r 2001. B u i l t i n 1919, t h e
M a r c o n i S t a t i o n is a s m a l l b u i l d i n g w i t h a d o u b l e - s i d e d r o o f .
I t is set b a c k from t h e r o a d , close t o t h e r i v e r , a n d n o t far
from
the physicians' residence. T h e u t i l i t a r i a n role o f the
patients, and i t became k n o w n as the Shed des

picotes. P l u m b i n g for toilets and baths was
installed a r o u n d the t u r n o f the t w e n t i e t h cen
b u i l d i n g is r e f l e c t e d i n i t s i n t e r i o r a r r a n g e m e n t : t h e c o n s o l e
a n d its o p e r a t o r w e r e i n t h e w e s t e r n half, a n d t h e g e n e r a t o r
a n d w a s h r o o m w e r e i n t h e e a s t e r n h a l f . T h e M a r c o n i Sta
t i o n r e p l a c e d t h e o l d t e l e g r a p h o f f i c e b e t w e e n 1885 a n d 1892.
T h e b u i l d i n g d e m o n s t r a t e d the technological advance i n
c o m m u n i c a t i o n s as w e l l as t h e d a i l y o p e r a t i o n s o f a h u m a n
q u a r a n t i n e s t a t i o n s u c h as G r o s s l i e .
tury. I n line w i t h the c o n t e m p o r a r y practice o f

shielding smallpox patients f r o m daylight, a
project was started i n 1904 t o cover the i n t e r i o r
walls o f the r o o m s w i t h r e d p a n e l i n g a n d
possibly t o install r e d glass i n the w i n d o w s .
T h i s measure appears t o have been achieved
o n l y i n the w e s t e r n m o s t r o o m .
A r o u n d 1942 the island was used b y the
42
i n g and t h e n a flat ceiling w e r e added. Never

theless, the structure has retained a n u m b e r o f
o r i g i n a l features i n a d d i t i o n t o its v o l u m e :
French casement w i n d o w s w i t h m a n y small
glass panes, v e n t i l a t i o n outlets, and traces o f
the o r i g i n a l interior, i n c l u d i n g graffiti
from
patients housed i n the b u i l d i n g over the years.

T h e L a u n d r y . B u i l t i n 1855, at t h e s h o r e l i n e , t h e L a u n d r y
facilitated the w a s h i n g o f the i m m i g r a n t s ' c l o t h i n g . Inside
are s o m e o f t h e o r i g i n a l f e a t u r e s , i n c l u d i n g t h r e e o f t h e f o u r
o r i g i n a l c h i m n e y s a n d fireplaces u s e d f o r h e a t i n g w a t e r a n d
d i s i n f e c t i n g c l o t h i n g . I t is t h e o n l y r e m a i n i n g s t r u c t u r e t h a t
I n the first c o n d i t i o n assessment o f the b u i l t

resources done b y Parks Canada staff w h e n the
island became a n a t i o n a l historic site, this
attests t o o n e o f t h e i m p o r t a n t steps i n d i s i n f e c t i o n as p r a c
ticed i n the mid-nineteenth century.
b u i l d i n g was f o u n d t o be i n precarious condi

t i o n . Perhaps m o s t a l a r m i n g was the fact that i t
was sagging badly, because its f o u n d a t i o n foot
Canadian A r m y for e x p e r i m e n t a l research

o n animals. A t that t i m e , the Lazaretto was
converted i n t o a chicken coop, w i t h significant
modifications that closed several o f the doors
o n the facade and c u t n e w w i n d o w s i n t o the
ings h a d shifted and settled. W h i l e the struc

t u r e was s u p p o r t e d o n jacks a w a i t i n g the n e w
footings, a b r i e f salvage archaeology project
was u n d e r t a k e n , y i e l d i n g objects that came
across o n the ships w i t h the Irish i n those early
years. Today a small glass display case i n the
6
walls t o i m p r o v e air circulation. T h e eastern

m o s t o f the f o u r i n t e r i o r r o o m s was n o t
altered m u c h , k e e p i n g its o l d paneling, ceiling,
and w i n d o w s .
eastern r o o m contains objects f o u n d d u r i n g

this w o r k .
T h e challenge before the technical t e a m was t o
e m p l o y all the requisite guidelines, retain (or
Conservation Treatment
reinstate) the historic aspect and value o f this
T h e Lazaretto is one o f the few buildings o n
u n i q u e structure, and m a k e i t safe for visitors
the island that saw c o n t i n u o u s use from the
and guides t o use. T h i s teamas is standard for
1840s u n t i l i t was restored i n 1997 and 1998. As
historic sites i n Q u e b e c i n c l u d e d representa
recorded i n the C u l t u r a l Resources Registry o f
tives from the fields o f architecture, engineer
Quebec, i t h a d been m o d i f i e d several times:
i n g , history, archaeology, and historic preserva
walls w e r e paneled, the i n t e r i o r was p a r t i
t i o n . T h e y e x a m i n e d and analyzed the struc
t i o n e d i n t o four zones, and a three-section ceil
t u r e and the site and c o n c l u d e d that the
43
"as-found" f o r m o f the Lazaretto a l l o w e d for a
n i z e d as an undesirable m a n a g e m e n t o p t i o n ,
c o m p l e t e presentation and "reading" o f its evo
b u t i n previous generations, i t was often the
l u t i o n , described briefly above. T h e y p r o p o s e d
o p t i o n chosen. Parks Canada planners antici
t h a t the i n t e r i o r o f the b u i l d i n g be d i v i d e d i n t o
pated the p o t e n t i a l for p e r i o d i z a t i o n d u r i n g the
three sections, each presenting one phase o f
p l a n n i n g phases and w e r e able t o avoid over
the b u i l d i n g . T h e eastern r o o m w o u l d repre
s i m p l i f y i n g this u n i q u e b u i l d i n g . T h e technical
sent the b u i l d i n g d u r i n g the 1847 epidemic; the
and p h i l o s o p h i c a l decisions f o l l o w e d the nor
central section w o u l d c o r r e s p o n d t o its service
m a t i v e guidance, w h i c h states t h a t c u l t u r a l
as a hospital; and the w e s t e r n section w o u l d
resources s h o u l d be v a l u e d i n t h e i r context and
evoke the 1850-1927 p e r i o d o f the smallpox
t h a t a c u l t u r a l resource "whose historic value
quarantine.
derives from its witness t o m a n y periods i n his
As i t n o w stands, the b u i l d i n g sits o n n e w foun

dations, so the sagging floors and slightly lean
i n g walls are n o t v e r y exaggerated o r precari
t o r y w i l l be respected for t h a t e v o l u t i o n , n o t
j u s t for its existence at a single m o m e n t
in time."
1 0
ous. Some early graffiti o n the i n t e r i o r w h i t e
B y c o m p a r i s o n , the c u r r e n t appearance o f
w a s h e d w o o d is p r o t e c t e d b e h i n d clear plastic
the Lazaretto's exterior seems t o t e l l q u i t e a
sheets. T h e w e s t e r n m o s t r o o m has its red-
different story. C e r t a i n l y i t is the result o f
p a i n t e d w a l l s a n d ceiling restored from the
decisions that r e q u i r e d j u g g l i n g a n u m b e r o f
1920s. M u c h o f the i n t e r i o r space retains its
considerations, a n d the difference b e t w e e n the
o r i g i n a l fabric, and the w i n d o w s opened d u r i n g
i n t e r i o r a n d the exterior demonstrates visibly
its p e r i o d as a c h i c k e n c o o p can be closed i n
h o w m a n a g e m e n t decisions can affect h o w a
the easternmost r o o m t o s h o w h o w the r o o m
place expresses its o w n history. B e l o w are listed
l o o k e d o r i g i n a l l y A n y n e w elements t h a t have
some o f the considerations t h a t w e r e p a r t o f
been added i n the i n t e r i o r are i m m e d i a t e l y rec
the discussions a b o u t h o w best t o p r o t e c t this
ognizable, distinguished b y t h e i r different p a i n t
particular building.
treatment.
T h e general objectives for p r o t e c t i n g i n situ
T h e i n t e r i o r o f the Lazaretto n o w reads like a
c u l t u r a l resources, w h i c h i n c l u d e p r o t e c t i n g
historic narrative o f the life cycle o f the b u i l d
the structure and all external characteristics o f
i n g , from 1847 t o 1950. Restoring a b u i l d i n g t o a
the b u i l d i n g s and e n s u r i n g t h a t all maintenance
single phase o f a m u l t i p h a s e h i s t o r y (a process
respects the range o f i n t e r i o r finishes.
referred t o as " p e r i o d i z a t i o n " ) has b e e n recog
44
11
T h e objective o f p r e s e r v i n g the "spirit o f the
place" and o f m a i n t a i n i n g i n the structures
weather at this latitude is unquestionably stress
some o f the character they have acquired over
f u l o n clapboard buildings, particularly one set
years o f neglect.
o n pilings instead o f o n f u l l foundations.
12
W h e r e m a t e r i a l (or artifactual values) are
F r o m the outside, the Lazaretto today can be
p r e e m i n e n t , p r o l o n g i n g the life o f s u r v i v i n g
read as a handsome b u i l d i n g i n an antique style,
historic fabric becomes the p r i m a r y concern;
covered n o t w i t h w h i t e w a s h b u t , rather, w i t h
generally speaking, a preservation approach
robust b u t t e r - c o l o r e d latex paint, w i t h green
focused o n s t a b i l i z a t i o n / c o n s o l i d a t i o n and
t r i m . T h e same finishes are used for the M a r
s u p p o r t e d b y a c o n c e r n for c a u t i o n i n the
c o n i Station, w h i c h was b u i l t seventy-eight
conservation principles applied w i l l p r o v i d e

the best means t o respect these values.
years later. For a v i s i t o r w h o expects an approx
13
i m a t i o n o f a u t h e n t i c i t y i n the appearance o f
I n t e r v e n t i o n s respectful o f heritage character
the sole s u r v i v o r f r o m the crisis years, the
s h o u l d be g u i d e d b y the principles o f fit (or
Lazaretto's pristine appearance is a visual sur
c o m p a t i b i l i t y ) f o r example, h a r m o n i z i n g
prise. T h e u n i q u e i m p o r t a n c e o f the b u i l d i n g
p r o p o r t i o n s , color, texture, f o r m s , materials,
and o f the events i t represents are obscured b y
or s t r u c t u r a l characteristics o f added elements,
w h a t can be seen as a maskprotective,
w h e n c o n t e x t u a l values are dealt w i t h . W h e r e
perhaps, b u t inscrutable. T h e external appear
c o n t e x t u a l values are concerned w i t h physical
ance c o u l d be said t o d i m i n i s h the associative
relationships, the p r i m a r y c o n c e r n m a y be pre
value o f this b u i l d i n g b y m a k i n g i t m o r e
s e r v i n g o r reestablishing i m p o r t a n t relation
difficult for the v i s i t o r t o m a k e associations
ships b e t w e e n and a m o n g b u i l d i n g elements
w i t h the times a n d events b e i n g c o m m e m o
and the w h o l e ; w h e r e these values are con
rated. T h i s s t r o n g contrast w i t h the as-yet-
cerned w i t h f u n c t i o n a l context, reestablishing
u n r e s t o r e d historical b u i l d i n g s o n the island,
p r o p e r fit b e t w e e n a b u i l d i n g and its use w o u l d

become i m p o r t a n t .
such as the Laundry, m i g h t lessen as the o t h e r
14
structures are restored o r as the Lazaretto
T h e cost-effectiveness o f l o n g - w e a r i n g surface
weathers over t i m e .
finishes for p r o t e c t i n g the w o o d e n shell, as w e l l

as the m o r e fragile and f u l l y authentic features
Notes
inside, requires n o l o n g explanation. O n e needs

o n l y t o witness one n o r easter t o see h o w v i o
1.
American Heritage College Dictionary, 3 r d e d . ( N e w Y o r k :

H o u g h t o n M i f f l i n , 1993).
l e n t the w e a t h e r can be, especially u p o n this

exposed p r o m o n t o r y . N o r m a l exposure t o
2.
H S M B C 1993; F e d e r a l H e r i t a g e B u i l d i n g s R e v i e w O f f i c e
I995-
45
3.
P a r k s C a n a d a 1998a, 7.
w h i c h h e i g h t e n t h e a u t h e n t i c i t y o f resources. N o b u i l d i n g w o u l d be
4.
A considerable a m o u n t o f i n f o r m a t i o n r e g a r d i n g t h e his
r e s t o r e d t o a f o r m e r state a n d n o n e w o u l d b e r e b u i l t
t o r y o f u s e a n d t r a n s f o r m a t i o n o f t h i s b u i l d i n g is f o u n d i n
t h e Registre des ressources culturelles du Quebec.

5.
Anicki984.
6.
I n f o r m a l c o m p a r i s o n s d o n e t o d a t e w i t h o b j e c t assem
blies o f t h e t i m e i n I r e l a n d suggest t h e p o t e n t i a l f o r
e x t r a o r d i n a r y r e s e a r c h i n t h i s p a r t i c u l a r area o f t h e i s l a n d ;
t h e y also s u g g e s t a r i c h i n f o r m a t i o n r e s o u r c e f o r t h e i n t e r
6 8
T o be consistent w i t h this directive, decisions

r e g a r d i n g h o w best t o p r o t e c t a n d present such b u i l d i n g s
m u s t address a n d balance considerations o f p r o t e c t i o n
from w e a t h e r a n d exposure, the a u t h e n t i c i t y o f the mate
rials, a n d the visual presentation. These are n o t s i m p l e
decisions. I n a few cases at Grosse l i e , recent t r e a t m e n t
pretive p r o g r a m ( M o n i q u e Elie, Parks Canada, personal
projects reflect decisions t h a t appear t o be i n conflict w i t h
communication).
these principles. T h r e e b u i l d i n g s t h e M a r c o n i Station,
7.
F r o m F o r t i e r 1997.
the Public W o r k s Officer's H o u s e , a n d the L a z a r e t t o
8.
T h e dark red e n v i r o n m e n t was t h o u g h t t o reduce damage

t o p a t i e n t s ' e y e s i g h t as t h e y r e c o v e r e d .
n o w have a pristine appearance, i n stark contrast t o o t h e r

historic structures t h a t s u r r o u n d t h e m . T h e r e s t o r a t i o n
o f the Public W o r k s Officer's H o u s e has recently
9.
P a r k s C a n a d a 1998a, 45.
10.
P a r k s C a n a d a 1994a, 103.
11.
P a r k s C a n a d a 1998a, 10.
the b u d g e t available t o Parks Canada. T h e p a r t i c i p a t i o n
12.
E n v i r o n m e n t C a n a d a , C a n a d i a n P a r k s S e r v i c e 1992a, 27.
o f another g o v e r n m e n t d e p a r t m e n t m a d e possible the
13.
F H B R O 1996, 23.
c o n s e r v a t i o n o f this Level I b u i l d i n g , w h i c h u p t o t h a t
I b i d . , 24.
p o i n t h a d n o t b e e n a m o n g the ones identified for p r i o r i t y
14.
b e e n c o m p l e t e d . T h e f u n d i n g for this w o r k was p r o v i d e d

b y the M i n i s t r y o f Public W o r k s , w h i c h s u p p l e m e n t e d
attention.
T h e case o f the Lazaretto is e x a m i n e d i n m o r e
detail i n the sidebar (see p. 40). Topics addressed i n c l u d e
the t r e a t m e n t process f o r t h a t b u i l d i n g a n d its i m p a c t o n
the values associated w i t h the b u i l d i n g as w e l l as a possi
ble missed o p p o r t u n i t y t o develop an innovative a p p r o a c h
t o t r e a t m e n t for an i m p o r t a n t b u i l d i n g .
T h e conflict created b y the existence o f p o s t w a r
structures i n the c e n t r a l p a r t o f the island remains t o be
resolved. W h i l e there are plans t o rehabilitate some o f
the a n i m a l q u a r a n t i n e stations f o r n e w uses after m o v i n g
t h e m t o r e m o t e areas o f the island, n o a c t i o n has b e e n
taken. T h e r e is n o d o u b t t h a t these n e w e r structures stand
w h e r e significant structures (such as the M e d i c a l Superin
tendent's H o u s e ) once s t o o d a n d t h a t t h e y b l o c k w h a t
w o u l d have b e e n the h i s t o r i c v i e w s o f the eastern a n d
w e s t e r n wharfs. W h i l e these are Level I I structures, the
p r i n c i p l e o f c o m m e m o r a t i v e i n t e g r i t y requires t h a t t h e y
be "respected" i n all decisions. I t remains t o be seen h o w
the site staff w i l l i n t e r p r e t this guidance.
E F F E C T I V E COMMUNICATION OF T H E SITE'S
NATIONAL SIGNIFICANCE
Effective c o m m u n i c a t i o n requires t h a t b o t h t h e speakers
a n d the listeners are able t o d o t h e i r respective j o b s . First,
Parks Canada a n d t h e site staff have the responsibility t o
express the messages crafted for the site. T h e r e are also
some i n t e r p r e t i v e panels i n locations a r o u n d the island
t h a t offer i n f o r m a t i o n o n p a r t i c u l a r features. H o w e v e r ,
46
there is c u r r e n t l y a preference for the m o r e personal

approach t o i n t e r p r e t a t i o n t h a t depends o n guides.
AUDIENCE AND ACCESS

T h e second e l e m e n t i n effective c o m m u n i c a t i o n is the
T h e q u a l i t y o f the guides' presentation, the style
ability o f t h e audience t o receive a n d u n d e r s t a n d the mes
o f t h e i r delivery, t h e i r ability t o respond t o questions, a n d
sages b e i n g delivered. Part o f the reason w h y so m u c h his
t h e i r o w n k n o w l e d g e of, a n d interest i n , the subjects can
t o r i c fabric s u r v i v e d o n Grosse l i e relates t o the fact t h a t
d e t e r m i n e t o a great extent the q u a l i t y o f the v i s i t o r s '
this is a p r o t e c t e d island i n the m i d d l e o f a river t h a t has
experience. Parks Canada pays a great deal o f a t t e n t i o n t o
b e e n o f f l i m i t s t o the p u b l i c for m a n y generations. W h i l e
this i n d i c a t o r o f the c o m m e m o r a t i v e i n t e g r i t y o f the site.
the benefits o f this i s o l a t i o n are obvious, the difficulties i t
Grosse l i e a n d the Irish M e m o r i a l is o p e n M a y

t h r o u g h October. A f t e r the close o f the season, an assess
poses i n presenting the site t o the p u b l i c are considerable.

Briefly stated, t r a n s p o r t t o Grosse l i e is l i m i t e d a n d expen
m e n t o f the experience o f the guides is u n d e r t a k e n b y
sive. A visit t o the island ranges b e t w e e n 1.5 a n d 4.5 h o u r s .
means o f a survey T h i s gives the guides the o p p o r t u n i t y
T a k e n together, these factors significantly c o n s t r a i n the
to r e p o r t o n the relative success o f the c o n t e n t o f t h e i r
p o t e n t i a l for access t o the site a n d for a t h o r o u g h presen
presentations; o n the levels o f interest d e m o n s t r a t e d b y
t a t i o n o f the c o m m e m o r a t i v e i n t e n t messages.
visitors; and o n the ways i n w h i c h c o n t e n t is calibrated t o
T h e earliest p l a n n i n g d o c u m e n t s for the site stip
the p a r t i c u l a r interests, ages, nationalities, ethnicities, a n d
ulate t h a t Parks Canada " w i l l operate n o m a r i n e o r air
so o n o f people t o w h o m t h e y spoke. T h e y can r e p o r t o n
t r a n s p o r t a t i o n services t o Grosse lie. Responsibility for
t h e i r difficulties i n c o n v e y i n g c e r t a i n issues o r o n t h e i r
the m a r i n e t r a n s p o r t a t i o n service m a y be assumed b y the
v i e w s o f the need t o expand o n p a r t i c u l a r topics. A t some
service p r o v i d e r o r b y i n d e p e n d e n t carrier." As described

69
p o i n t before the start o f a n e w season, site staff studies the
earlier, v i s i t o r t r a n s p o r t a t i o n is p r o v i d e d m a i n l y b y one
surveys, a n d adjustments m a y be m a d e t o the i n t e r p r e t i v e
b o a t c o m p a n y o p e r a t i n g from the s o u t h shore t o w n o f

Berthier-sur-Mer. T h e crossing lasts a p p r o x i m a t e l y t h i r t y
presentations for the c o m i n g season.

Before the site opens again i n the spring, the
m i n u t e s , a n d there are o n l y three trips t o the island per
guides w h o w i l l w o r k o n Grosse l i e d u r i n g the season are
day d u r i n g the h i g h season (each t r i p can t r a n s p o r t
b r o u g h t together for seventy-five h o u r s o f classroom
a p p r o x i m a t e l y 150 passengers). T h e captain gives a b r i e f
t r a i n i n g . T r a i n i n g materials are prepared a n d g i v e n t o
river t o u r a l o n g the w a y as the f e r r y passes o t h e r islands
each m e m b e r o f the g r o u p ; specialists from Parks
o n the w a y t o the Grosse l i e dock.
Canada, o t h e r agencies, a n d academic i n s t i t u t i o n s i n t h e
T h e business partnership b e t w e e n this boat c o m
r e g i o n serve as lecturers o n Irish history, m e d i c a l history,
pany and Parks Canada can be construed as v i t a l t o Grosse
Canadian history, Parks Canada policy, a n d o t h e r topics.

T h e content o f the interpretive scheme is subject
lie and the Irish M e m o r i a l , b u t n o t necessarily t o the c o m

pany. T h e i r other business comes from w h a l e - w a t c h i n g
to constant change and refinement, depending o n the
trips i n the St. Lawrence, and from charter trips arranged
findings from surveys and o n n e w ideas that c o m e
for hunters d u r i n g the O c t o b e r and N o v e m b e r h u n t i n g sea
from
staff and partners. O t h e r sources for n e w content are the
son. T h i s situation has made i t difficult for Parks Canada
H S M B C and additions t o the system p l a n that the B o a r d
staff to negotiate different arrangements o r longer stays o n
and Canadian Heritage m i g h t r e c o m m e n d . T w o recent
the island for visitors. T h e situation m a y soon change, as
additions w i l l have an i m p a c t o n the presentation o f Grosse
other transport companies seem t o be interested i n provid
lie: the c o m m i t m e n t t o tell the stories o f w o m e n i n Cana
i n g access t o Grosse lie from Quebec City. Discussions are
dian history, and the c o m m i t m e n t t o tell the stories o f cul
also u n d e r w a y about the possibility o f large cruise ships
t u r a l and ethnic diversity T h i s n e w emphasis reiterates the
sending passengers t o the island o n small launches. N o p r i
p o i n t , made earlier i n this discussion, that w h e n a place
vate boats are presently a l l o w e d t o d o c k o r anchor t o b r i n g
becomes a n a t i o n a l historic site i n Canada (as i n m a n y o t h e r
visitors t o the island, and there are n o plans t o change this
countries), i t becomes p a r t o f a system that exists for all the
policy. W h i l e t r a n s p o r t a t i o n t o the island was b e i n g p r o
citizens. Its stories b e c o m e larger w h e n presented o n a
v i d e d o n l y b y boat companies based o n the s o u t h shore, the
national, rather t h a n local, stage. T h e r e is the risk o f losing
e c o n o m i c benefits that the site m i g h t b r i n g w e r e l i m i t e d t o
some o f the specific m e a n i n g o f the place, and decisions
this area. T h e t r a n s p o r t a t i o n n o w b e i n g p r o v i d e d directly
about this are i n the hands o f the n a t i o n a l authority. I t is
from Quebec, a l t h o u g h potentially increasing the n u m b e r
interesting t o see that i n the case o f Grosse lie, a preponder
o f visitors t o the site, m i g h t d i m i n i s h the n u m b e r o f those
ance o f visitors t o the site is, i n fact, native t o t h e p r o v i n c e .
w h o travel t h r o u g h the s o u t h shore t o w n s .
47
A l l means o f access m u s t take i n t o consideration
is l i t t l e chance the v i s i t o r can see the w h o l e site. I f the
t h e i r i m p a c t o n the resources o f the n a t i o n a l historic site.
guides have o n l y 1.5 h o u r s i n w h i c h t o present a f o u r - h o u r
I n 2001, a f i r m i n Quebec approached Parks Canada w i t h
interpretive p r o g r a m , they cannot be as effective as t h e y
interest i n delivering visitors t o Grosse l i e b y hovercraft,
are t r a i n e d t o b e .
b u t this scheme posed several p r o b l e m s . First, the craft
70
T h e c o n t e n t o f the i n t e r p r e t i v e p r o g r a m is still i n
w o u l d need a floating d o c k t o be c o n s t r u c t e d at a cost
development. Success i n this area is t r a c k e d b y p e r i o d i c
o f Canadian $100,000, as i t w o u l d be unable t o use the
r e p o r t i n g . T h e 1999 r e p o r t o n the state o f p r o t e c t e d her
existing fixed, m u l t i l e v e l dock. Second, the noise m a d e b y
itage areas includes a c o m m e m o r a t i v e i n t e g r i t y r e p o r t
the compressed air engines w o u l d interfere w i t h the q u i e t
i n g table, covering several n a t i o n a l historic sites, i n c l u d i n g
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ambience o f the island. I n a d d i t i o n , the i m p a c t o f this
Grosse l i e and the Irish M e m o r i a l . T h e table assigns a
t y p e o f vessel o n the flora and fauna o f the shore w o u l d
grade t o several items listed u n d e r the categories o f
need t o be evaluated.
W i n d o r r a i n can m a k e the crossing from the
"Resource C o n d i t i o n , " "Effectiveness o f C o m m u n i c a

tions," and "Selected M a n a g e m e n t Practices." A l l indica
m a i n l a n d difficult and unpleasant for visitors unaccus
tors at Grosse l i e h a d i m p r o v e d since the previous evalua
t o m e d t o r o u g h seas. G e t t i n g a r o u n d o n the island is rela
t i o n t w o years earlier, except i n the area o f " C o m m u n i c a
tively easy i f one is ambulatory. A n u p h i l l h i k e w i t h stairs
t i o n , " w h i c h includes overall c o m m u n i c a t i o n , c o m m u n i
and r o u g h t e r r a i n p r o h i b i t w h e e l c h a i r access t o the Celtic
cation o f n a t i o n a l significance and o f the n a t i o n a l h i s t o r i c
Cross, a l t h o u g h a level r o a d is available t o the c e m e t e r y
site general values, and c o m m u n i c a t i o n o f the range and
and the n e w Irish M e m o r i a l . Trolleys c a r r y visitors
c o m p l e x i t y o f perspectives presented. Grosse l i e was
t h r o u g h the village and o u t t o the island's Eastern Sector.
g i v e n p o o r m a r k s i n this category, i n d i c a t i n g s h o r t c o m
A l t h o u g h Grosse l i e and the Irish M e m o r i a l is a

n a t i o n a l historic site, i t has n o t b e e n actively p r o m o t e d for
ings i n the presentation o f the site and an absence o f p r o

g r a m m i n g o n the general subject o f " I m m i g r a t i o n . "
l o n g , and i t is n o t yet w e l l k n o w n t o travelers from o t h e r
A n o t h e r w a y t o visit Grosse l i e is t h r o u g h its
provinces o r from outside Canada. Its i n t e r p r e t i v e p r o
W e b s i t e . Interestingly, the W e b site reflects some o f the
g r a m s are n o t f u l l y deployed, and the c a r r y i n g capacity
p r o b l e m s i n c o m m u n i c a t i o n seen o n the island. I n the
o f this site is still b e l o w the projections. Various aspects o f
m e d i u m t h a t allows the creative r e v i s u a l i z a t i o n o f the
the infrastructure are still b e i n g i m p r o v e d , w i t h the possi
site, its buildings, a n d its landscapes, the W e b site design
72
b i l i t y i n v i e w o f larger n u m b e r s o f visitors. T h e w a t e r sys
ers chose t o present the site i n its three g e o g r a p h i c a l sec
t e m has recently b e e n u p g r a d e d ; expanded sewage facili
tors, exactly the w a y one sees i t o n the g r o u n d . I n the
ties are i n the w o r k s ; and o v e r n i g h t a c c o m m o d a t i o n s o n a
"Grosse l i e at a glance" p a r t o f the W e b site, the W e s t e r n
m o d e s t scale are b e i n g c o n t e m p l a t e d . I t is u p t o the local
Sector is explained b u i l d i n g b y b u i l d i n g , i l l u s t r a t e d b y
and r e g i o n a l Parks Canada staff t o undertake m a r k e t i n g
i n d i v i d u a l p h o t o g r a p h s . Elsewhere o n the W e b site, a
efforts; they attend t o u r i s m fairs t o seek p u b l i c i t y for the
v e r y abbreviated h i s t o r y is g i v e n t h a t does n o t connect
site and t o identify channels t h r o u g h w h i c h t h e y can
the physical remains t o the stories o f the place.
encourage interested visitors.

W h i l e the "success" o f Grosse l i e and the Irish
T h e r e is an i n t e r t w i n e d set o f issues t h a t w i l l con

t i n u e t o challenge the managers o f Grosse lie. Constraints
M e m o r i a l is n o t j u d g e d o n the basis o f the n u m b e r s o f
o n access t o the island a l l o w the c o n t i n u e d p r o t e c t i o n o f
visitors attracted annually, the development o f the site
the n a t u r a l e n v i r o n m e n t a n d ensure t h a t all visitors enter
(and the enhancement o f the interpretive p r o g r a m s ) does
the site at the m a i n w h a r f . T h e c o n s e r v a t i o n p r i o r i t i e s for
hinge p a r t l y o n its attendance and i n c o m e . T h e success
the n a t u r a l resources o f the island i n c l u d e the shoreline
o f the site is, however, evaluated o n the basis o f h o w effec
as a P r i o r i t y I sector; P r i o r i t y I elements are considered
tively its heritage values are conveyed t o its visitors. T h e
u n i q u e o r h i g h l y sensitive, and l i m i t e d access is r e c o m
c u r r e n t situation has visitors o n the island for three t o four
m e n d e d , since "all h u m a n a c t i v i t y . . . runs the risk o f
h o u r s at most. T h e r e are a d o z e n historic features spread
u l t i m a t e l y e x t i n g u i s h i n g the e l e m e n t i n q u e s t i o n . "
o u t over the 3.45-km (2.14-mile) l e n g t h o f the island that are
T h e c u r r e n t a r r a n g e m e n t w i t h t r a n s p o r t companies
o p e n t o the public, n u m e r o u s others that can be visited
m a y be l i m i t i n g the n u m b e r o f visitors t o a level l o w e r
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from the outside only, and m a n y o p p o r t u n i t i e s for t a k i n g
t h a n the actual d e m a n d ; the a r r a n g e m e n t also keeps t h e i r
i n the scenery from various vantage points. L e a v i n g t i m e
visits short. T h e apparent exclusivity o f the t r a n s p o r t
for l u n c h e i t h e r a picnic o r a m e a l i n the cafeteriathere
a r r a n g e m e n t has e c o n o m i c benefits for the s o u t h shore
48
a n d for the business partnerships i n force, b u t these
eaves and nested i n the rafters, above the d r o p ceiling.
benefits m i g h t be shared b e t w e e n several companies
W h e n Parks Canada t o o k over the site and began its sys
i n the near f u t u r e .
t e m a t i c e x a m i n a t i o n a n d e v a l u a t i o n o f buildings, i t
R E S P E C T FOR, AND P R O T E C T I O N
OF, O T H E R HERITAGE VALUES
T h i s category o f values includes m o s t n o t a b l y the c u l t u r a l
remains a n d b u i l t e n v i r o n m e n t d a t i n g from before 1832
and after 1937, discussed earlier, as w e l l as the n a t u r a l envi
r o n m e n t . C u l t u r a l remains p r e d a t i n g 1832 are scant, b u t
t h e i r p r o t e c t i o n is addressed t h r o u g h strict controls over
any activity i n v o l v i n g excavation o r disturbance o f subsur
face remains. W h e n archaeology is u n d e r t a k e n , i t is usu
ally i n the context o f some inevitable w o r k s project, o r
w h e n i t can be j u s t i f i e d as c r u c i a l for some o t h e r reason.
C u l t u r a l features p o s t d a t i n g 1937 i n c l u d e a n u m b e r o f
structures b u i l t for storage, quarantine-related uses, o r
scientific activity b y the m i l i t a r y o r a g r i c u l t u r a l sectors o f
the Canadian g o v e r n m e n t . W h i l e these structures seem
less r o m a n t i c t o the v i s i t o r k e e n t o see vestiges o f the
n i n e t e e n t h century, the b u i l d i n g s a n d t h e i r contents repre
sent parts o f the m u l t i l a y e r e d h i s t o r y o f Grosse l i e , a n d
t h e y are l i k e l y t o g r o w i n interest as they age, w i t h i n the
context o f the larger story.
T h e n a t u r a l e n v i r o n m e n t is central t o the c o n d i
t i o n o f c o m m e m o r a t i v e i n t e g r i t y o f Grosse l i e , as the
e n v i r o n m e n t is so m u c h a p a r t o f the spirit o f the place. I n
a d d i t i o n , there is a significant set o f ecozones a n d habitats
i n this riverine context. As has b e e n n o t e d , the delicate
nature o f the l i t t o r a l z o n e e n c i r c l i n g the island is p r o b a b l y
one o f the k e y features o f the protective p l a n i n this area.
T h e p r o t e c t i o n o f this fragile shore system is p a r t o f the
reason w h y Parks Canada has p r o h i b i t e d the d o c k i n g o r
a n c h o r i n g o f private boats. B u t , as m e n t i o n e d above, this
r e s t r i c t i o n l i m i t s the m o d e s o f access and the n u m b e r o f
visitors w h o can experience the site o r b e c o m e familiar
w i t h the c o m m e m o r a t i v e message i n situ. A t this p o i n t ,
the p r o t e c t i o n o f the " o t h e r c u l t u r a l v a l u e " o f the n a t u r a l
e n v i r o n m e n t appears t o be t a k i n g p r i o r i t y over creating
o p p o r t u n i t i e s for greater c o m m u n i c a t i o n o f the
significance o f Grosse l i e a n d the Irish M e m o r i a l . M a n a g
i n g the conflict b e t w e e n d u a l responsibilitiesprotecting
a fragile area and m a k i n g an i m p o r t a n t site availableis
a classic challenge for a site manager.
O n e interesting s i t u a t i o n demonstrates the deli
became o b v i o u s t h a t the bats w e r e c o m p r o m i s i n g a n u m

ber o f significant structures. Parks Canada also recognized
t h a t the bats needed s o m e w h e r e t o live, as t h e y require
considerable heat a n d enclosed spaces t o survive the
island's weather.
Possible options for dealing w i t h the bats
i n c l u d e d a l l o w i n g t h e m t o r e m a i n i n the buildings, e l i m i
n a t i n g the bats altogether, o r offering t h e m alternative
h o u s i n g . T h e o p t i o n chosen was the t h i r d . Several spe
cially designed structures w e r e b u i l t close t o the historic
structures w h e r e bats h a d b e c o m e a serious p r o b l e m .
These n e w dwellings w e r e h i g h o f f the g r o u n d , w i t h
extended eaves and i n t e r n a l baffling t h a t retained the
b o d y heat o f the c r o w d i n g bats. T h e y w e r e also b u i l t o n
skids, rather t h a n set i n t o the g r o u n d , so t h a t as the bats
came t o prefer these structures t o the restored historic
buildings, the n e w structures c o u l d be g r a d u a l l y m o v e d
away from the h i s t o r i c b u i l d i n g s .
I t is i m p o r t a n t t o n o t e t h a t one o f the m o s t
i m p o r t a n t mechanisms for e n s u r i n g the c o n t i n u e d protec
t i o n o f all o f a site's values a n d resources is the Canadian
federal l a w t h a t requires Parks Canada t o r e v i e w the m a n
a g e m e n t plans o f its sites every five years. I n this way, the
values o f the site a n d the w a y i n w h i c h they are articu
lated, presented, a n d p r o t e c t e d are c o n t i n u a l l y m o n i t o r e d .
T h e r e v i e w begins w i t h staff assessing progress
m a d e o n i m p l e m e n t i n g the p l a n i n force; this is done
t h r o u g h the p r o d u c t i o n o f a State o f the Park R e p o r t
( n o w called the State o f Protected H e r i t a g e A r e a Report).
T h i s r e p o r t evaluates the state o f c o m m e m o r a t i v e
i n t e g r i t y o f the site u n d e r review. I t can shed l i g h t o n the
effectiveness o f the m a n a g e m e n t p l a n and can indicate t o
the managers certain adjustments t h a t m a y be necessary.
I n some cases, p u b l i c c o n s u l t a t i o n is u n d e r t a k e n as p a r t
o f this r e v i e w i f i t is felt t h a t the p l a n (or the w o r k t h a t i t
r e c o m m e n d s ) does n o t f u l l y s u p p o r t the c o m m e m o r a t i v e
integrity, i f p o l i c y o r legal shifts p r o v i d e n e w i n f o r m a t i o n
o r considerations r e l a t i n g t o the p l a n s objectives, i f
significant n e w i n f o r m a t i o n becomes available a b o u t risk
o r damage, i f substantial changes are n o t e d i n v i s i t a t i o n ,
o r i f o t h e r changes affect the m a n a g e m e n t c o n t e x t .
74
cate balance o f historic structures a n d the l o c a l w i l d l i f e

p o p u l a t i o n . For m a n y years, a n u m b e r o f historic b u i l d
ings o n the island w e r e h o m e t o large bat colonies
i n c l u d i n g the Lazaretto. H e r e , bats entered u n d e r the
49
Conclusions
T h e Parks Canada guidelines p r o v i d e a s t r u c t u r e d and sys
materials and o f t h e i r meanings, e n s u r i n g the preserva
t e m a t i c approach t o the p l a n n i n g and m a n a g e m e n t o f his
t i o n o f b o t h for present a n d f u t u r e generations. T h e prac
t o r i c sites. I n m o s t n a t i o n a l heritage systems, the designa
tice o f devising a statement o f c o m m e m o r a t i v e i n t e n t
t i o n o f a n a t i o n a l site attributes a p a r t i c u l a r value o r
and t h e n b u i l d i n g a c o m m e m o r a t i v e i n t e g r i t y statement
significance t o a site, often p r i o r t o an analysis o f the f u l l
seems t o be an e n o r m o u s l y useful process t h a t encour
range o f values that the site m i g h t embody. T h e Canadian
ages focus o n the principles and values t h a t are m o s t
system is n o exception. T h e official declaration o f a site's
i m p o r t a n t and allows the technical and s t a t u t o r y c o m p l i
valuesthe c o m m e m o r a t i v e i n t e n t i n the case o f Cana
ance t o f o l l o w b e h i n d .
dian n a t i o n a l historic sitesacquires p r i m a c y i n all deci
T h e technical issues are n o t any simpler here t h a n
sions on-site, and i n some cases i t can overshadow o t h e r
at o t h e r historic sites. Site managers need t o be v i g i l a n t as
values associated w i t h a place before i t was recognized at
they m a k e t r e a t m e n t and m a n a g e m e n t decisions t h a t have
the n a t i o n a l level. I n the case o f Grosse l i e as a n a t i o n a l
impacts o n Level I b u i l d i n g s b a l a n c i n g historical
historic site, the values t h a t w e r e i n i t i a l l y d e e m e d t o be
i n t e g r i t y a n d physical survival. T h e p r o t e c t i o n o f a u n i q u e
i m p o r t a n t w e r e those t h a t t o l d a s t o r y a b o u t the develop
b u i l d i n g such as the Lazaretto as an artifact a n d as a
m e n t o f the n a t i o n , and those t h a t w e r e already i m p o r t a n t
m u s e u m is a c o m p l e x challenge, an interesting didactic
to a p a r t i c u l a r g r o u p o f stakeholders w e r e i n i t i a l l y d o w n
case i n itself.
played. H o w e v e r , w h e n the prescribed process o f p u b l i c
T h e isolated l o c a t i o n o f Grosse l i e and the
c o n s u l t a t i o n and r e v i e w was u n d e r t a k e n , the conflicts
a c c o m p a n y i n g logistical constraints o n use, access p o l i
over values w e r e resolved.
cies, and e n v i r o n m e n t a l p r o t e c t i o n s have i n some respects
O n e o f the interesting issues t h a t e m e r g e d i n the
l i m i t e d the ability o f those w h o value the site t o experi
p u b l i c c o n s u l t a t i o n phase was the possibility o f unex
ence it. Creative means w i l l be necessary i n order t o
pected stakeholders stepping f o r w a r d and d e m a n d i n g
i m p l e m e n t the c o m m e m o r a t i v e i n t e n t fully.
inclusion. W h i l e this process i n v o l v e d some stress a n d
T h e t h i r d i n d i c a t o r o f the h e a l t h o f a historic
expense, i t r e m i n d s us t h a t heritage touches h u m a n e m o
site is t h a t the heritage values o f the site are respected b y
tions, and i t is advisable t o a l l o w t h e i r expression. Also, i t
all w h o s e decisions o r actions affect the site. T h e p u r p o s e
offered f u r t h e r evidence that places can have stakeholders
o f this r e q u i r e m e n t is t o avoid h a r m t o values a t t r i b u t e d
w h o m a y never see the place itself. A year after an affect
to a site t h a t are n o t i n c l u d e d i n the statement o f c o m
i n g visit t o Grosse l i e , M a r y R o b i n s o n , t h e n president o f
m e m o r a t i v e i n t e n t . T h e a m b i g u i t y o f the phrase
Ireland, gave a speech t o the Irish legislature e n t i t l e d
"respected b y all w h o s e decisions o r actions affect the site"
" C h e r i s h i n g the Irish Diaspora," i n w h i c h she t a l k e d a b o u t
does n o t p r o v i d e m u c h guidance i n cases w h e r e the p r o
the i m p o r t a n t connections b e t w e e n c o n t e m p o r a r y Ire
t e c t i o n o f the heritage values o f some o f the Level I I
l a n d and its people t o those w h o e m i g r a t e d d u r i n g the
resources is seen t o d i m i n i s h the c o m m e m o r a t i v e i n t e n t
d a r k famine years.
o f the site. As the site a n d its i n t e r p r e t i v e p r o g r a m con
Parks Canada's concept o f c o m m e m o r a t i v e
t i n u e t o be developed a n d as the place becomes b e t t e r
integrity, w i t h its three indicators o f the h e a l t h and w h o l e
k n o w n , the balance o f perspectives r e g a r d i n g messages,
ness o f the resource, advocates an approach t h a t takes
preservation, access, and o t h e r c u r r e n t l y d y n a m i c issues
i n t o c o n s i d e r a t i o n the t o t a l i t y o f the site and its values.
is l i k e l y t o b e c o m e steadier.
By r e q u i r i n g n o t o n l y t h a t the physical elements be con

served b u t also t h a t the significance o f the site be effec
tively c o m m u n i c a t e d , c o m m e m o r a t i v e i n t e g r i t y effec
tively places equal value o n the p r o t e c t i o n o f the physical
50
GROSSE i L E A N D T H E I R I S H M E M O R I A L N A T I O N A L H I S T O R I C SITE
Notes
17.
P a r k s C a n a d a 2001,50.
18.
T h e c a f e t e r i a a n d s p e c i a l events a r e c a t e r e d b y L e M a n o i r des
Erables, o n e o f Parks Canada's business partnerships.
1.
R e f e r r e d t o as t h e Agency Act, i t s p u r p o s e w a s " t o e s t a b l i s h

t h e P a r k s C a n a d a A g e n c y a n d t o a m e n d o t h e r A c t s as a
c o n s e q u e n c e . " S t a t u t e s o f C a n a d a 1998, c h a p . 31 ( a s s e n t e d
19.
Parks Canada 2001,40.
20.
T h e i r p o i n t o f d e p a r t u r e w a s t h e 1984 r e c o m m e n d a t i o n t h a t
P a r k s C a n a d a a c q u i r e t h e site, w h i c h f o l l o w e d o n t h e r e c o g n i
t o 3 D e c . 1998). F i r s t Session, T h i r t y - s i x t h P a r l i a m e n t , 4 6 - 4 7
tion b y the H S M B C o f t w o i m p o r t a n t components: a com
E l i z a b e t h I I , 1997-98.
2.
m i t m e n t t o t h e e l e m e n t o f i m m i g r a t i o n as p a r t o f t h e
F r o m t h e W e b site o f C a n a d i a n H e r i t a g e : A R e p o r t o n Plans
n a t i o n a l story, a n d t h e s u r v i v i n g h i s t o r i c r e s o u r c e s t h a t w o u l d
a n d P r i o r i t i e s 2001-2002: h t t p : / / w w w . p c h . g c . c a / p c -
s u p p o r t t h e t e l l i n g o f t h e s t o r y o f i m m i g r a t i o n a n d its p i v o t a l
c h / p u b s / r p p 2 o o i / v u e - e n s _ e n g . h t m (Jan. 2003).
role i n the building o f the nation. T h e other nineteenth- and
3.
P a r k s C a n a d a , n . d , 1.
twentieth-century ports o f entry for i m m i g r a n t s had l o n g
4.
H o m e p a g e o f t h e N a t i o n a l H i s t o r i c Sites o f C a n a d a W e b
site: h t t p : / / w w w . p a r k s c a n a d a . g c . c a / l h n n h s / i n d e x l _ e . a s p
since, a n d repeatedly, b e e n r e d e v e l o p e d .
21.
5.
T h e H S M B C W e b site p r o v i d e s a t h o r o u g h d i s c u s s i o n
22.
E n v i r o n m e n t C a n a d a 1989.
o f the Board's history, activities, a n d procedures,
23.
E n v i r o n m e n t C a n a d a 1992a, 5.
24.
I b i d . , 47.
c r i t e r i a _ e . h t m (Feb. 2003).
25.
I b i d . , 54-55-
T h e f i r s t v e r s i o n w a s p u b l i s h e d i n 1981. T h e v e r s i o n
26.
H S M B C 1984.
i n f o r c e t o d a y is P a r k s C a n a d a 2000a;
27.
E n v i r o n m e n t C a n a d a 1989, 9.
28.
A s h a s b e e n n o t e d , P a r k s C a n a d a is e n t r u s t e d w i t h t h e s t e w
i n c l u d i n g t h e c r i t e r i a as c i t e d i n t h e t e x t at:
http: / /www2.parkscanada.gc.ca/hsmbc/english/
6.
http: / /www2.parkscanada.gc.ca/Nhs/sysplan/
e n g l i s h / c o m p _ e . p d f . I n 1974, w h e n G r o s s e l i e b e c a m e a
a r d s h i p o f s i g n i f i c a n t sites w i t h t h e t r u s t o f t h e g o v e r n m e n t
N a t i o n a l H i s t o r i c Site, i t w a s a s s o c i a t e d w i t h t h e t h e m e o f
and the faith o f the citizenry. W i t h this mandate, i t m u s t
i m m i g r a t i o n under the heading " D e m o g r a p h y / P o p u l a t i o n . "

7.
E n v i r o n m e n t C a n a d a 1986; e a r l i e r a n d l a t e r v e r s i o n s o f t h i s
d i r e c t i v e a r e also a v a i l a b l e .
(Jan. 2003).
p r e s e n t a v i e w d e r i v e d from i t s b e s t e f f o r t s t o g a t h e r a c c u r a t e
T h i s s e c t i o n s u m m a r i z e s i n f o r m a t i o n i n c l u d e d i n several
a n d c o m p r e h e n s i v e i n f o r m a t i o n a n d p e r s p e c t i v e s from a l l
d o c u m e n t s , i n c l u d i n g t h e Grosse tie and the Irish Memorial
a p p r o p r i a t e sources. I n t h e case o f G r o s s e l i e , t h i s w a s
National Historic Site Management Plan ( P a r k s C a n a d a 2001).
effected t h r o u g h c o m m i s s i o n e d research, c o n s u l t a t i o n w i t h
8.
P a r k s C a n a d a 2001.
e x p e r t s , a n d a m a r k e t i n g study.
9.
I b i d . , 63.
29.
E n v i r o n m e n t C a n a d a 1991, app. A , p . 4.
T h e A u g u s t 2001 p i l g r i m a g e i n c l u d e d a b o u t t w o h u n d r e d
30.
p e o p l e , from t h e A n c i e n t O r d e r o f H i b e r n i a n s , I r i s h H e r
31.
I b i d . , 62.
32.
Ibid., 69.
33.
E n v i r o n m e n t C a n a d a 1993.
s i o n o f t h e National Historic Sites Policy, w h i c h states t h a t his
34.
I b i d . , 3.
t o r i c sites c o u l d b e d e s i g n a t e d o n t h e basis o f f i v e c r i t e r i a ,
35.
I b i d . , 21.
36.
I b i d . , 3.
w i t h an i m p o r t a n t m o v e m e n t i n Canadian history (Depart
37.
I b i d . , 23.
m e n t o f I n d i a n Affairs a n d N o r t h e r n D e v e l o p m e n t 1968,5).
38.
T w o t e x t s w e r e u s e d : (1) " W e , t h e u n d e r s i g n e d , a r e d i s m a y e d
10.
itage (Quebec), a n d A c t i o n Grosse-Ile ( T o r o n t o ) .

11.
O n e o f t h e g u i d i n g d o c u m e n t s i n c o n s i d e r i n g t h e site f o r
c o m m e m o r a t i o n a t t h i s l e v e l w o u l d h a v e b e e n t h e 1968 v e r
w h i c h r e l a t e d t o a site's a s s o c i a t i o n w i t h events t h a t s h a p e d
C a n a d i a n h i s t o r y , o r w i t h t h e life o f a g r e a t C a n a d i a n , o r
12.
F r o m P a r k s C a n a d a 1998a, a n n e x 1, D e l i b e r a t i o n s o f t h e
t h a t t h e t r a g i c t r u t h o f t h e d e a t h o f 15,000 I r i s h m e n ,
H i s t o r i c Sites a n d M o n u m e n t s B o a r d o f C a n a d a .
w o m e n , a n d c h i l d r e n w h o s e m o r t a l r e m a i n s are b u r i e d i n
m a s s g r a v e s o n G r o s s e l i e is i g n o r e d i n E n v i r o n m e n t
13.
14.
M i n u t e s o f t h e H S M B C m e e t i n g , J u n e 1984 ( H S M B C 1984),
i n g Canada: L a n d o f W e l c o m e & H o p e . W e therefore urge
p r e s e n t e d i n P a r k s C a n a d a 1998a, a n n e x 1,55-56.
t h e G o v e r n m e n t o f Canada t o ensure t h a t t h e Irish graves o f
15.
16.
Parks Canada 2001,2.

A l l p r i c e s i n t h i s s e c t i o n a r e i n U.S. d o l l a r s , q u o t e d from t h e
W e b site o f G r o s s e l i e a n d t h e I r i s h M e m o r i a l N a t i o n a l H i s
t o r i c Site: h t t p : /
/www2.parkscanada.gc.ca/parks/quebec/
g r o s s e i l e / e n / s c h e d u l e _ e . h t m l (Feb. 2003).
C a n a d a ' s p l a n t o d e v e l o p t h e i s l a n d as a t h e m e p a r k c e l e b r a t
G r o s s e l i e a r e p e r p e t u a t e d as t h e m a i n t h e m e o f t h e
N a t i o n a l H i s t o r i c P a r k , a n d as a r e m i n d e r o f t h e I r i s h r o l e i n
t h e b u i l d i n g o f C a n a d a " ; a n d (2) " T h e F e d e r a l G o v e r n m e n t
o f C a n a d a h a s s t a t e d t h e r e m a i n s o f 20,000 I r i s h p e o p l e w h o
t r i e d t o escape t h e F a m i n e l i e b u r i e d i n G r o s s e l i e . Yet, t h e y
NOTES
51
p l a n t o t u r n t h i s N a t i o n a l H i s t o r i c Site i n t o a p l a y g r o u n d f o r
t h e b o a t e r s o f t h e St. L a w r e n c e . T h e y w i s h t o f o r g e t t h e
63.
P a r k s C a n a d a 1998a.
64.
P a r k s C a n a d a 1998b.
65.
P a r k s C a n a d a 1998a g i v e s p a r t i c u l a r e m p h a s i s t o issues
t r a g i c e v e n t s o f 1847 s t a t i n g t h e s t o r y o f t h o s e w h o l i e t h e r e
has b e e n o v e r - e m p h a s i z e d . A c t i o n G r o s s e - i l e has b e e n
related t o t h e m a n a g e m e n t o f n a t u r a l resources i n a p p e n d i x
f o r m e d t o e n s u r e t h a t t h e m a s s g r a v e s o n t h e i s l a n d are p r o
2, " C o n s e r v a t i o n P r i o r i t i e s f o r G r o s s e l i e N a t u r a l
tected a n d t o ensure that the revisionists d o n o t distort o r
R e s o u r c e s . " T h i s s e c t i o n discusses m a n a g e m e n t d e c i s i o n s
b u r y t h e s t o r y o f those w h o rest at Grosse l i e a n d those w h o
t h r o u g h t h e a s s i g n m e n t o f f o u r levels o f c o n s e r v a t i o n p r i o r
m a n a g e d t o survive t h e island. A c t i o n Grosse-Ile plans t o
i t y t o particular n a t u r a l resources o n the island.
ensure t h a t Grosse lie m a i n t a i n s a p r o m i n e n t place i n b o t h

C a n a d i a n a n d Irish h i s t o r y a n d t h a t t h e graves a n d t h e s t o r y
66.
T h i s passage is q u o t e d from Canadian Environmental Assess
o f t h o s e b u r i e d t h e r e are p r o t e c t e d a n d p r e s e r v e d . S h o w
ment Act 1992, c. 37, f o u n d at: h t t p : / / l a w s . j u s t i c e . g c . c a / e n /
y o u r s u p p o r t b y l e n d i n g y o u r signature t o this petition."
C - 1 5 . 2 / 2 6 7 9 1 . h t m l # r i d - 2 6 8 3 0 (Feb. 2003).
( P a r k s C a n a d a 1994c, 7 0 - 7 2 ) .
39.
40.
T h e f i v e t o p i c areas are: h i s t o r i c a l s i g n i f i c a n c e , d e v e l o p m e n t
objectives a n d principles, c o m m e m o r a t i o n themes, c u l t u r a l
67.
S u m m a r y o f t h e e n v i r o n m e n t a l assessment i n Parks C a n a d a
2001, 6 8 .
68.
69.
E n v i r o n m e n t Canada 1989,46.
70.
F i r s t r a i s e d i n E n v i r o n m e n t C a n a d a 1989,19.
71.
Parks C a n a d a 2000b, 49,51.
r e s o u r c e s , a n d p u b l i c p a r t i c i p a t i o n . P a r k s C a n a d a 1994c.
41.
Canadian Heritage News Release Communique P-07'/'94-84.
42.
43.
G o r d o n B e n n e t t , Parks Canada, p e r s o n a l c o m m u n i c a t i o n , 2002.
44.
P a r k s C a n a d a , 1998a, 3.
45.
Ibid.
73.
P a r k s C a n a d a 2001, 83.
See a p p e n d i x A f o r f u r t h e r d i s c u s s i o n o f c o m m e m o r a t i v e
74.
P a r k s C a n a d a 2000c, sees. 4 . 4 , 7 . 4 .
72.
46.
intent and c o m m e m o r a t i v e integrity.

47.
P a r k s C a n a d a , 2002.
48.
P a r k s C a n a d a 1994a.
49.
I b i d . , sec. 1, P r i n c i p l e s o f C u l t u r a l R e s o u r c e M a n a g e m e n t ,
subsecs. 1.1.2-1.4.1: h t t p : / / w w w 2 . p a r k s c a n a d a . g c . c a /
L i b r a r y / PC_Guiding_Principles / Park146_e.htm.
50.
I b i d . , sec. 2.2, also f o u n d a t t h e W e b site c i t e d i n n o t e 4 9 .
51.
P a r k s C a n a d a 1998a. T h i s s t a t e m e n t is also s u m m a r i z e d i n
P a r k s C a n a d a 2001,13-18.
52.
T h e m o r e - m o d e r n e l e m e n t s from l a t e r o c c u p a t i o n s are
classified as L e v e l I I r e s o u r c e s , d i s c u s s e d l a t e r i n t h i s s e c t i o n .
53.
P a r k s C a n a d a 1998a, 8.
54.
P a r k s C a n a d a 2001,27ff.
55.
P a r k s C a n a d a 1994a, sec. 3, A c t i v i t i e s o f C u l t u r a l R e s o u r c e
M a n a g e m e n t , subsec. 3.4: h t t p : / / w w w 2 . p a r k s c a n a d a . g c . c a /
Library / PC_Guiding_Principles / Parki57_e.htm#3.4.
56.
57.
I b i d . , sec. 3.4.
Specifically, F H B R O 1 9 9 6 , f o u n d at: h t t p : / /
www2.parkscanada.gc.ca / Library / D o w n l o a d D o c u m e n t s /
D o c u m e n t s A r c h i v e / C o d e O f P r a c t i c e _ e . p d f (Feb. 2003).
58.
P a r k s C a n a d a 2001,436.
59.
I n t h e case o f G r o s s e l i e , L e v e l I I r e s o u r c e s are t h o s e associ

ated w i t h t h e " o t h e r heritage values" discussed below.
52
60.
F H B R O 1996.
61.
T h i s d o c u m e n t is available o n l y i n F r e n c h (Parks C a n a d a 1998b).
62.
P a r k s C a n a d a 1998a, 52.
T h e o f f i c i a l W e b site f o r G r o s s e l i e is f o u n d at:
h t t p : / / www2.parkscanada.gc.ca / parks / quebec / grosseile /
e n / i n d e x . h t m l (Feb. 2003).
Appendix A: Commemorative
I n t e g r i t y A S h o r t H i s t o r y of a Central
Concept i n H e r i t a g e M a n a g e m e n t i n
Parks Canada
a statement o f results t o be achieved (health and

wholeness o f n a t i o n a l historic sites, i.e., c o m m e m o r a t i v e
i n t e g r i t y ) ; and
a p r i m a r y organizational accountability.
O v e r the next few years, the concept was r a p i d l y
elaborated. O n e o f the m o s t i m p o r t a n t advances was the
Gordon
Bennett
i n t r o d u c t i o n o f C o m m e m o r a t i v e I n t e g r i t y Statements.
Director, Policy and G o v e r n m e n t Relations
T h e p u r p o s e o f these statements is t o p r o v i d e a site-
specific description o f w h a t c o m m e m o r a t i v e i n t e g r i t y
Parks Canada
means for a particular n a t i o n a l historic site ( h o w can w e

t r y t o ensure c o m m e m o r a t i v e i n t e g r i t y i f w e do n o t k n o w
T h e concept o f c o m m e m o r a t i v e i n t e g r i t y was o r i g i n a l l y
w h a t i t means i n the context o f a specific site?). As is the
developed b y Parks Canada i n 1989 for purposes o f report
case w i t h c o m m e m o r a t i v e i n t e g r i t y itself, the C o m m e m
i n g o n the state o f n a t i o n a l historic sites i n the 1990 State
orative I n t e g r i t y Statement (referred t o as a CIS) is r o o t e d
o f the Parks Report. I n the course o f p r e p a r i n g this
i n Parks Canada's C u l t u r a l Resource M a n a g e m e n t Policy.
report, i t became apparent that Parks Canada h a d infor
T h e CIS identifies the h i s t o r i c / h e r i t a g e valuesassocia
m a t i o n o n m a n y o f the i n d i v i d u a l features and p r o g r a m
tive as w e l l as physicalrelating t o the site ( i n c l u d i n g
activities that existed at i n d i v i d u a l n a t i o n a l historic sites
those n o t directly related t o the f o r m a l reasons for desig
b u t that i t lacked a conceptual f r a m e w o r k t o r e p o r t o n the
n a t i o n ) and provides guidance o r indicators for d e t e r m i n
overall state o f h e a l t h and wholeness o f its n a t i o n a l his
i n g w h e n these values m i g h t be i m p a i r e d o r u n d e r threat,
t o r i c sites. I n other w o r d s , w e h a d i n f o r m a t i o n about the
n o t adequately c o m m u n i c a t e d o r respected. Stakeholder
parts b u t n o t about the w h o l e . A n d i t became apparent t o
and p u b l i c p a r t i c i p a t i o n i n the development o f the CIS is
us that w e c o u l d n o t s i m p l y aggregate the parts and
encouraged. A l o n g w i t h the C u l t u r a l Resource Manage
equate the resulting s u m w i t h the state o f the w h o l e (the
m e n t Policy, the CISs w e r e critical c o m p o n e n t s i n Parks
site). T h u s was b o r n the concept o f c o m m e m o r a t i v e
Canada's m o v e t o values-based m a n a g e m e n t . T h e y
integrity.
responded t o the question posed b y f o r m e r I C O M O S
S i m p l y stated, c o m m e m o r a t i v e i n t e g r i t y
describes the h e a l t h and wholeness o f a n a t i o n a l historic
secretary-general H e r b Stovel: " W h e r e does value lie?"

As stated i n the 1995 draft Guidelines for the Preparation
site. A n a t i o n a l historic site possesses c o m m e m o r a t i v e
o f C o m m e m o r a t i v e I n t e g r i t y Statements, k n o w i n g w h e r e
integrity when:
value lies (i.e., w h a t the values are) is essential t o steward
the resources that symbolize o r represent the

site's i m p o r t a n c e are n o t i m p a i r e d o r u n d e r threat;
the reasons for the site's n a t i o n a l historic
significance are effectively c o m m u n i c a t e d t o the public;
and
ship, because k n o w i n g w h e r e value lies f u n d a m e n t a l l y

informs:
w h a t w e need t o do (i.e., manage);
h o w w e s h o u l d d o / m a n a g e i t (i.e., adopt m a n
agement strategies appropriate t o the specific case based
the site's heritage values ( i n c l u d i n g those n o t

related t o n a t i o n a l significance) are respected b y all whose
decisions and actions affect the site.
W h a t began as a f r a m e w o r k t o m o n i t o r and
o n the values); and

w h a t one s h o u l d be accountable for (i.e., the
nature o f m a n a g e m e n t accountability).
T h e draft guidelines w e r e superseded b y a consid
r e p o r t systematically o n the state o f the n a t i o n a l historic
erably m o r e detailed Guide to the Preparation of Commemo
sites q u i c k l y evolved i n t o s o m e t h i n g m u c h broader.
rative Integrity Statements i n 2002 t o p r o v i d e clarification
Indeed, b y 1994, w h e n Parks Canada Guiding Principles and
and d i r e c t i o n o n issues that h a d n o t been addressed o r
Operational Policies
was issued, and w h e n n e w approaches
adequately addressed i n the 1995 version, t o codify best
t o m a n a g e m e n t and business p l a n n i n g h a d b e e n i n t r o
practice that h a d developed after 1995, and t o p r o v i d e
duced, c o m m e m o r a t i v e i n t e g r i t y h a d evolved i n t o :
guidance t o a w i d e range o f historic site managers and
a f u n d a m e n t a l p r o g r a m objective (ensure the

c o m m e m o r a t i v e i n t e g r i t y o f n a t i o n a l historic sites);
stakeholdersnot s i m p l y those i n Parks Canadawho

m i g h t w i s h t o prepare such statements. C o m m e m o r a t i v e
APPENDIX A
53
i n t e g r i t y and C o m m e m o r a t i v e I n t e g r i t y Statements
gone from a conceptual construct t o a w a y o f describing
require the i n p u t o f experts, b u t t h e y are n o t the private
o u r business. H o w c o u l d this have happened, g i v e n all
preserve o f experts. T h e n e w guide also m a d e some
the interests (managers, operations people, professional
m i n o r e d i t o r i a l changes t o the d e f i n i t i o n o f c o m m e m o r a
disciplines, stakeholders, etc.) affected a n d / o r involved?
tive integrity, w h i c h n o w reads as follows:
A n u m b e r o f reasons can be suggested t o explain this:
A n a t i o n a l h i s t o r i c site possesses c o m m e m o r a t i v e i n t e g r i t y
the s i m p l i c i t y o f the concept
(health and wholeness) w h e n :
the emphasis o n values and o n a systematic and
t h e r e s o u r c e s d i r e c t l y r e l a t e d t o t h e r e a s o n s f o r desig
n a t i o n as a n a t i o n a l h i s t o r i c site are n o t i m p a i r e d o r u n d e r
threat;
t h e r e a s o n s f o r d e s i g n a t i o n as a n a t i o n a l h i s t o r i c site
comprehensive a r t i c u l a t i o n o f values
the focus o n the site, rather t h a n o n an organiza
t i o n o r specific activities o r functions
its usefulness as a m a n a g e m e n t , p l a n n i n g , and
evaluation t o o l
are e f f e c t i v e l y c o m m u n i c a t e d t o t h e p u b l i c ; a n d
t h e site's h e r i t a g e v a l u e s ( i n c l u d i n g t h o s e n o t r e l a t e d
its clear relationship t o w h a t w e (should) d o at

historic sites
the i n v o l v e m e n t and engagement o f a b r o a d
t o t h e r e a s o n s f o r d e s i g n a t i o n as a n a t i o n a l h i s t o r i c site) are
r e s p e c t e d i n a l l d e c i s i o n s a n d a c t i o n s a f f e c t i n g t h e site.
range o f people
it's n o t exclusionary
it's a u n i f y i n g concept
T h e n e w guide is available o n the Parks Canada

W e b site at h t t p : / / w w w . p c . g c . c a / d o c s / p c / g u i d e / g u i d e /
commemorative_l_o_e.asp.
Notes
O n the m o n i t o r i n g front, i t was n o t u n t i l 1997

t h a t Parks Canada began t o explicitly r e p o r t o n the state
o f c o m m e m o r a t i v e i n t e g r i t y o f n a t i o n a l historic sites.
1.
P a r k s C a n a d a 1994b.
I n t h a t year, eight sites w e r e r e p o r t e d o n . O n e o f the
2.
m o s t interesting findings was t h a t the greatest i m p a i r

m e n t t o these eight sites was i n the c o m m u n i c a t i o n o f
n a t i o n a l significance. B e g i n n i n g i n 2001-02, Parks Canada
c o m m i t t e d t o evaluating the state o f c o m m e m o r a t i v e
i n t e g r i t y for fifteen n a t i o n a l historic sites a year. T h e
C o m m e m o r a t i v e I n t e g r i t y Statements serve as the basis
for these evaluations.
W i t h i n a Parks Canada context, c o m m e m o r a t i v e
i n t e g r i t y has b e c o m e the key c o m p o n e n t i n p l a n n i n g ,
m a n a g i n g , operating, evaluating, and t a k i n g r e m e d i a l
action i n n a t i o n a l historic sites. T h e C o m m e m o r a t i v e
I n t e g r i t y Statement provides the core for n a t i o n a l historic
site m a n a g e m e n t plans and annual business plans. C o m
m e m o r a t i v e i n t e g r i t y evaluations p o i n t t o w h e r e r e m e d i a l
m a n a g e m e n t a c t i o n is required, and, for an increasing
n u m b e r o f managers, they are considered t o be a pre
requisite t o any n e w m a n a g e m e n t p l a n n i n g activity ( h o w
can y o u p l a n i f there is n o t a s o u n d u n d e r s t a n d i n g o f the
state o f the place for w h i c h the p l a n is b e i n g done?).
C o m m e m o r a t i v e i n t e g r i t y w i l l also be the center
piece o f n e w legislation p l a n n e d for Canada's n a t i o n a l
historic sites, i n c l u d i n g sites n o t o w n e d b y Parks Canada.
I n l i t t l e m o r e t h a n a decade, the values-based manage
m e n t approach i n h e r e n t i n c o m m e m o r a t i v e i n t e g r i t y has
54
References
A n i c k , N . 1984. Grosse tie and Partridge Island, Quarantine Stations. H i s

t o r i c Sites a n d M o n u m e n t s B o a r d o f C a n a d a A g e n d a P a p e r N o .
1983-19. O t t a w a : H S M B C .
. 1998a. Commemorative Integrity Statement: Grosse tie and the Irish

Memorial National Historic Site. Q u e b e c : P a r k s C a n a d a .
. 1998b. Plan d'experience de visite [Plan of the Visit Experience]Lieu
C a n a d i a n H e r i t a g e . 1994. Canadian Heritage News Release Communique
Historique National de la Grosse-tle-et-le-Memorial-des-Irlandais. Q u e b e c :
P-oy/94-84. Q u e b e c : C a n a d i a n H e r i t a g e .
Parks Canada.
D e p a r t m e n t o f I n d i a n Affairs a n d N o r t h e r n D e v e l o p m e n t , N a t i o n a l
H i s t o r i c P a r k s B r a n c h . 1968. National Historic Sites Policy. O t t a w a :
D e p a r t m e n t o f I n d i a n Affairs a n d N o r t h e r n D e v e l o p m e n t , N a t i o n a l
H i s t o r i c Parks B r a n c h .
E n v i r o n m e n t C a n a d a , C a n a d i a n P a r k s S e r v i c e . 1986. Management Direc
tive 4.2.1: Management Planning Process for National Historic Sites. O t t a w a :

C a n a d i a n Parks Service.
. 1989. Grosse tie National Historic Site Project OrientationPublic

Information Paper. Q u e b e c : C a n a d i a n P a r k s S e r v i c e .
. 1991. Management Directive 3.2.1: Management Planning Process for

National Historic Sites. O t t a w a : C a n a d i a n P a r k s S e r v i c e .
. 1992a. Grosse tie National Historic SiteDevelopment Concept.

Quebec: C a n a d i a n Parks Service.
. 1992b. Grosse tie National Historic SiteDevelopment Concept
. 2000a. National Historic Sites of Canada: System Plan. O t t a w a :

Parks Canada.
. 2000b. Parks Canada Agency State of Protected Heritage Areas1999

Report. O t t a w a : P a r k s C a n a d a .
. 2000C.
Parks Canada Guide to Management Planning. O t t a w a :
Parks Canada.
. 2001. Grosse tie and the Irish Memorial National Historic Site Manage
ment Plan. Q u e b e c : P a r k s C a n a d a .
. 2002. Guide to the Preparation of Commemorative Integrity

Statements. Q u e b e c : P a r k s C a n a d a , h t t p : / / w w w . p c . g c . c a / d o c s / p c /
guide / guide / commemorative_l_0_e.asp
. N . d . Parks Canada Agency 2001-2002 Estimates: A Report on Plans and

Priorities. O t t a w a : P a r k s C a n a d a .
S t a t u t e s o f C a n a d a . 1998. Parks Canada Agency Act.
Supplement. Q u e b e c : C a n a d i a n P a r k s S e r v i c e .
. 1993. Grosse tie National Historic SiteDevelopment Concept

Supplement. O t t a w a : C a n a d i a n P a r k s S e r v i c e .
F e d e r a l H e r i t a g e B u i l d i n g s R e v i e w O f f i c e ( F H B R O ) . 1995. Enonce de
la valeur patrimoniale: Le Lazaret (no. 100) Grosse-tle, Quebec. R a p p o r t

B E E F P N o . 90-31.
. 1996. Federal Heritage Buildings Review Office (FHBRO) Code of

Practice. O t t a w a : F H B R O .
F o r t i e r , Y. 1997. Le Lazaret de Grosse-tle: Synthese et conclusion preliminaires. U n p u b l i s h e d r e p o r t .

H i s t o r i c Sites a n d M o n u m e n t s B o a r d o f C a n a d a ( H S M B C ) . 1984.
Minutes, June.
. 1993. M i n u t e s , N o v .
P a r k s C a n a d a . 1981. National Historic Sites of Canada System Plan.

O t t a w a : Parks Canada.
. 1994a. C u l t u r a l r e s o u r c e m a n a g e m e n t p o l i c y . I n Parks Canada
Guiding Principles and Operational Policies. O t t a w a : P a r k s C a n a d a .
. 1994b. Parks Canada Guiding Principles and Operational Policies.

O t t a w a : Parks Canada.
. 1994c Grosse tie National Historic SiteReport on the Public Consul

tation Program. Q u e b e c : C a n a d i a n H e r i t a g e / P a r k s C a n a d a .
. 1995. Grosse tie and the Irish Quarantine Tragedy: Report of the
Advisory Panel on Grosse tie. Q u e b e c : P a r k s C a n a d a .
REFERENCES
55
Persons Contacted during the Development of the Case
Jean
Barry
Jeanne
Site M a n a g e m e n t Specialist
Boulanger
C o r p o r a t i o n for H e r i t a g e
Quebec Service Center

Parks Canada
Monique
Elie
Archaeologist
Pierre Beaudet
Chief
Parks Canada H e r i t a g e
Cultural Heritage
Jean-Francois
Parks Canada H e r i t a g e
Parks Canada t r a n s p o r t a t i o n partners
Lachance
Croisiers Lachance
Denis Belleau
C h i e f o f Technical Services
Daniel
Villeneuve
Quebec D i s t r i c t
Site M a n a g e r
Parks Canada
Grosse l i e a n d the Irish M e m o r i a l

Marie Josee
Bissonette
Parks Canada a d m i n i s t r a t i o n
56
Chaco Culture National Historical Park

Marta de la Torre, Margaret G. H . MacLean,
and David Myers
T h i s case study l o o k s at the m a n a g e m e n t o f Chaco C u l
includes examples o f h o w some specific situations w e r e
t u r e N a t i o n a l H i s t o r i c a l Park ( C C N H P ) b y the U.S.
h a n d l e d b y the site authorities.
N a t i o n a l Park Service (NPS). T h i s site was declared a
This study o f the m a n a g e m e n t o f C C N H P draws
n a t i o n a l m o n u m e n t i n 1907 and became one o f the o r i g i
o n extensive consultation a m o n g the authors, the m e m
n a l units o f the NPS w h e n the agency was created i n 1916.
bers o f the project steering c o m m i t t e e , staff o f the site,
T h e l o n g h i s t o r y o f C C N H P as a heritage site provides an
and NPS authorities, i n i n t e r v i e w s and frank discussions.
excellent i l l u s t r a t i o n o f h o w values emerge and evolve
T h e authors have consulted an extensive range o f reports,
w i t h n e w k n o w l e d g e as w e l l as h o w they are i n f l u e n c e d
plans, and statutory and guidance documents r e l a t i n g t o
b y changes o f values i n society. T h i s case also explores
this Park, t o related p a r k units, and t o the NPS i n general.
h o w the specific values and circumstances o f a site can be
T h e staff o f the Park and o f NPS headquarters i n Washing
respected w i t h i n the v e r y specific m a n a g e m e n t guidance
t o n , D . C . , have p r o v i d e d i n t e r p r e t a t i o n o f this documenta
p r o v i d e d b y a c o m p l e x n a t i o n a l agency w i t h responsibility
t i o n and the rationale for m a n y decisions m a d e o n site.
for a large n u m b e r o f sites. B o t h the emergence and evo
T h e situation studied i n this case existed b e t w e e n
l u t i o n o f values and the m a n a g e m e n t o f a site as p a r t o f a
October 2001 and June 2002, w h e n the case was developed
large system p r o v i d e o p p o r t u n i t i e s t o analyze the resolu
and w r i t t e n . Since then, there have been changes i n m a n
t i o n o f conflicts and the i m p a c t o f m a n a g e m e n t decisions.
agement personnel, and certain policies are b e i n g reviewed
T h e case is presented i n t w o parts. First, " M a n
and m o d i f i e d . T h e analysis focuses o n the situation as i t was
agement C o n t e x t a n d H i s t o r y o f C C N H P * ' provides gen
then, n o t o n the recent changes. M a n a g e m e n t is a c o n t i n u
eral b a c k g r o u n d i n f o r m a t i o n a b o u t the NPS and the site.
ous process, and the case presents a snapshot taken at a par
I t first describes the m a n a g e m e n t context o f the NPS,
ticular m o m e n t i n t i m e . A similar study done i n a few years
i n c l u d i n g its place i n the g o v e r n m e n t , its o r g a n i z a t i o n ,
w o u l d likely capture a different picture.
a n d the administrative guidance i t provides for managers
D i g i t a l reproductions o f the f o l l o w i n g supple
o f the resources u n d e r its stewardship. T h e discussion
m e n t a r y documents are contained w i t h i n the accompany
t h e n n a r r o w s its focus t o C C N H P itself, addressing the
i n g C D - R O M : Chaco C u l t u r e General M a n a g e m e n t P l a n /
geographic l o c a t i o n o f the Park, its h i s t o r y o f h a b i t a t i o n ,
Development Concept Plan (1985); Chaco Culture Statement
and its e v o l u t i o n as a heritage site. T h e final section o f this
for Interpretation and I n t e r i m Interpretive Prospectus (1991);
p a r t describes the Park's features, partnerships, infrastruc
and N a t i o n a l Park Service Management Policies 2001.
ture, and facilities.

T h e archaeological remains o f the Chacoan
c i v i l i z a t i o n p r o t e c t e d b y the Park are recognized t o have
n a t i o n a l and i n t e r n a t i o n a l significance. T h e significance
assigned t o this site has always b e e n based o n these
archaeological resources, b u t the values a t t r i b u t e d t o
t h e m have changed and expanded over t i m e . T h e i n i t i a l
section o f the next part, "understanding and P r o t e c t i n g
the values," examines h o w the values o f C C N H P have
emerged and evolved over its history. T h e f o l l o w i n g sec
t i o n analyzes h o w these values are reflected i n the policies
that guide the operations o f the site. T h e final section
explores the i m p a c t t h a t these policiesand o t h e r m a n
agement actionshave h a d o n the values o f the site and
60
C H A C O CULTURE N A T I O N A L HISTORICAL PARK
Management Context and History of CCNHP
Management Context
m e n t . I n t e r p r e t a t i o n s o f w h a t constitutes conservation,
access, and u n i m p a i r e d resources have created tensions
DEPARTMENT OF T H E INTERIOR
T h e N a t i o n a l Park Service (NPS) is a federal agency
b e t w e e n these obligations at various times d u r i n g the his

t o r y o f the NPS. O v e r the years, however, the u n i m p a i r -
w i t h i n the U n i t e d States D e p a r t m e n t o f the Interior. T h i s
m e n t i m p e r a t i v e from the NPS m a n d a t e has b e e n inter
d e p a r t m e n t , t h r o u g h its various agencies, is responsible
p r e t e d b y NPS directors a n d s o m e t i m e s b y secretaries o f
for the m a n a g e m e n t o f m o s t federal p u b l i c lands i n the
the i n t e r i o r as g i v i n g c o n s e r v a t i o n p r i m a c y over access.
U n i t e d States, w h i c h constitute o n e - t h i r d o f the t o t a l
T h i s p o s i t i o n is s t r o n g l y s u p p o r t e d i n c u r r e n t NPS m a n
acreage o f the country. T h e agencies that m a k e u p the
agement policies.
d e p a r t m e n t cover a great deal o f g r o u n d , l i t e r a l l y and
L o c a t e d i n the States, the D i s t r i c t o f C o l u m b i a ,
figuratively; i n a d d i t i o n t o the NPS, t h e y i n c l u d e , a m o n g
A m e r i c a n Samoa, G u a m , P u e r t o Rico, Saipan, a n d the
others, the B u r e a u o f L a n d M a n a g e m e n t , the Fish and
V i r g i n Islands, the NPS properties include 56 n a t i o n a l
W i l d l i f e Service, the Office o f Surface M i n i n g Reclama
parks, 39 n a t i o n a l historical parks, 75 n a t i o n a l m o n u m e n t s ,
t i o n a n d Enforcement, a n d the B u r e a u o f I n d i a n Affairs.
19 n a t i o n a l reserves a n d preserves, 78 n a t i o n a l historic
T h e secretary o f the i n t e r i o r and the agencies' directors
sites, and 25 n a t i o n a l battlefields. M o r e t h a n h a l f o f the
manage the inevitable conflicts r e s u l t i n g from the overlap
units o f the system are considered t o be o f c u l t u r a l o r his
p i n g mandates and resources for w h i c h they are account
t o r i c significance.
able. T h e secretary and the agency directors are a p p o i n t e d
T h e NPS presently has responsibility for 385
b y the U.S. president a n d generally represent the p a r t i c u
units o r places o f n a t i o n a l significancenatural, h i s t o r i
lar v i e w s a n d p h i l o s o p h y o f a p o l i t i c a l party.
cal, a n d recreational areasthe diversity o f w h i c h is
NATIONAL PARK SERVICE

T h e U.S. Congress created the NPS i n 1916 w i t h the m a n
date t o preserve n a t u r a l a n d c u l t u r a l resources o f n a t i o n a l
significance. T h e f o u n d i n g legislation states t h a t
the Service shall promote and regulate the use o f Federal
areas k n o w n as national parks, monuments and reservations
d e m o n s t r a t e d b y c i t i n g a few examples: Yellowstone

N a t i o n a l Park, Independence N a t i o n a l H i s t o r i c a l Park,
Mesa Verde N a t i o n a l Park, the V i e t n a m Veterans M e m o
rial, A b r a h a m L i n c o l n ' s Birthplace N a t i o n a l H i s t o r i c Site,
the Blue Ridge Parkway, Cape C o d N a t i o n a l Seashore,
a n d the W h i t e H o u s e .
I n a d d i t i o n t o these sites, the NPS oversees p r o
by such means and measures as conform to the fundamental
g r a m s that serve b r o a d c o n s e r v a t i o n and recreation
purpose o f the said parks, monuments and reservations,
needs. Examples i n c l u d e the N a t i o n a l Register o f H i s t o r i c
w h i c h purpose is to conserve the scenery and the natural
Places; the N a t i o n a l H i s t o r i c L a n d m a r k s P r o g r a m ; the
and historic objects and the w i l d life therein, and to provide
L a n d a n d W a t e r C o n s e r v a t i o n F u n d Grants P r o g r a m ;
for the enjoyment o f the same i n such manner and by such
the H i s t o r i c A m e r i c a n B u i l d i n g Survey; the H i s t o r i c
means as w i l l leave t h e m unimpaired for the enjoyment o f
A m e r i c a n E n g i n e e r i n g Record; the A m e r i c a n Battlefield
future generations.
P r o t e c t i o n P r o g r a m ; the N a t i o n a l M a r i t i m e H e r i t a g e
Grants P r o g r a m ; the Rivers, Trails a n d C o n s e r v a t i o n

A t its f o u n d i n g , the NPS assumed responsibility
for t w e l v e existing n a t i o n a l parks, n i n e t e e n m o n u m e n t s
( i n c l u d i n g Chaco C a n y o n N a t i o n a l M o n u m e n t ) , a n d t w o
Assistance P r o g r a m ; and the T r i b a l H e r i t a g e Preservation

Grants P r o g r a m .
O v e r its eighty-six years, the NPS a d m i n i s t r a t i o n
reservations. Its m i s s i o n specified the d u a l o b l i g a t i o n o f
has expanded a n d contracted, as the times have r e q u i r e d
c o n s e r v i n g u n i m p a i r e d the scenery a n d the c u l t u r a l a n d
a n d as resources have a l l o w e d . I n the mid-1990s, as p a r t o f
n a t u r a l resources, and p r o v i d i n g access for t h e i r enjoy
an effort t o streamline the federal g o v e r n m e n t , the NPS
M A N A G E M E N T CONTEXT A N DHISTORY
6l
u n d e r w e n t a d e c e n t r a l i z i n g r e o r g a n i z a t i o n t h a t reassigned
t w e l v e h u n d r e d j o b s from the headquarters i n W a s h i n g
t o n , D . C . , a n d r e g i o n a l offices t o i n d i v i d u a l parks a n d spe
cialized service centers.
T h e m i s s i o n o f the NPS t o preserve u n i m p a i r e d
the n a t u r a l and c u l t u r a l resources a n d values o f the
n a t i o n a l p a r k system for the e n j o y m e n t , education, a n d
i n s p i r a t i o n o f this and f u t u r e generations represents a
great deal o f responsibility. B u t , as w i t h m a n y large U.S.
4
g o v e r n m e n t bureaucracies, the actual a u t h o r i t y for select

i n g a n d i m p l e m e n t i n g m a n a g e m e n t strategies resides i n
legislation a n d related p r o c e d u r a l d o c u m e n t s w r i t t e n t o
ensure c o m p l i a n c e . As NPS p o l i c y clarifies, "the manage
Figure 2.1. N o r t h Mesa. The limited vegetation, temperature extremes,
m e n t o f the n a t i o n a l p a r k system and NPS p r o g r a m s is
occasional flooding, and gusting winds contribute to active erosion
g u i d e d b y the C o n s t i t u t i o n [ o f the U n i t e d States], p u b l i c
patterns i n the landscape. Horizontal sedimentary layers have been

carved into colorful plateaus, mesas, buttes, and canyons. Photo:
laws, treaties, p r o c l a m a t i o n s , Executive Orders, regula
David Myers
tions, a n d directives o f the Secretary o f the I n t e r i o r a n d

the Assistant Secretary for Fish a n d W i l d l i f e a n d Parks."
I n the c u r r e n t o r g a n i z a t i o n , each p a r k o r site has
deep a n d 2.5 k i l o m e t e r s (1.5 miles) w i d e , b o r d e r e d b y

sandstone cliffs t o the n o r t h a n d s o u t h . A b o v e these cliffs
a m a n a g e m e n t t e a m headed b y a superintendent, w h o is
lie mesas d o t t e d w i t h p i n o n a n d j u n i p e r trees. Grasses
the p r i n c i p a l a u t h o r i t y i n m o s t decisions r e g a r d i n g t h a t
a n d shrubs cover the a l l u v i a l c a n y o n b o t t o m , d r a i n e d
u n i t . Superintendents r e p o r t t o t h e i r respective r e g i o n a l
b y the e p h e m e r a l Chaco W a s h . A t the w e s t e n d o f the
directors, b u t outside the issuing o f c e r t a i n p e r m i t s , m o s t
Park, Chaco W a s h a n d Escavada W a s h j o i n t o f o r m the
p a r k operations are h a n d l e d locally once the annual
Chaco River.
b u d g e t a n d activity plans are approved. Superintendents
F r o m the tops o f the mesas, the n a t u r a l b o u n d
have b e e n c o m p a r e d t o ship captains: "others m i g h t o w n
aries o f the San J u a n Basin m a y be v i e w e d i n all directions:
the p r o p e r t y a n d d e t e r m i n e t h e cargo, b u t once away
C o l o r a d o ' s San J u a n a n d L a Plata M o u n t a i n s t o t h e n o r t h ,
from the d o c k (or i n t h e field), the captain (or superinten
the C h u s k a M o u n t a i n s t o t h e west, the Jemez M o u n t a i n s
dent) makes the decisions."
t o the east, a n d M o u n t T a y l o r t o the s o u t h . T h r o u g h o u t
the basin, vast deposits o f u r a n i u m , coal, n a t u r a l gas, a n d

D e s c r i p t i o n o f CCNHP a n d Its C o n t e x t
NATURAL C O N T E X T
C C N H P is situated i n the n o r t h w e s t e r n p a r t o f the state
o f N e w M e x i c o , near the center o f the 6.47-millionhectare (25,000-square-mile) San J u a n Basin, w i t h i n the
m u c h larger C o l o r a d o Plateau. T h e basin is generally
semiarid, typically r e c e i v i n g o n l y 21.6 centimeters (8.5
inches) o f p r e c i p i t a t i o n annually, w h i c h accounts for the
r e g i o n s sparse vegetation. S u m m e r s b r i n g intense b u t
b r i e f t h u n d e r s t o r m s w i t h flash floods. A n n u a l tempera
tures v a r y widely, w i t h w i n t e r l o w s w e l l b e l o w freezing
a n d s u m m e r peaks a r o u n d 38 C (100 F). Year-round, daily
temperatures at Chaco C a n y o n also t e n d t o range widely,
r i s i n g a n d falling w i t h the sun, due t o an elevation i n
excess o f 1,829 m e t e r s (6,000 feet).
T h e Park t o d a y covers a p p r o x i m a t e l y 13,760
hectares (34,000 acres). Chaco C a n y o n itself, w h i c h cuts
east-west t h r o u g h the Park, is some 91 meters (300 feet)
62
o i l lie b e n e a t h the surface.

CULTURAL C O N T E X T
C C N H P is l o c a t e d i n a relatively p o o r a n d l i g h t l y p o p u
lated area o f N e w M e x i c o . N a t i v e A m e r i c a n s , p r i m a r i l y
Navajo, constitute the m a j o r i t y o f t h e residents i m m e d i
ately s u r r o u n d i n g the Park. T h e Pueblo tribes live i n areas
f u r t h e r east, west, a n d s o u t h . T h e lands a r o u n d t h e Park
are used p r i m a r i l y for g r a z i n g sheep, cattle, a n d horses
a n d for i n d u s t r i a l e x t r a c t i o n a n d processing o f the r e g i o n s
abundant deposits o f energy resources.
I n t e r t r i b a l , as w e l l as n o n - I n d i a n , relations i n the
Southwest are shaped significantly b y the extent o f federal
a n d t r i b a l g o v e r n m e n t s ' c o n t r o l o f l a n d i n this areaand
b y the complexities o f l a n d interests i n general. Nuances
i n legalities o f l a n d use are o f t e n c o m p l i c a t e d b y t h e o p p o
s i t i o n o f surface a n d subsurface interests, w h i c h are i n
m a n y cases d i v i d e d b e t w e e n different parties for one l a n d
p a r c e l . M a n y residents o f the S o u t h w e s t q u e s t i o n the
7
extent o f g o v e r n m e n t i n v o l v e m e n t i n l a n d m a n a g e m e n t
lesced i n t o small villages. B y about A . D . 500, the canyon s
i n the r e g i o n . I n part, they feel that federal c o n t r o l reflects
inhabitants w e r e b u i l d i n g one-story m a s o n r y dwellings
the interests o f distant bureaucrats i n W a s h i n g t o n , D . C . ,
above g r o u n d , organized a r o u n d central p i t houses.
rather t h a n local interests, and that local revenues lost

due t o the e x e m p t i o n o f g o v e r n m e n t l a n d from p r o p e r t y
T h e p e r i o d f r o m A . D . 700 t o 1300, also called the

Pueblo p e r i o d , is associated w i t h w h a t is k n o w n as the
taxes are n o t m a d e u p b y federal payments and subsidies.
"Chaco P h e n o m e n o n . " T h e core area o f Chaco C a n y o n
I n a d d i t i o n , setting aside lands as n a t i o n a l parks and u n d e r
appears t o have served as an administrative, economic,
the Wilderness Act of 1964 is seen as p r e v e n t i n g viable eco
and c e r e m o n i a l nexus o f a c u l t u r e that d o m i n a t e d w h a t
n o m i c activities i n those areas. Nevertheless, g r a z i n g and
today is k n o w n as the Four Corners.
the i n d u s t r i a l e x t r a c t i o n o f various types o f n a t u r a l

resources have l o n g been a l l o w e d i n o t h e r federal lands i n
the r e g i o n .
T h e phases o f o c c u p a t i o n i n Chaco C a n y o n left

b e h i n d c o m p l e x m a s o n r y structures k n o w n as "great
houses," c o n t a i n i n g h u n d r e d s o f r o o m s and dozens o f
T h e presence i n the r e g i o n o f m a n y Native A m e r
kivas ( r o u n d structures o f v a r y i n g size) t h a t w e r e m u c h
ican reservations, w h i c h are a m o n g the n a t i o n s largest,
larger i n scale t h a n a n y t h i n g p r e v i o u s l y b u i l t i n t h e
complicates local and federal l a n d issues. T h e lands i n and
r e g i o n (fig. 2.2); t h e i r appearance is u n i q u e i n the A m e r i
a r o u n d several o f these reservations are the subject o f
cas. O t h e r features o f the Chaco P h e n o m e n o n i n c l u d e
long-standing controversies over sovereignty due t o some
r o a d a l i g n m e n t s (some segments are m o r e t h a n 64 k i l o
times-conflicting treaties b e t w e e n the U.S. g o v e r n m e n t
meters40 m i l e s l o n g ) w i t h c u t stairways a n d
and the tribes. A case i n p o i n t is a c e n t u r y - o l d dispute
m a s o n r y r a m p s t h a t lead t o m o r e t h a n 150 o u t l y i n g great
b e t w e e n the H o p i t r i b e and Navajo N a t i o n over approxi
houses a n d settlements. T h e Chacoans also created a n d
m a t e l y 248,000 hectares (1.8 m i l l i o n acres) o f l a n d i n the
depended o n t h e i r w a t e r c o n t r o l a n d d i s t r i b u t i o n struc
Four Corners r e g i o n t h e m e e t i n g p o i n t o f the states o f
tures t o manage the scant seasonal rains, and t h e y
A r i z o n a , C o l o r a d o , N e w M e x i c o , and U t a h . C o m p l i c a t i n g
depended o n t h e i r a s t r o n o m i c a l k n o w l e d g e t o anticipate
and occasionally fueling the l a n d dispute is the unresolved
calendric cycles. T h e y left p e t r o g l y p h s t h a t m a r k e d solar
issue o f legal c o n t r o l over coal reserves, v a l u e d i n the b i l
events, a n d t h e y appear t o have used r o a d a n d architec
lions o f dollars. N o t surprisingly, this conflict reverberates
t u r a l a l i g n m e n t s t o reflect l u n a r a n d stellar events. Exca
i n m a n a g e m e n t issues at C C N H P .
vations o f t h e great houses have revealed seashells, cop

per bells, a n d remains o f macaws, suggesting trade w i t h
History of Settlement a n d
Use
peoples o f the Pacific Coast a n d the G u l f o f C a l i f o r n i a as
C u r r e n t evidence indicates a b r o a d and relatively c o n t i n u

ous h a b i t a t i o n o f the San Juan Basin d u r i n g the PaleoIndian period, r o u g h l y b e t w e e n 8,000 and 10,000 years
ago. T h e earliest remains o f h u m a n h a b i t a t i o n i n Chaco
8
C a n y o n date t o 7,000 t o 2,000 years ago. These early inhab

itants apparently w e r e seminomadic hunter-gatherers.
Between t w o and three thousand years ago, inhabitants
o f the canyon began t o establish m o r e - p e r m a n e n t settle
ments, facilitated b y their increasingly sophisticated use
o f domesticated strains o f squash, beans, and c o r n .
D u r i n g the 1,300 years o f Anasazi, o r ancestral
9
Puebloan, culture, architecture, technology, social

o r g a n i z a t i o n and p o p u l a t i o n d i s t r i b u t i o n c o n t i n u e d t o
evolve. A p e r i o d o f increased p r e c i p i t a t i o n b e t w e e n A . D .
Figure 2.2. Pueblo Bonito seen from the air. Great houses, such as
400 and 500 p r o v i d e d for greater ease i n g r o w i n g crops,
Pueblo Bonito, are unique to Chaco culture. They have large numbers
a l l o w i n g for the first p e r m a n e n t o c c u p a t i o n o f Chaco

C a n y o n and a significant p o p u l a t i o n g r o w t h i n the area.
Settlement patterns, i n c l u d i n g subterranean p i t houses
and a c c o m p a n y i n g storage structures, eventually coa
o f rectangular and irregular rooms as well as r o u n d structures o f dif

ferent sizes, called kivas. The purpose o f the kivas is not k n o w n w i t h
certainty, although it is assumed that they were communal gathering
places, perhaps used for ceremonies. Photo: Courtesy National Park
Service, Chaco Culture N H P Collection Archives.
M A N A G E M E N T CONTEXT A N D HISTORY
63
w e l l as o f M e s o a m e r i c a . T h e Chacoans also t r a d e d
the B u r e a u o f A m e r i c a n E t h n o l o g y surveyed and p h o
their intricately decorated coiled p o t t e r y and fine
t o g r a p h e d the m a j o r Chacoan sites for a study o f Pueblo
turquoise j e w e l r y
architecture. These p h o t o g r a p h s p r o v i d e evidence that
By A . D . 1130, n e w construction at Chaco h a d ceased,

and b y A . D . 1300 m o s t o f the p o p u l a t i o n o f the canyon had
m o v e d away. Over t i m e , Chacoan people m i g r a t e d t o other
l o o t i n g and v a n d a l i s m o f prehistoric remains w e r e already

o c c u r r i n g at this early date.
I n 1896, relic h u n t e r R i c h a r d W e t h e r i l l arrived at
areas o f the region, including, t o the n o r t h , the Mesa Verde
Chaco after excavating several ancestral Puebloan sites,
area; t o the west and southwest, the H o p i Mesas, the Z u n i
i n c l u d i n g some at Mesa Verde, i n search o f "antiquities."
M o u n t a i n area, and the Chuska Mountains; and t o the east
H i s successes attracted the interest o f the w e a l t h y H y d e
and southeast, along the Rio Grande.
brothers o f N e w York, w h o over the next five years collab
Archaeologists generally believe that Chaco
o r a t e d w i t h W e t h e r i l l t o c o n d u c t full-scale excavations at
C a n y o n was n o t resettled u n t i l the Navajo m i g r a t e d i n t o
Pueblo B o n i t o , one o f the m o s t p r o m i n e n t o f the site's
the r e g i o n from the n o r t h i n the late 1500s o r 1600s,
great houses. George H . Pepper o f the A m e r i c a n M u s e u m
a l t h o u g h N a t i v e A m e r i c a n groups assert that the canyon
o f N a t u r a l H i s t o r y supervised the excavation w o r k o f the
has been i n c o n t i n u o u s use since Anasazi t i m e s . Archae
H y d e E x p l o r i n g E x p e d i t i o n , w h i l e W e t h e r i l l directed a
10
ological evidence shows that Chaco C a n y o n was used b y
Navajo crew. T h e p r i m a r y purpose o f the e x p e d i t i o n was
b o t h R i o Grande Pueblo and Navajo groups, from j u s t
t o gather artifacts for the Hydes, w h o later d o n a t e d t h e i r
before the Pueblo Revolt o f 1680 against the Spanish
collections t o the A m e r i c a n M u s e u m o f N a t u r a l H i s t o r y
t h r o u g h the m i d - n i n e t e e n t h century. F r o m the e n d o f that
i n N e w York, w h e r e t h e y are f o u n d today.
p e r i o d t h r o u g h the first p a r t o f the t w e n t i e t h century,

Navajo p o p u l a t e d the canyon, establishing seasonal
B y this t i m e , the p r o l i f e r a t i o n o f treasure-hunting

excavations t h r o u g h o u t the Southwest h a d created great
camps, p e r m a n e n t dwellings, p l a n t and m i n e r a l g a t h e r i n g
c o n c e r n a m o n g the scientific establishment o f the c o u n
areas, a n d c e r e m o n i a l sites. After the establishment o f
try. Early attempts t o p r o t e c t archaeological sites m e t
Chaco C a n y o n N a t i o n a l M o n u m e n t i n 1907, Navajo fami
s t r o n g resistance from w e s t e r n settlers w h o saw these
lies c o n t i n u e d t o f a r m and graze there u n t i l the NPS i n i t i
efforts as one m o r e initiative b y the federal g o v e r n m e n t
ated a resettlement p r o g r a m i n the m i d 1930s.
t o regulate the use o f the l a n d . H o w e v e r , a 1901 federal

investigation o f the H y d e E x p l o r i n g E x p e d i t i o n s excava
E v o l u t i o n o f Chaco C a n y o n
tions and the l a n d claims o f R i c h a r d W e t h e r i l l at Chaco
as a H e r i t a g e Site
C a n y o n strongly r e c o m m e n d e d that the U.S. g o v e r n m e n t
T h e first d o c u m e n t e d interest i n Chaco C a n y o n b y E u r o

pean A m e r i c a n s as a place o f archaeological significance
came i n 1849, w h e n the W a s h i n g t o n E x p e d i t i o n , a U.S.
A r m y T o p o g r a p h i c a l Engineers reconnaissance detach
m e n t , encountered and w r o t e descriptions o f Chacoan
sites. L i k e the earlier Spanish m i l i t a r y expeditions o f the
11
1820s, the U.S. A r m y engineers w e r e m e t b y Navajo w h o

h a d i n h a b i t e d the area for almost f o u r h u n d r e d years.
W h e n first "discovered," the ruins o f Chaco C a n y o n w e r e
seen as the abandoned vestiges o f a vanished civilization.
I n spite o f this perception, affiliated clans and religious
societies o f the H o p i o f A r i z o n a and the Pueblos o f N e w
M e x i c o c l a i m t o have v i s i t e d the site t o h o n o r t h e i r ances
t r a l homelands since the t i m e o f the e m i g r a t i o n o f its pre
historic inhabitants i n the t h i r t e e n t h c e n t u r y
12
I n 1877, the U.S. g o v e r n m e n t ' s G e o l o g i c a l and

Geographical Survey o f the Territories p r o d u c e d exten
sive descriptions and maps o f the Chacoan sites. T h e next
i m p o r t a n t d o c u m e n t a t i o n o f the site came i n 1888, w h e n
64
create a n a t i o n a l p a r k t o preserve the archaeological sites

i n the area. T h e General L a n d Office responded b y p u t
t i n g a stop t o the H y d e E x p e d i t i o n s excavations at Pueblo
B o n i t o and b y rejecting WetherilFs l a n d claim. Despite
these decisions, W e t h e r i l l c o n t i n u e d t o homestead at
Chaco Canyon, and he operated a t r a d i n g post at Pueblo
B o n i t o u n t i l his death i n 1910.
Eventually, after twenty-five years o f c o n c e r n
over damage t o the archaeological record, the
Antiquities
Act was signed i n t o l a w i n 1906. T h e act was designed t o

p r o t e c t and regulate the use and care o f "historic land
marks, historic and prehistoric structures, and o t h e r
objects o f historic o r scientific i n t e r e s t "
13
and "to preserve
[their] historic, scientific, c o m m e m o r a t i v e , a n d c u l t u r a l

values." T h e n e w l a w a u t h o r i z e d the creation o f
14
n a t i o n a l m o n u m e n t s o n lands o w n e d o r c o n t r o l l e d b y the
federal g o v e r n m e n t b y presidential p r o c l a m a t i o n , w i t h o u t
congressional approval, as was (and still is) r e q u i r e d for
the creation o f n a t i o n a l parks. T h e act stipulates that the
extension o f n a t i o n a l m o n u m e n t s is t o "be c o n f i n e d t o the
Figure 2.3. Region o f C C N H P and Chaco Archeological Protection

System. Chaco Canyon National M o n u m e n t originally encompassed
the canyon and surrounding mesas (7,998 hectares; 19,840 acres) and
the four small detached units o f Kin Bineola, Kin Ya'a, Casa Morena,
and Pueblo Pintado. Additional lands were added to the m o n u m e n t
in 1928 and 1980. The 1980 legislation recognized the extension o f the
Chaco culture by changing the name o f the unit to Chaco Culture
National Historical Park and by creating the Chaco Archeological
Protection Sites.
smallest area compatible w i t h the proper care and manage
D u r i n g the first eighty years o f the Park, b o t h
m e n t o f the objects t o be p r o t e c t e d . ' " I n M a r c h 1907,
g o v e r n m e n t a l and n o n g o v e r n m e n t a l archaeologists exca
President T h e o d o r e Roosevelt issued Presidential
v a t e d various locations at the site. F r o m 1933 t o 1937,
P r o c l a m a t i o n N o . 740, establishing C h a c o C a n y o n
G o r d o n V i v i a n carried o u t extensive conservation w o r k at
National Monument.
Pueblo B o n i t o , C h e t r o K e t l , and Casa Rinconada. A C i v i l
T h e n e w n a t i o n a l m o n u m e n t was administered
ian C o n s e r v a t i o n C o r p s ( C C C ) c r e w o f local Navajo

1 8
b y the General L a n d Office o f the D e p a r t m e n t o f the
stonemasons i n i t i a t e d repairs i n 1937 t o m a n y o f the large
I n t e r i o r u n t i l 1916, w h e n i t came u n d e r the a d m i n i s t r a t i o n
Chacoan structures t h a t w e r e d e t e r i o r a t i n g after years o f
o f the n e w l y f o u n d e d NPS. I n 1920, 461 hectares (1,140
exposure t o r a i n , w i n d , and freeze-thaw cycles as w e l l as
acres) w i t h i n the Park w e r e technically the p r o p e r t y o f
years o f archaeological excavations. T h e C C C project
Navajo families. Over t i m e , some o f that l a n d has been
p l a n t e d a p p r o x i m a t e l y 100,000 trees t h r o u g h o u t the
acquired b y the NPS; today, title t o some o f these parcels,
canyon t o forestall soil erosion, constructed earthen
called in-holdings, m a y be d i v i d e d a m o n g m o r e t h a n 100
b e r m s for the purpose o f soil conservation, and i m p r o v e d
descendants o f the o r i g i n a l titleholder. I t is estimated t h a t
m a n y roads and trails. I t began c o n s t r u c t i o n o f a r o a d t o
j u s t over 120 hectares (300 acres) o f these lands i n the west
the t o p o f the cliff o v e r l o o k i n g Pueblo B o n i t o , b u t W o r l d
ern p a r t o f the Park are still g r a z e d and c o u l d be m i n e d o r
W a r I I i n t e r r u p t e d the project, w h i c h was abandoned i n
developed b y t h e i r tideholders. A b o u t 650 hectares (1,620
1941 and never resumed. T h e conservation u n i t eventually
acres) o f l a n d inside the Park are still h e l d b y private i n d i
left the C C C b u t c o n t i n u e d w o r k o n the stabilization o f
viduals. C o m p l i c a t e d titles and o w n e r s h i p transactions
ruins as p a r k personnel.
over t i m e have made i t difficult for the NPS t o say w i t h

any degree o f c e r t a i n t y the extent o f g r a z e d o r privately
B e t w e e n 1971 and 1986, the comprehensive and

interdisciplinary Chaco Center Project u n d e r t o o k a b r o a d
o w n e d l a n d . W h i l e the NPS has an obvious interest i n
survey o f the m o n u m e n t , the e x a m i n a t i o n o f previous
a c q u i r i n g these lands, i t recognizes the challenge involved:
d o c u m e n t a t i o n , and the excavation o f a n u m b e r o f sites.
16
"Recent efforts t o acquire allotments h a v i n g o n l y one
P u b l i c a t i o n o f the findings was a key c o m p o n e n t o f the
o w n e r have failed, and a c q u i r i n g these small tracts w i l l
project. T h e i n f o r m a t i o n t h a t resulted has a l l o w e d schol
require decades o f negotiations for each estate."
ars t o examine the Chaco P h e n o m e n o n f r o m a m u c h
17
65
C(iii) o f the 1984 W o r l d H e r i t a g e C o n v e n t i o n , w h i c h cov

ers properties t h a t "bear a u n i q u e o r at least exceptional
t e s t i m o n y t o a c i v i l i z a t i o n w h i c h has disappeared" a n d
t h a t m e e t r e q u i r e m e n t s o f a u t h e n t i c i t y . Five o t h e r Cha
22
coan sitesAztec Ruins N a t i o n a l M o n u m e n t , Casamero,

H a l f w a y H o u s e , T w i n Angels, a n d K i n N i z h o n i w e r e
also i n c l u d e d i n the W o r l d H e r i t a g e i n s c r i p t i o n , h i g h l i g h t
i n g the extension o f the Chaco c u l t u r e .
PARK OPERATIONS AND FACILITIES
Today, C C N H P is m a n a g e d b y a superintendent w h o
reports t o the d i r e c t o r o f the NPS I n t e r m o u n t a i n
Regional Office i n D e n v e r . T h e NPS alone is responsible
23
Figure 2.4. Early view o f Pueblo Bonito, w i t h Threatening Rock still
a n d accountable for the m a n a g e m e n t o f the Park, a n d
standing. For almost half a century, Pueblo Bonito was excavated
u n d e r law, o t h e r stakeholders o r g r o u p s can o n l y b e c o m e
under the shadow o f Threatening Rock. Finally, i n 1941, the enormous
i n v o l v e d i n a c o n s u l t a t i o n capacity. Currently, the Park has
boulder separated from the crumbling mesa and fell onto the great
a staff o f 21 p e r m a n e n t employees and 16 seasonal hires,
house, destroying some thirty rooms excavated during the t w o previ

ous decades. Photo: Courtesy Southwest Museum, Los Angeles,
Photo # P23826
organized i n six o p e r a t i o n a l divisions: the superinten

dent's office (2 f u l l - t i m e employees [FTEs]), c u l t u r a l
resources (the largest g r o u p , w i t h 14 FTEs i n p r e s e r v a t i o n
a n d 3 i n m u s e u m curatorial), n a t u r a l resources ( 1 F T E ) ,
b r o a d e r perspective, a n d t h e i r conclusions have greatly
l a w enforcement and emergency services (2 FTEs); v i s i t o r
i n f l u e n c e d the i n t e r p r e t a t i o n o f the site.
services a n d i n t e r p r e t a t i o n (4.5 FTEs), a n d maintenance
19
M o t i v a t e d b y n e w k n o w l e d g e about the exten
(5.5 FTEs). T h e Park's base b u d g e t i n 2002 was approxi
sion o f the remains o f Chaco c u l t u r e a n d b y threats
m a t e l y US$1.6 m i l l i o n , o f w h i c h US$300,000 was trans
from increased e x p l o i t a t i o n o f n a t u r a l resources i n the
ferred t o an agency o f the Navajo T r i b e for the Navajo site
r e g i o n , Congress enacted legislation i n 1980 a d d i n g 5,060
protection project.
hectares (12,500 acres) t o the m o n u m e n t a n d c h a n g i n g its
24
T h e m a i n access t o the Park is f r o m the northeast
The
t h r o u g h a r o a d that starts at N e w M e x i c o 44/U.S. 550, the
l a w affirmed the Park's mandate o f preservation, inter
m a i n east-west h i g h w a y from the Four C o r n e r s r e g i o n t o
p r e t a t i o n , a n d research. T h e legislation also designated
Santa Fe a n d A l b u q u e r q u e . T h e distance f r o m this h i g h
t h i r t y - t h r e e o t h e r sites i n the San Juan Basin as Chaco
w a y t o the Park entrance is 33.6 k m (21 miles), o f w h i c h
C u l t u r e A r c h e o l o g i c a l P r o t e c t i o n Sites a n d p r o v i d e d for
25.5 k i l o m e t e r s (16 miles) is unpaved r o a d . A second r o a d
the a d d i t i o n o f m o r e sites i n the f u t u r e . M o r e t h a n t w o -
approaches the site from the s o u t h from U.S. 40 v i a
thirds o f these n e w l y p r o t e c t e d sites, w h i c h are n o t p a r t
C r o w n p o i n t ; the last 30.4 k m (19 miles) o f this r o a d are
n a m e t o Chaco C u l t u r e N a t i o n a l H i s t o r i c a l P a r k .
20
o f C C N H P , are i n Navajo t r i b a l lands, allotments, o r lands
also unpaved. I n order t o encourage access t o the Park
used b y the t r i b e for g r a z i n g . Subsequently, the Chacoan
from the northeast, for a l o n g t i m e maps a n d brochures o f
Outliers Protection Act of 1995 added n i n e n e w a n d r e m o v e d
C C N H P issued b y the NPS d i d n o t indicate the existence
four f o r m e r l y designated Chaco C u l t u r e A r c h e o l o g i c a l
o f the s o u t h r o a d . A t h i r d unpaved r o a d t h a t p r o v i d e d
P r o t e c t i o n Sites, r e s u l t i n g i n a t o t a l o f t h i r t y - n i n e outliers,
access t o the site from the n o r t h w e s t was closed several
e x t e n d i n g the area o f p r o t e c t e d sites b e y o n d the San
years ago.
Juan Basin.
I n 1987, the U N E S C O W o r l d H e r i t a g e C o m m i t
T h e Park is o p e n all year from sunrise t o sunset,

a l t h o u g h the unpaved roads can be impassable d u r i n g
tee f o r m a l l y recognized the i n t e r n a t i o n a l i m p o r t a n c e o f
i n c l e m e n t weather. T h e Park charges an entrance fee o f
C C N H P w h e n i t inscribed i t i n the W o r l d H e r i t a g e List.
US$8 per car o r US$4 per m o t o r c y c l e , w h i c h is collected
T h e n o m i n a t i n g d o c u m e n t s present the site as c o n t a i n i n g
at the V i s i t o r Center.
"the physical remains o f the Chacoans; a u n i q u e p o p u l a
O f the a p p r o x i m a t e l y four t h o u s a n d archaeologi
t i o n o f a c u l t u r e t h a t has b e e n extinct for hundreds o f
cal sites t h a t have b e e n identified w i t h i n Park boundaries,
years."
thirty-seven are o p e n t o visitors. These are located o n the
66
21
Chaco was inscribed i n the list u n d e r c r i t e r i o n
Figure 2.5. Current boundaries o f the Park. The areas demarcated by

arrows are those added i n 1980, when legislation changed the status o f
the site from a national m o n u m e n t to a national historical park. The
paved road inside the Park passes by the Visitor Center and makes a
14.5-km (9-mile) loop on the floor o f the canyon. Visitors have easy
access to over a dozen important sites from this loop road. C C N H P has
some facilities for visitors, such as the Visitor Center, a small camp
ground, and picnic areas.
Figure2.6.
C C N H P visitation characteristics. (Source: National Park Service Public Use Statistics Office, 29 May 2002, http: / /www.aqd.nps.gov/stats.)
67
l o o p r o a d and o n some o f the b a c k c o u n t r y trails. W a l k i n g

trails w i t h interpretive signage that lead visitors t h r o u g h
the m a j o r r u i n sites are surfaced w i t h c o m p a c t e d gravel.
T h e 30.4 k i l o m e t e r s (19 miles) o f trails i n the b a c k c o u n t r y
areas and the mesa tops are r o u g h e r and are n o t easily
discerned. Access t o the b a c k c o u n t r y sites is a l l o w e d
i n d i v i d u a l l y o r w i t h ranger-led tours. Visitors t o those
areas m u s t o b t a i n p e r m i t s so that rangers can keep t r a c k
o f off-trail hikers. T h e detached Park units are connected
t o the Park b y paved and unpaved roads passing t h r o u g h
private land. T h u s , the c o n s t r u c t i o n o f gates t o l i m i t
access is precluded.
Starting i n the 1970s, the n u m b e r o f visitors t o
the Park declined from an estimated 90,000 annually t o
a p p r o x i m a t e l y 74,000 i n 2001. Park staff attribute the
decline i n recent years i n p a r t t o the appearance o f
hantavirus i n the r e g i o n . A c c o r d i n g t o a 1994 study, the
25
great m a j o r i t y o f visitors t o C C N H P are o f E u r o p e a n

ancestry and have h a d several years o f h i g h e r e d u c a t i o n .
26
O n l y 20 percent o f visitors are accompanied b y c h i l d r e n

o r teenagers. A l m o s t h a l f o f t h e m spend b e t w e e n t w o
a n d six h o u r s on-site, and o n e - f o u r t h stay i n the Park
overnight.
T h e V i s i t o r Center, b u i l t i n 1957, is o p e n daily
except Christmas and N e w Year s Day. T h e center has a
small e x h i b i t i o n focused o n Chaco c u l t u r e and o n Navajo
and Pueblo h i s t o r y ; three films about Chaco, the Anasazi,
and Fajada B u t t e are s h o w n i n a small p r o j e c t i o n r o o m .
T h e Center also houses a b o o k s t o r e , administrative
offices, restrooms, and d r i n k i n g fountains.
T h e r e are f o u r picnic areas i n the Park w i t h a t o t a l
o f nine picnic tables; c a m p i n g sites have t h e i r o w n eating
areas. P a r k i n g areas a l o n g the i n t e r p r e t i v e l o o p r o a d can
a c c o m m o d a t e s i x t y - t w o vehicles. O f f the m a i n entrance
r o a d are a forty-five-site c a m p g r o u n d and a small-group
c a m p i n g area w i t h c o m f o r t stations. M i n i m a l o v e r f l o w
c a m p i n g space is available d u r i n g peak v i s i t a t i o n season.
T h e site is 96 k i l o m e t e r s (60 miles) from the nearest t o w n
that provides a c c o m m o d a t i o n s . T h e r e are n o lodgings,
a u t o m o b i l e services, o r f o o d facilities inside the Park.
Because o f its relative remoteness, all m a i n t e
nance facilities, w a t e r t r e a t m e n t systems, and employee
h o u s i n g are located w i t h i n the Park i n an area n o t far
from
the V i s i t o r Center. These facilities consists o f six m a i n t e

nance and t e n h o u s i n g structures, a w a t e r w e l l a n d stor
age tanks, w a t e r and sewage pipelines, and 0.8 hectares
(2 acres) o f sewage discharge l a g o o n s .
68
27
Understanding and Protecting the Values of the Park
C u r r e n t NPS policies clearly state that the funda
T h i s p a r t o f the Chaco case study examines the values

o f C C N H P h o w they w e r e and are identified and recog
m e n t a l purpose o f the n a t i o n a l p a r k system is t o "con
n i z e d and h o w they are considered i n the m a n a g e m e n t
serve Park resources and values," and they f u r t h e r explain
o f the site. I t t h e n analyzes the i m p a c t o f operational
that this f u n d a m e n t a l purpose "also includes p r o v i d i n g for
decisions and actions o n the values a t t r i b u t e d t o the site.
the e n j o y m e n t o f Park resources and values b y the people
T h r e e questions focus the discussions o f the

sections that f o l l o w :
H o w are the values associated w i t h the site
u n d e r s t o o d and articulated?
H o w are these values t a k e n i n t o account i n the
o f the U n i t e d States." T h e NPS m a n a g e m e n t policies

28
and the various directors' orders p r o v i d e a framework o f

compliance w i t h laws, executive orders, and o t h e r regula
tions. I n a d d i t i o n , C C N H P m a n a g e m e n t is g u i d e d b y the
m i s s i o n and purpose o f the Park.
M o s t o f the m a n a g e m e n t d o c u m e n t s available
site's m a n a g e m e n t policies and strategies?

H o w do m a n a g e m e n t decisions and actions o n
site affect the values?
for C C N H P predate the c u r r e n t NPS m a n a g e m e n t p o l i

cies, and i n general, they do n o t analyze values o r carry
29
clear statements o f the Park's values and significance.

I n these discussions, i t is i m p o r t a n t t o keep i n
30
T h i s does n o t m e a n that the values a t t r i b u t e d t o C C N H P
m i n d that C C N H P cannot operate independently; as a
have n o t been recognized o r p r o t e c t e d over t i m e . Some
u n i t o f the NPS i t m u s t f o l l o w the directives established
values (scientific) w e r e w e l l articulated and p r o t e c t e d
for the system as a w h o l e . T h e NPS is a federal agency
from the start; o t h e r values fall u n d e r c o n s t i t u t i o n a l p r o v i
that bases the m a n a g e m e n t o f its holdings o n the U.S.
sions that w e r e designed t o p r o t e c t a b r o a d range o f civil
C o n s t i t u t i o n , federal laws, executive orders, federal regu
liberties (e.g., freedom o f r e l i g i o n , Native A m e r i c a n
lations that have the force o f law, and p o l i c y directives
rights); and others have been p r o m o t e d m a i n l y t h r o u g h
f r o m the secretary o f the i n t e r i o r and the secretary's
n a t i o n a l (as opposed t o site-specific) legislation (e.g., envi
deputies. W i t h i n the NPS, policies and guidance m a k e
r o n m e n t a l ) . Nevertheless, the absence, u n t i l recently, o f a
operational these laws and directives. A t the p a r k level,
f o r m a l statement o f values means that i n order t o under
m e m o r a n d a o f agreement establish specific relationships
stand w h a t values have been recognized at C C N H P and
w i t h other institutions, and p l a n n i n g d o c u m e n t s o f vari
h o w they have evolved, this study has h a d t o take an i n d i
ous kinds specify the w o r k t o be done and the means b y
rect approach, r e l y i n g o n reviews o f federal and site-
w h i c h i t is t o be i m p l e m e n t e d .
A t times, conflicts arise b e t w e e n w h a t is expected
from all NPS units and w h a t m a y be best for, o r reason
specific legislation, presidential proclamations, regula

tions, the guidance p r o v i d e d b y NPS, and, at the p a r k
level, priorities, allocation o f resources, and actions.
able t o expect from, a particular site. Each u n i t came i n t o

Values A s s o c i a t e d w i t h CCNHP
the system u n d e r different circumstances, and each brings

its o w n u n i q u e resources, history, and p o t e n t i a l i n t o one
vast administrative structure that is accountable t o C o n
gress and the A m e r i c a n people. T h e NPS m a n a g e m e n t
structure and guidelines focus o n the overarching needs
and issues o f the properties o f the system. Superinten
dents m u s t address the u n i q u e values and needs o f their
parks t h r o u g h decisions m a d e w i t h the b r o a d powers and
discretion that they are g i v e n i n the system.
W h e n Chaco C a n y o n N a t i o n a l M o n u m e n t was created

i n 1907, the presidential p r o c l a m a t i o n cited "the extraordi
n a r y interest [ o f Pueblo ruins], because o f t h e i r n u m b e r
and t h e i r great size, and because o f the i n n u m e r a b l e and
valuable relics o f a prehistoric people w h i c h they con
tain."
31
T h i s p r o c l a m a t i o n was m a d e possible b y the
Antiquities Act passed i n June 1906, w h i c h provides for the

creation o f n a t i o n a l m o n u m e n t s that include "historic
69
l a n d m a r k s , h i s t o r i c a n d prehistoric structures, a n d o t h e r
t h o u s a n d years o f evidence o f h u m a n c u l t u r a l develop
objects o f h i s t o r i c o r scientific interest."
m e n t , as h a v i n g a significance t h a t consists of:

Evidence o f a c i v i l i z a t i o n t h a t flourished b e t w e e n
VALUES OF CHACO
the n i n t h a n d the eleventh centuries and h a d h i g h achieve
W h e n President T h e o d o r e Roosevelt created Chaco

C a n y o n N a t i o n a l M o n u m e n t t o p r o t e c t the c o l l e c t i o n o f
r u i n s a n d materials t h a t s u r v i v e d from an ancient civiliza
t i o n , t h e i r p o t e n t i a l for g e n e r a t i n g k n o w l e d g e a b o u t the
past was b e i n g recognized as a p r i n c i p a l value. A m o n g the
m o s t p r o m i n e n t stakeholders o f the m o n u m e n t w e r e
a n t h r o p o l o g i s t s a n d o t h e r scholars w h o feared the possi
b i l i t y o f loss o f i n f o r m a t i o n i f the archaeological remains
were n o t protected.
n e w respect for earlier inhabitants o f the l a n d , considered
t h e n as a vanished race. A n early d e s c r i p t i o n o f Chaco
m o s t r e m a r k a b l e r u i n s y e t discovered are those standing
i n N e w M e x i c o . T h e y p u t t o shame the p r i m i t i v e l o g - h u t
o f o u r forefathers; the frame shanty o f the p r a i r i e t o w n ;
the d u g - o u t o f the m i n i n g regions; the adobe shelter o f
the Pacific slope. I n size a n d g r a n d e u r o f c o n c e p t i o n , t h e y
equal any o f the present b u i l d i n g s o f the U n i t e d States, i f
w e except t h e C a p i t o l at W a s h i n g t o n , a n d m a y w i t h o u t
discredit be c o m p a r e d t o the P a n t h e o n a n d the Colos
F r o m this perspective, the early
stakeholder g r o u p s o f the n a t i o n a l m o n u m e n t extended

b e y o n d t h e scientific c o m m u n i t y t o i n c l u d e all those w i t h
an interest i n the past, w h o also saw i n these r u i n s the vali
dation o f a new nation.
Since t h e n , the archaeological resources have
o t h e r values have c o m e t o be ascribed t o t h e m a n d t h e i r
s u r r o u n d i n g s over t i m e . T h e present m i s s i o n statement
reflects the ways i n w h i c h the values as f o r m a l l y recog
n i z e d have expanded: "Chaco C u l t u r e N a t i o n a l H i s t o r i c a l
Park provides for the preservation, p u b l i c e n j o y m e n t ,
study, a n d i n t e r p r e t a t i o n o f the i n t e r n a t i o n a l l y significant
c u l t u r a l features a n d n a t u r a l ecosystem processes w i t h i n
the Park, a n d o f the associated c u l t u r a l features f o u n d
33
The
statement declares the o b l i g a t i o n o f the NPS t o preserve

these features; t o p r o v i d e o p p o r t u n i t i e s for the p u b l i c t o
experience a n d appreciate t h e m ; t o study t h e m ; a n d t o
present a n d m a k e available i n f o r m a t i o n a b o u t t h e m .
T h e c u r r e n t v e r s i o n o f the Resource Manage
ment Plan
34
identifies the f o u r t h o u s a n d sites a n d 1.5 m i l
l i o n artifacts a n d archival d o c u m e n t s , w h i c h h o l d t e n
70
served, a n d m o s t c o m p l e x prehistoric a r c h i t e c t u r a l struc

tures i n N o r t h A m e r i c a
A r e g i o n a l system o f c o m m u n i t i e s centered i n
Chaco C a n y o n a n d l i n k e d b y roads a n d trade n e t w o r k s
t h r o u g h o u t the San J u a n Basin
research i n the P a r k . . . a n d . . . m o r e t h a n 1.5 m i l l i o n arti
facts a n d archival d o c u m e n t s
scape t h r o u g h c o n t e m p o r a r y A m e r i c a n I n d i a n descen
dants o f Chaco C a n y o n , w h o value i t t o d a y for its s p i r i t u a l
c o n n e c t i o n w i t h t h e i r past
A r e m o t e l o c a t i o n offering o p p o r t u n i t i e s t o enjoy
solitude, n a t u r a l quiet, clear air, starlit skies, a n d
p a n o r a m i c vistas
T h e largest l o n g - t e r m p r o t e c t e d area i n n o r t h
w e s t e r n N e w M e x i c o , w h i c h encompasses relatively
u n d i s t u r b e d examples o f floral a n d faunal c o m m u n i t i e s
w i t h i n the C o l o r a d o Plateau ecosystem, a n d offers o p p o r
tunities t o conserve the r e g i o n s b i o d i v e r s i t y a n d m o n i t o r
its e n v i r o n m e n t a l q u a l i t y .
35
These statements present a m o r e detailed a n d

expanded set o f values t h a n those m e n t i o n e d i n the 1 9 0 7
r e m a i n e d the central focus a n d p u r p o s e o f the Park, and
t h r o u g h o u t the s u r r o u n d i n g F o u r C o r n e r s R e g i o n . "
Chaco "great houses"the largest, best pre
O t h e r links t o the past a n d t o the n a t u r a l land
C a n y o n illustrates these sentiments w h e n i t says, "the
3 2
neering, astronomy, a n d e c o n o m i c o r g a n i z a t i o n
120 years o f archaeological a n d a n t h r o p o l o g i c a l
A t the same t i m e , the r u i n s i n s p i r e d awe a n d a
s e u m o f the O l d W o r l d . "
m e n t s i n architecture, a g r i c u l t u r e , social complexity, e n g i
p r o c l a m a t i o n . Values have deepened and expanded as a

result o f research, n e w perspectives, and the passage o f
t i m e . T h e n u m b e r o f archaeological sites r e c o g n i z e d as
b e i n g o f interest a n d w o r t h y o f p r o t e c t i o n has increased
substantially. T h e Park is k n o w n t o i n c l u d e a p a r t i c u l a r
k i n d o f featurethe great housesthat has b e e n revealed
t o be u n i q u e t o this c u l t u r e . T h e thousands o f k n o w n
Chacoan sites constitute an i n t e r r e l a t e d system o f c o m
m u n i c a t i o n a n d trade. K n o w n , b u t n o t officially recog
n i z e d at the t i m e o f designation, was the s u r v i v a l a n d con
t i n u a t i o n l i n k i n g c o n t e m p o r a r y tribes w i t h the ancient
builders a n d subsequent inhabitants o f w h a t is n o w Park
l a n d . T h e c o m m u n i t i e s o f flora a n d fauna possess a recog
n i z e d interest, a n d t h e y have increased i n r a r i t y a n d
i m p o r t a n c e because t h e y have b e e n p r o t e c t e d for
nearly sixty years w i t h i n the Park, w h i l e s u r r o u n d i n g
areas have b e e n g r a z e d a n d subject t o o t h e r uses over
the same p e r i o d .
T h i s section examines the values detected i n the

Park's m i s s i o n and the statements o f significance i n the
latest Resource M a n a g e m e n t P l a n . T h e emergence and
36
m e n t o f the sun and m o o n and t o o t h e r heavenly events,

have d r a w n the a t t e n t i o n o f researchers.
T h e i n f o r m a t i o n value a t t r i b u t e d t o the Park
e v o l u t i o n o f these values are discussed u n d e r the head
resides i n the remains o f the architecture, the associated
ings o f i n f o r m a t i o n value (scientific and educational),
m a t e r i a l culture, the ways i n w h i c h materials w e r e
aesthetic value, spiritual value, social value, historic value,
deposited i n antiquity, the evidence o f ancient lifeways,
e n v i r o n m e n t a l value, associative/symbolic value, and
the subtle i m p r i n t s o f activity still visible i n the landscape,
e c o n o m i c value.
Information
and the spatial relationships a m o n g all these elements.

ValueScientific
and
Educational
I n f o r m a t i o n value provides the m o s t benefit w h e n profes
T h e earliest descriptions o f w h a t is n o w C C N H P refer
sional research m e t h o d s are used t o study the resource.
almost exclusively t o the i m p o r t a n c e o f the Chacoan
Scientific value is the t e r m often g i v e n t o this i n f o r m a t i o n
architectural sites. T h e emphasis was o n the p o t e n t i a l o f
value b y stakeholders i n v o l v e d i n academic research. T h i s
these remains t o p r o v i d e i n f o r m a t i o n about t h e i r creators
value is p a r t i c u l a r l y fragile, and, paradoxically, its preser
and early inhabitants. T h e passage o f the Antiquities Act i n
v a t i o n depends t o a great extent o n n o n i n t e r v e n t i o n .
1906 was the result o f twenty-five years o f efforts o n the
Excavation o r exposure o f physical remains inevitably
p a r t o f a g r o u p o f dedicated citizens and m e m b e r s o f the
diminishes f u t u r e i n f o r m a t i o n value, so disturbance o f
e m e r g i n g a n t h r o p o l o g i c a l profession t o save the relics o f
any k i n d m u s t be carefully considered. As n e w technical
the past. Fascination w i t h N a t i v e A m e r i c a n antiquities
advances b e c o m e available t o archaeologists and techni
started w h e n E u r o p e a n travelers g o t t h e i r first glimpses o f
cians, they are able t o extract far m o r e i n f o r m a t i o n
the magnificent r u i n s o f the Southwest. H o w e v e r , i t was
physical evidence t h a n i n times past; thus, the value o f
i n the late n i n e t e e n t h century, s h o r t l y after the c o n c l u s i o n
pristine sites, authentic materials, soils, and m o r e
from
o f the C i v i l W a r a n d f o l l o w i n g the heyday o f the w e s t e r n
ephemeral subtleties increases w i t h t i m e . Logically, t h e n ,
expansion, that these antiquities captured the interest o f
the value o f reliable, early narrative and graphic docu
the scientific c o m m u n i t y o n the eastern seaboard. T h e
m e n t a t i o n o f these sites and t h e i r e n v i r o n m e n t s increases
professionals' curiosity was c o n t i n u o u s l y fueled b y
over t i m e as w e l l , as a r e c o r d o f change i n c o n d i t i o n o r
reports and descriptions o f n e w sites; b y the creation o f
physical status.
collections exhibited i n m u s e u m s i n W a s h i n g t o n , N e w
T h e value o f archaeological materials has been
York, Philadelphia, and Boston; and b y t h e i r presentation
s u p p o r t e d over the years b y n a t i o n a l legislation. T h e
t o even w i d e r publics at the W o r l d ' s C o l u m b i a n Exposi
Antiquities Act of 1906the first general legal p r o t e c t i o n
t i o n i n Chicago i n 1893 and the Louisiana Purchase
afforded t o the remains o f the past i n the U n i t e d States
E x p o s i t i o n i n Saint L o u i s i n 1904.
clearly states that archaeological and historic resources
37
As research was c o n d u c t e d and the extent o f the
w e r e v a l u e d at the federal level for t h e i r i m p o r t a n c e t o
Chacoan culture started t o be u n d e r s t o o d , the i n f o r m a
science, education, and o t h e r n a t i o n a l interests and t h a t
t i o n value o f the archaeological resources o f Chaco
the g o v e r n m e n t t o o k seriously its responsibility t o ensure
expanded t o encompass features o t h e r t h a n the architec
t h e i r p r o p e r investigation, i n t e r p r e t a t i o n , and preserva
t u r a l ruins. I t was obvious even i n the early years o f sci
t i o n . Scientific and educational values are reaffirmed b y
entific archaeology that these places w e r e evidence o f a
the Historic Sites Act of 1935, the National Historic
sophisticated culture, w i t h capacities for l a b o r organiza
tion Act of 1966, and the Archaeological and Historic
t i o n and large-scale f o o d p r o d u c t i o n . W i t h n e w tech
tion Act of 19J4, a m o r e sophisticated l a w that underscores
niques and sensitivities t o certain k i n d s o f data b e i n g
the i m p o r t a n c e o f the i n f o r m a t i o n p o t e n t i a l o f archaeo
increasingly available t o archaeologists, the field m o v e d
logical a n d historic resources. T h e Archaeological
Preserva
Preserva
Resources
t o w a r d research i n t o systems i n the Southwest. Once the
Protection Act of 1979 f u r t h e r strengthens the government's
general c u l t u r a l sequences i n architecture and p o t t e r y h a d
p o s i t i o n s u p p o r t i n g the value o f archaeological resources
been m a p p e d o u t , the evidence from the Chacoan sites
o n federal a n d I n d i a n lands t o scholars, the public, and
began t o emerge, and i t d e m o n s t r a t e d that trade goods
native peoples. B y r e a f f i r m i n g the value o f c u l t u r a l
from great distances w e r e m o v i n g a r o u n d the r e g i o n .
remains, these acts s u p p o r t and validate the efforts o f the
M o r e recently, the a s t r o n o m i c a l associations a m o n g
NPS t o p r o t e c t the resources o f C C N H P .
Chacoan sites and roads, t h e i r orientations t o the move
71
C C N H P is r i c h i n archaeological and c u l t u r a l
materials created and left b e h i n d over a p e r i o d o f m a n y
centuries. These materials bear witness n o t o n l y t o the
Anasazi people b u t also t o o t h e r inhabitants over t i m e .
T h e 1985 General M a n a g e m e n t Plan, i n an a t t e m p t t o
facilitate the p r i o r i t i z a t i o n o f p r o t e c t i o n initiatives and the
d e t e r m i n a t i o n o f appropriate uses o f the land, presented
a r a t i n g system t o establish the i m p o r t a n c e o f the differ
ent types o f vestiges f o u n d i n the P a r k . A l t h o u g h Park
38
staff indicate that this r a n k i n g has never h a d any practical

application, i t still provides a g o o d i n d i c a t i o n o f the rela
tive value assigned b y the NPS t o the various types o f cul
t u r a l resources. Anasazi remains are g i v e n the highest
score, as befits those that constitute the p r i m a r y purpose
o f the Park. W i t h i n the Anasazi category, h a b i t a t i o n and
k i v a sites are r a n k e d h i g h e r t h a n roads and trails, and
h i g h e r t h a n shrines and c e r e m o n i a l sites. A r t i f a c t scatters
o r hearths and b a k i n g pits are at the l o w e r e n d o f the
Figure z.y. Pueblo Bonito ruins. The n o t i o n o f "scenery" i n national

parks was associated early o n w i t h the aesthetic experience o f visitors.
This is still the case today at CCNHP, where aesthetic considerations
hold a place o f prominence i n Park management. The qualities that
make the place so appealing to the visiting public do not lend them
value scale. Remains o f earlier a n d later habitations
selves easily to objective description, but they are recognized to include
received l o w e r rankings.
the desert landscape, the panoramic vistas, and the architectural
T h e educational value o f C C N H P is realized
remains. Photo: Marta de la Torre
w h e n the i n f o r m a t i o n o b t a i n e d t h r o u g h the research o f

experts and the k n o w l e d g e o f t r a d i t i o n a l users is c o m m u
changed l i t t l e since 1907, b u t t h e y have b e c o m e m o r e valu
nicated t o a broader audience. Visitors t o the site are
able because o f the increasing r a r i t y o f such places i n a
i n f o r m e d o r educated t h r o u g h o b s e r v a t i o n and t h r o u g h
more crowded, more mobile w o r l d .
the i n f o r m a t i o n and i n t e r p r e t a t i o n p r o v i d e d o n site.

O t h e r m e m b e r s o f the p u b l i c m a y g a i n access t o i n f o r m a
I n recent decades, the aesthetic value created b y

the conditions m e n t i o n e d above has been b u n d l e d w i t h
t i o n t h r o u g h reports and publications, the W o r l d W i d e
o t h e r elements and is referred t o b y Park managers as "the
W e b , objects o n display at m u s e u m s i n the U n i t e d States
q u a l i t y o f the v i s i t o r experience." T h i s q u a l i t y is seen t o
and abroad, academic courses, television p r o g r a m s , and
depend o n a n u m b e r o f elements that include:
so o n . T h e educational value ascribed t o the Park today
sweeping, u n i m p a i r e d v i e w s
goes b e y o n d the archaeological remains t o encompass all
an u n c r o w d e d p a r k
aspects o f the site, such as N a t i v e A m e r i c a n ties and natu
appreciation o f ancient sites w i t h m i n i m a l
r a l resources and habitats.

Aesthetic
Value
T h e aesthetic value o f Chaco C a n y o n was recognized

early o n , and i t is codified i n the mandate o f the NPS
Organic Act
39
t o p r o t e c t "the scenery" u n i m p a i r e d .
A l t h o u g h the o r i g i n a l designation o f Chaco as a n a t i o n a l

m o n u m e n t (rather t h a n a n a t i o n a l park) placed the
emphasis o n the p r o t e c t i o n o f the archaeological ruins
and t h e i r scientific and educational values, w h e n the site
distractions
clear air
n o intrusions o f man-made noise o r l i g h t
(at n i g h t )
clean w a t e r and adequate facilities
access t o a ranger for personal i n t e r p r e t a t i o n
T h i s " q u a l i t y o f experience" has b e c o m e a p r o m i
n e n t value articulated b y the managers o f C C N H P over
t i m e , and i t is specifically m e n t i o n e d as such i n the
Resource M a n a g e m e n t Plan o f 1995 and the 2002 draft.
40
became p a r t o f the n a t i o n a l p a r k system i n 1916, i t

assumed a n u m b e r o f values h e l d b y the n e w agency.
T h e r e are a n u m b e r o f i n t a n g i b l e elements that
c o n t r i b u t e t o the aesthetic q u a l i t y o f the place, such as
clean air, silence, and solitude. T a k e n together, they are a
p o w e r f u l value o f the Park and m o r e t h a n the simple s u m
o f the parts. T h e evocative qualities o f the landscape have
72
41
Its p r o t e c t i o n has b e c o m e one o f the t o p p r i o r i t i e s o f Park

management, second o n l y t o the conservation o f the
ruins. T h e i m p o r t a n c e attached t o i t is s u p p o r t e d b y
the results o f a 1994 v i s i t o r study t h a t r a n k e d scenery,
solitude, n a t u r a l setting, and c a l m atmosphere as the
m o s t appreciated values o f the Park, after its educa
and the need for respectful c o n s u l t a t i o n t o ensure the p r o
tional value.
t e c t i o n o f the interests o f all stakeholders involved.
42
Some o f the items i n the list above have i m p o r
Park staff have recognized the i m p o r t a n c e o f
tance b e y o n d the aesthetic experience. For example,
considering N a t i v e A m e r i c a n perspectives i n the manage
sweeping, u n i m p a i r e d vistas are inextricably t i e d t o
m e n t o f Chacoan sites for years. H o w e v e r , f o r m a l cooper
ancient Chacoan roads i n lands outside the Park and t o
a t i o n w i t h tribes came a b o u t w i t h the creation i n the early
the t r a d i t i o n a l N a t i v e A m e r i c a n v i e w s from the t o p o f the
1980s o f the Interagency M a n a g e m e n t G r o u p ( I M G ) t o
mesas that encompass the four sacred m o u n t a i n s o f the
p r o v i d e d i r e c t i o n for the m a n a g e m e n t o f t h i r t y - t h r e e
Navajos. T h e loss o f these vistas ( w h e t h e r from develop
Chaco A r c h e o l o g i c a l P r o t e c t i o n Sites (see map,fig 2.3).
m e n t o r p o l l u t i o n ) w o u l d i m p i n g e n o t o n l y o n Chaco's
I n 1990, the Joint M a n a g e m e n t Plan created b y the I M G
aesthetic value b u t also o n the spiritual value o f the site
was a m e n d e d t o m a k e the NPS "responsible for adminis
for some stakeholders, as w e l l as o n the educational value
t r a t i o n o f archaeological p r o t e c t i o n sites o n Navajo
o f the C C N H P t o p r o v i d e visual evidence o f the Chaco
lands, and for requesting and d i s t r i b u t i n g funds t o the
Phenomenon.
Navajo Tribe for the m a n a g e m e n t o f Navajo-related
Spiritual
sites." These arrangements w e r e codified i n the Chacoan

44
Value
Native A m e r i c a n interest i n the sites o f C C N H P is
Outliers Protection Act of 1995** T h e NPS was represented
r e p o r t e d t o have been present for generations. Chaco
i n the I M G i n i t i a l l y b y the NPS Regional Office i n Santa
C a n y o n is c l a i m e d as a sacred place for m e m b e r s o f clans
Fe, b u t this responsibility was transferred t o C C N H P i n
and religious societies o f the H o p i o f A r i z o n a and the
the m i d 1990s. T h i s change expanded the relationship
Pueblos o f N e w M e x i c o . W h i l e they descend from a dif
b e t w e e n the Navajo and the Park a d m i n i s t r a t i o n , w h i c h
ferent language g r o u p and c u l t u r a l t r a d i t i o n f r o m the
h a d existed for decades t h r o u g h the Navajo conservation
Puebloans, Navajo m o v e d i n t o the area i n the late six
crews o f the Park.
t e e n t h o r seventeenth c e n t u r y and thus c l a i m a t t a c h m e n t
I n 1990 the p o s i t i o n o f N a t i v e A m e r i c a n s was
as w e l l . Studies c o m m i s s i o n e d b y the Park have recorded
strengthened b y the passing o f the Native American Graves
t h a t Chaco is a place i m p o r t a n t t o N a t i v e A m e r i c a n
Protection and Repatriation
Act (NAGPRA),
46
mandating
g r o u p s for a range o f c e r e m o n i a l activities, i n c l u d i n g the
c o n s u l t a t i o n w i t h tribes p r i o r t o any disturbance o f b u r i a l
offering o f prayers, the g a t h e r i n g o f plants and minerals,
sites, as w e l l as the r e t u r n o f b u r i a l objects o r h u m a n
a n d the c o l l e c t i o n o f Anasazi potsherds for use as temper
remains t o the appropriate c u l t u r a l l y affiliated tribe.
i n g m a t e r i a l b y p o t t e r y makers. Paintings and carvings i n
C u l t u r a l affiliation t o h u m a n and m a t e r i a l remains exist
the r o c k walls o f the Chaco C a n y o n s h o w m o d e r n Pueblo
i n g o r o r i g i n a t i n g from w i t h i n the boundaries o f the Park
religious symbols and Navajo h e a l i n g ceremonies.
was f o r m a l l y established i n 2000, w h e n C C N H P assigned
43
Federal appreciation o f c o n t e m p o r a r y N a t i v e
this status t o the Navajo N a t i o n ; the H o p i ; the Z u n i ; and
A m e r i c a n g r o u p s ' interest i n these ancient sites is v e r y
the Pueblos o f A c o m a , C o c h i t i , Isleta, Laguna, N a m b e ,
recent. W h i l e the American Indian Religious Freedom Act of
Picuris, Pojoaque, San Felipe, San Ildefonso, San Juan,
19J8 d i d n o t create additional rights o r change existing
Sandia, Santa A n a , Santa Clara, Santo D o m i n g o , Taos,
authorities, i t made i t a r e q u i r e m e n t t h a t federal agencies
Tesuque, and Z i a .
develop means for managers t o b e c o m e i n f o r m e d a b o u t
t i o n r e m a i n contentious, so w o r k continues o n assessing
Native A m e r i c a n religious c u l t u r e , consult w i t h t h e m
specific aspects o f the claims b y some groups. These dis
a b o u t the i m p a c t o f p r o p o s e d actions, and avoid unneces
cussions have gained an i m p o r t a n c e t h a t goes b e y o n d the
sary interference w i t h t r a d i t i o n a l practices. T h i s act p r o
concerns o f NAGPRA
v i d e d a legal framework w i t h i n w h i c h c o n s u l t a t i o n and
and w a t e r rights outside the P a r k .
n e g o t i a t i o n c o u l d take place a m o n g the federal stewards

and N a t i v e A m e r i c a n stakeholders regarding activities
4 7
T h e issues r e l a t i n g t o c u l t u r a l affilia
since they i n d i r e c t l y affect civil, land,

48
S h o r t l y before the enactment o f NAGPRA,
the
superintendent o f C C N H P f o r m e d the A m e r i c a n I n d i a n
b e i n g considered b y either side t h a t m i g h t affect places,
C o n s u l t a t i o n C o m m i t t e e , the first one o f its k i n d i n the
animals, plants, and o t h e r federal resources o f religious
country. T r i b a l p a r t i c i p a t i o n was k e p t i n f o r m a l , and all
significance t o N a t i v e Americans. I t served t o signal the
N e w M e x i c o and A r i z o n a Pueblo governments, the
f o r m a l a c k n o w l e d g m e n t o f an o n g o i n g t r a d i t i o n a l c u l t u r e
Navajo N a t i o n , and the A l l I n d i a n Pueblo C o u n c i l w e r e
U N D E R S T A N D I N G A N D PROTECTING T H E VALUES
73
i n v i t e d t o send representatives t o the meetings. W i t h o u t

a clear mandate, the early times o f the c o m m i t t e e are
r e p o r t e d t o have been difficult, w i t h the NPS advocating
an i n f o r m a l approach o f "let's get together and t a l k about
things o f m u t u a l i m p o r t a n c e . " F r o m the Native A m e r i
49
can perspective, the message is r e p o r t e d t o have been

i n t e r p r e t e d t o m e a n t h a t "the p u r p o s e o f this c o m m i t t e e
i n real Park p l a n n i n g efforts is unclear. T h e c o m m i t t e e
seems t o have devolved i n t o a k i n d o f n o m i n a l b o d y t h a t
makes the Parks' efforts l o o k g o o d w i t h o u t really d o i n g
a n y t h i n g o f substance." O v e r the years, some t r i b a l
50
g r o u p s have p a r t i c i p a t e d consistently i n the c o m m i t t e e ' s

deliberations, the consultations have b e c o m e regular, and
the advice from the tribes is g i v e n serious consideration
b y Park m a n a g e m e n t .
Figure2.8.
Navajo cornfield. I n the late sixteenth or early seventeenth
century, Navajo groups arrived i n the area n o w occupied by the Park,

where they established camps and lived from farming and herding.
A few decades after the creation o f the national m o n u m e n t i n the
early twentieth century, NPS authorities considered that the protection
Laws p r o t e c t i n g religious freedom also cover the

interests o f g r o u p s and i n d i v i d u a l practitioners o f w h a t
have been called N e w A g e spiritual rites and activities. A
n u m b e r o f ancient sites a r o u n d the w o r l d have attracted
people w i s h i n g t o experience and interact w i t h these
o f the ruins required the cessation o f these activities. A l t h o u g h no

longer living w i t h i n the boundaries o f the Park, many Navajo retain
family and cultural ties to the place. Photo: # 44-297. Chaco Canyon:
W i l l y George's C o r n Patch, M o c k i n g Bird Canyon. Archives, Labora
t o r y o f Anthropology, M u s e u m o f Indian Arts & Culture, Santa Fe,
N e w Mexico.
places i n n e w and n o n t r a d i t i o n a l ways t h a t often b l e n d

aspects o f various religions and cultures. C C N H P , t o
such as f o r m e r homes, b u r i a l places o f relatives, and
w h i c h they ascribe spiritual value, has b e c o m e a favorite
places o f i m p o r t a n c e i n t h e i r religious t r a d i t i o n s . "
place for these groups. T h e emergence o f n e w stakehold
53
W h i l e m o s t o f the h i s t o r y used i n this case study
ers often complicates the m a n a g e m e n t tasks o f a u t h o r i
is t h a t constructed b y historians and archaeologists, i t is
ties, since t h e y sometimes b r i n g values t h a t are different
i m p o r t a n t t o n o t e t h a t the Navajo and the Pueblo g r o u p s
from others o f l o n g e r standing. T h e r e c o g n i t i o n , respect,
see the h i s t o r y o f the r e g i o n i n a v e r y different way. Since
and eventual i n t e g r a t i o n o f these n e w values i n the m a n
m a n y aspects a n d details o f these historiesas w e l l as reli
agement o f the site can give rise t o conflicts, as has been
gious and c u l t u r a l beliefsare n o t shared w i t h outsiders,
the case i n C C N H P . These issues are explored i n m o r e
this study can o n l y h i n t at the n u m e r o u s values a t t r i b u t e d
detail i n the last section o f this study.
b y N a t i v e A m e r i c a n s t o the lands o c c u p i e d b y the Park.
Social
Historic
Value
Value
I n a d d i t i o n t o the spiritual c o n n e c t i o n m a n y Native A m e r
As one o f the earliest n a t i o n a l m o n u m e n t s and later as a
ican groups have t o the site, the lands o f C C N H P w e r e
f o u n d i n g u n i t o f the n a t i o n a l parks system, Chaco occu
h o m e t o the Navajo for several centuries, d u r i n g w h i c h
pies a place o f i m p o r t a n c e i n the h i s t o r y o f the NPS. B y
t i m e they forged c u l t u r a l a n d historical ties t o the place.
v i r t u e o f its status as a n a t i o n a l m o n u m e n t u n t i l 1980, the
D u r i n g the first f o r t y years o f the m o n u m e n t , Navajo
site developed i n a p a t h t h a t was different from t h a t fol
"traversed the trails, r a n livestock, c o n d u c t e d sings, a n d
l o w e d b y n a t i o n a l parks. T h e significance o f the m o n u
occupied scattered hogans a l o n g the w a s h . "
m e n t was clearly u n d e r s t o o d t o reside i n its archaeologi
51
B y the early
1930s, NPS administrators h a d d e t e r m i n e d t h a t the graz
cal ruins, a n d the m a i n m a n a g e m e n t objectives always
i n g o f sheep was d a m a g i n g the ruins, and they started t o
focused o n t h e m . T h e emphasis o n access and v i s i t a t i o n
evict the Navajo from the m o n u m e n t . I n 1947, the NPS
o f some o t h e r NPS units o f comparable resources, such
finished fencing the p e r i m e t e r o f the m o n u m e n t , and i n
as Mesa Verde N a t i o n a l Park nearby i n C o l o r a d o , was
1949 the last Navajo f a m i l y l i v i n g i n the site m o v e d away,
absent from Chaco C a n y o n N a t i o n a l M o n u m e n t . Today
a l t h o u g h the use o f s m a l l p o r t i o n s o f the l a n d still c o n t i n
these t w o n a t i o n a l parks present a m a r k e d contrast i n the
ues today. Scholars as w e l l as Navajo recognize that, i n
q u a l i t y o f experience t h e y p r o v i d e for visitors, m u c h o f
a d d i t i o n t o the religious values discussed above, "Navajos
w h i c h is the result o f decisions m a d e over the years.
52
retain an e m o t i o n a l tie t o m a n y places [ w i t h i n the Park],
74
C C N H P also bears witness t o a c e n t u r y o f evolu
T h e regeneration o f the ecosystem o f C C N H P
t i o n o f the practices o f archaeology a n d preservation.
as a result o f the almost c o m p l e t e e l i m i n a t i o n o f g r a z i n g
T h e research activities carried o u t o n site have reflected
and o t h e r d a m a g i n g useshas t r a n s f o r m e d the Park i n t o
the practices o f archaeologists and conservators at the
a reservoir for the Navajo o f m e d i c a l and c e r e m o n i a l
t i m e they w e r e conducted. These activities have left t h e i r
plants and i n t o an i m p o r t a n t source for scientific research.
m a r k i n excavated sites and reconstructed structures. T h i s
Some o f the conflicts that have arisen as a result o f this sit
h i s t o r y o f the Park as a heritage site is p a r t o f the i n f o r m a
u a t i o n are discussed i n the next section.
t i o n p r o v i d e d t o visitors.
Associative
(Symbolic)
Value
Value
M a n y individuals attribute great value t o the experiencing
T h e e n v i r o n m e n t a l qualities o f the Park can be seen t o
o f a site physically and t h r o u g h the senses. T h i s value has
have t w o components. T h e first is composed o f the land-
been w e l l explored i n r e l a t i o n w i t h n a t u r a l sites, w h e r e i t
f o r m s and w a t e r resources i n their relatively u n i m p a i r e d
has been called naturalistic value, defined as the direct
Environmental
c o n d i t i o n , and the plants and wildlife native t o this ecologi
experience and e x p l o r a t i o n o f nature that satisfies curios
cal zone, a l o n g w i t h relict n a t u r a l c o m m u n i t i e s o f culti-
ity, discovery, and r e c r e a t i o n . I n the c u l t u r a l w o r l d , this
vars and other species that w e r e i n t r o d u c e d o r used i n
value has been called associative o r s y m b o l i c . T h e quan
ancient o r historic times. As such, this constellation o f
t i t y and i m p o r t a n c e o f the archaeological elements f o u n d
features and elements creates an e n v i r o n m e n t that exists i n
i n Chaco C a n y o n and the s u r r o u n d i n g area, as w e l l as the
o n l y a few places i n the w o r l d . T h e second i m p o r t a n t qual
undeveloped character o f the site, give the place a s t r o n g
57
58
i t y resides i n r a r i t y These kinds o f m i c r o e n v i r o n m e n t s are
associative value. I n the m o d e r n w o r l d , this value can be
b e c o m i n g less c o m m o n over t i m e , and one exists at
experienced virtually, b u t w i t h o u t d o u b t , i t is strongest
C C N H P today because i t has been protected for decades
w h e n visitors are able t o experience the reality o f the tan
from the damage caused b y grazing, m i n i n g , air and w a t e r
gible remains o f the past. T h i s value comes o u t v e r y
p o l l u t i o n , and the i n t r o d u c t i o n o f exotic species.

Early i n the t w e n t i e t h century, e n v i r o n m e n t a l
degradation was n o t a significant w o r r y for the NPS at
strongly i n the 1994 visitors study, w h i c h f o u n d that "visi

tors at Chaco desire a physical e n v i r o n m e n t w h e r e inde
pendence and access t o ruins are achievable, Park facilities
Chaco C a n y o n . Livestock w e r e g r a z e d i n areas o f the
are few and p r i m i t i v e , and an interpretative approach is
n a t i o n a l m o n u m e n t for years w i t h o u t t h e i r i m p a c t o n the
self guided. T h i s is necessary for t h e m t o experience the
landscape ever b e c o m i n g a concern. T h e eventual banish
physical and interpretative aspect o f the h i s t o r y depicted
m e n t o f herds and flocks from the site was m o t i v a t e d b y
at Chaco o n a m o r e personal, introspective l e v e l . "
the damage they w e r e causing t o the ruins. Ecological

concerns d i d , however, eventually reach the Park from the
59
T h i s value closely depends o n the a u t h e n t i c i t y

o f the ruins and the vistas and terrains that have r e m a i n e d
outside w o r l d . Public awareness o f the fragile nature o f
relatively u n c h a n g e d over centuries. I t is also a key ele
the ecology o f the planet began t o f l o w e r i n the 1960s, as a
m e n t o f the " q u a l i t y o f the experience" m e n t i o n e d above.
reaction t o the d a m a g i n g effects o f p o p u l a t i o n g r o w t h
A l t h o u g h the existence o f this value is n o t arti
and little r e g u l a t i o n o f large-scale industry, m i n i n g , o r
culated i n any C C N H P d o c u m e n t , the m e n t i o n made
agriculture. T h e U.S. Congress began t o respond t o the
often o f the Park as a "special place," as w e l l as the preoc
g r o u n d s w e l l o f p u b l i c c o n c e r n for the e n v i r o n m e n t w i t h
c u p a t i o n w i t h the conservation o f the authentic remains
piecemeal legislation, and Congress eventually passed the
and w i t h m a i n t a i n i n g a certain "atmosphere" i n the Park,
comprehensive National Environmental Policy Act (NEPA) o f
can be i n t e r p r e t e d as a tacit r e c o g n i t i o n o f a s t r o n g asso
1969. T h i s act, and later its a m e n d m e n t s ,
ciative value.
54
converted i n t o
federal p o l i c y the g r o w i n g r e c o g n i t i o n o f the responsibil
Economic
Value
i t y o f the federal g o v e r n m e n t t o p r o t e c t the q u a l i t y o f the
O n e o f the first values associated w i t h the Chacoan ruins
environment.
was the artifacts f o u n d i n t h e m . W h i l e a b i g p a r t o f the
55
Regulations for all NPS units t o c o m p l y
w i t h this legislation came i n the f o r m o f m a n a g e m e n t
interest was m o t i v a t e d b y scientific curiosity, there was an
guidelines p r o t e c t i n g the e n v i r o n m e n t . As was the case
e c o n o m i c value i m p l i c i t i n the g a t h e r i n g o f artifacts t o be
for the i n f o r m a t i o n value o f the archaeological resources,
sold t o m u s e u m s and collectors. T h i s e c o n o m i c value is
the n a t u r a l values o f the Park w e r e also enhanced as a
still u p h e l d b y those i n v o l v e d i n the trade o f N a t i v e A m e r
result o f n a t i o n a l legislation.
ican antiquities, w h o often derive significant financial
56
75
benefits f r o m t h e i r endeavors. T h i s e c o n o m i c value is seen
w e s t e r n sector o f the Park are p r i v a t e l y o w n e d allocations
t o be negative and d e t r i m e n t a l i n m a n y heritage quarters,
o n w h i c h sheep and cattle are still grazed.
since the p u r s u i t o f its benefits results i n the l o o t i n g
T h e Park also has an e c o n o m i c value for the sur

r o u n d i n g c o m m u n i t i e s . A t present, some local families
o f sites.
I n a d d i t i o n t o the m o n e t a r y value o f artifacts,
derive t h e i r l i v e l i h o o d from e m p l o y m e n t i n the Park,
one o f the strongest sources o f e c o n o m i c value o f sites
m a i n l y as p a r t o f the c o n s e r v a t i o n crews. T h e Park also
depends o n the use o f the l a n d . I n general, this aspect o f
has a p o t e n t i a l e c o n o m i c value for the s u r r o u n d i n g c o m
e c o n o m i c value is the area w h e r e the interests o f stake
m u n i t i e s i f they w e r e t o develop services for visitors, such
holders create the m o s t seriousand m o s t p u b l i c
as a c c o m m o d a t i o n s a n d f o o d . W h i l e this has n o t yet hap
conflicts. A t C C N H P , as i n m a n y o t h e r heritage sites, the
pened, a project t o b u i l d a h o t e l o v e r l o o k i n g the Park
m o s t significant e c o n o m i c value lies i n alternative o r addi
w i t h serious p o t e n t i a l o f h a v i n g an i m p a c t o n m a n y o f the
t i o n a l uses t h a t can be m a d e o f the Park and the s u r r o u n d
values o f the sitewas canceled, n o t because o f concerns
i n g l a n d . T h e e c o n o m i c benefits t h a t b e c o m e unrealizable
a b o u t the Park, b u t because o f a shift i n the priorities o f
f r o m lands p r o t e c t e d as n a t i o n a l parks o r w i l d l i f e sanctu
the Navajo N a t i o n .
aries have always been a c o n c e r n o f farmers and ranchers
World Heritage
Value
o f the w e s t e r n U.S. These g r o u p s presented the strongest
W h e n C C N H P was n o m i n a t e d t o the W o r l d H e r i t a g e
o p p o s i t i o n t o the preservation m o v e m e n t , since "preserv
List i n 1984, the NPS h a d t o consider w h i c h o f the values
i n g the u n i q u e b u t obscure heritage o f the r e g i o n r e q u i r e d
a t t r i b u t e d t o the Park h a d an o u t s t a n d i n g universal, r a t h e r
the w i t h d r a w a l o f lands t h a t c o n t a i n e d tangible ruins.
t h a n a n a t i o n a l o r local, d i m e n s i o n . I n the context o f the
M o r e often t h a n n o t , these lands also i n c l u d e d resources
W o r l d H e r i t a g e C o n v e n t i o n , outstanding universal value is
that had commercial value."
"taken t o m e a n c u l t u r a l a n d / o r n a t u r a l significance w h i c h
60
T h e San Juan Basin is k n o w n t o c o n t a i n signi
is so exceptional as t o transcend n a t i o n a l boundaries and
ficant u n d e r g r o u n d resources o f coal, u r a n i u m , n a t u r a l
t o be o f c o m m o n i m p o r t a n c e for present and f u t u r e gen
gas, and o i l , a n d there are active coal a n d u r a n i u m mines
erations o f all h u m a n i t y . " T h e site was p r o p o s e d as
i n the lands n e i g h b o r i n g the Park. T h e subsurface rights
m e e t i n g a c r i t e r i o n t h a t recognizes sites t h a t bear a u n i q u e
i n certain areas o f the Park are n o t h e l d b y the NPS, and,
t e s t i m o n y t o a civilization t h a t has disappeared. T h e 1984
theoretically, m i n e r a l , o i l , and gas e x p l o r a t i o n and
d o c u m e n t s described the site as p r e s e r v i n g "the physical
e x p l o i t a t i o n c o u l d take place there. I n the 1970s and 1980s,
remains o f the Chacoans; a u n i q u e p o p u l a t i o n o f a cul
the threats posed b y the e x p l o i t a t i o n o f these resources
t u r e t h a t has been extinct for hundreds o f years."
w e r e so i m m e d i a t e t h a t they p r o m p t e d legislation
n o m i n a t i o n u n d e r w e n t an i m p o r t a n t m o d i f i c a t i o n t h a t
expanding the surface o f the Park and creating a d d i t i o n a l
l e d t o the i n c l u s i o n o f several o t h e r n e i g h b o r i n g Chacoan
p r o t e c t e d zones t h a t c o n t a i n archaeological remains. T h e
sites as p a r t o f the W o r l d H e r i t a g e Site. T h i s expansion,
1985 General M a n a g e m e n t Plan for C C N H P has a s t r o n g
suggested b y the W o r l d H e r i t a g e C o m m i t t e e , recognized
focus o n the challenges that w o u l d emerge i f i n d u s t r i a l
that the Chacoan civilization and its remains are n o t
concerns became interested i n e x p l o i t i n g the resources
confined t o the area covered b y C C N H P .
w i t h i n the Park and i f there w e r e a r a p i d d e v e l o p m e n t

o f t h e s u r r o u n d i n g areas. S o m e o f these issues have
61
62
63
The
6 4
I n considering the values o f i n d i v i d u a l sites, the

criteria o f the W o r l d H e r i t a g e C o n v e n t i o n have also
receded i n t o the b a c k g r o u n d , since the price o f these
evolved over t i m e . I n 1992 the W o r l d H e r i t a g e Opera
resources i n recent times has m a d e t h e i r e x p l o i t a t i o n
t i o n a l Guidelines w e r e m o d i f i e d t o a l l o w the i n s c r i p t i o n o f
u n e c o n o m i c . T h i s has b r o u g h t a b o u t a decrease i n this
C u l t u r a l Landscapes. T h e U n i t e d States c o u l d request t h a t
t y p e o f activity, b u t circumstances c o u l d w e l l change
the i n s c r i p t i o n o f C C N H P i n the W o r l d H e r i t a g e List be
i n the f u t u r e .
r e e x a m i n e d u n d e r the n e w category o f relict a n d associa
O t h e r alternative uses o f the l a n d t h a t w o u l d
tive c u l t u r a l landscapes. T h i s w o u l d recognize the u n i

65
b r i n g e c o n o m i c benefits t o some stakeholder g r o u p s
versal value o f the m o r e - i n t a n g i b l e elements o f the site,
include cattle and sheep g r a z i n g . T h e Navajo used Park
such as viewsheds and spatial relationships.
lands for t h e i r herds and flocks for centuries, and i t is o n l y
The management documents o f C C N H P do n o t
i n recent years that this practice has started t o be phased
address specifically the values o f the site as specified i n the
o u t . Today, a p p r o x i m a t e l y 121 hectares (300 acres) i n the
W o r l d H e r i t a g e n o m i n a t i o n materials, a l t h o u g h they
76
m e n t i o n its i n t e r n a t i o n a l significance. T h i s does n o t i m p l y
m i t t e e i n a n t i c i p a t i o n o f NAGPRA,
and i t continues t o con
that the universal values are n o t b e i n g protected; rather, i t
sult i t extensively o n matters related t o the use and conser
seems t o m e a n that the values associated w i t h Chaco,
v a t i o n o f the site.
according t o the c r i t e r i o n u n d e r w h i c h i t was inscribed i n

1987, are encompassed w i t h i n the values already recog
n i z e d and protected.
A l t h o u g h the o n l y official consultative g r o u p

associated w i t h the Park is that o f N a t i v e Americans, the
superintendent and staff o f C C N H P m a i n t a i n a c o m p l e x
n e t w o r k o f stakeholder relationships. A great deal o f
STAKEHOLDERS
C C N H P authorities identify "professional archaeologists
and c u l t u r a l anthropologists; N a t i v e A m e r i c a n tribes;
state, county, city and t r i b a l governments; and ' N e w A g e '
religious followers" as the Park's p r i n c i p a l constituen
cies. D e f i n i n g stakeholders as any g r o u p w i t h l e g i t i m a t e
66
interest i n the Park, and based o n the previous analysis o f

the values ascribed t o it, the list c o u l d be expanded t o
include o t h e r professionals and researchers, such as envi
effort is g i v e n t o c u l t i v a t i n g contacts w i t h local stakehold

ers and decision makers i n n e i g h b o r i n g t o w n s .
T h e Park superintendent a n d staff also adhere
to a good-neighbor p o l i c y t o w a r d o t h e r Chacoan sites i n
the r e g i o n . T h i s p o l i c y leads t o close c o l l a b o r a t i o n w i t h
o t h e r NPS units, t r i b a l c u l t u r a l resource officers, and state
p a r k authorities.
EVOLUTION OF VALUES
ronmentalists, zoologists, and botanists; Congress and
F r o m a c o m p a r i s o n o f the values o f the Park w h e n i t was
some g o v e r n m e n t agencies, such as the B u r e a u o f L a n d
first established w i t h those a t t r i b u t e d t o i t now, i t is clear
M a n a g e m e n t , the B u r e a u o f I n d i a n Affairs, and the U.S.
that t i m e has b r o u g h t a b o u t e v o l u t i o n and expansion
Forest Service; o t h e r NPS units w i t h Puebloan and Cha-
t h r o u g h n e w k n o w l e d g e and t h r o u g h enhanced apprecia
coan sites; neighbors, local landowners, and t h e i r business
t i o n o f c u l t u r a l traditions and the benefits o f p r o t e c t i n g
c o m m u n i t i e s ; t o u r i s m agencies; visitors, campers, and
a fragile landscape. As this e v o l u t i o n has happened, the
o t h e r recreational travelers; the general U.S. public; and
o r i g i n a l i n f o r m a t i o n and associative values have b e c o m e
the i n t e r n a t i o n a l c o m m u n i t y , as represented b y the W o r l d
stronger. Some o f the o t h e r values, such as the spiritual
H e r i t a g e C o m m i t t e e and U N E S C O .
and social ones h e l d b y Native A m e r i c a n groups, w e r e
C C N H P ' s stakeholders certainly never gather at

the same table, n o r do they speak w i t h equal force. Some
always present, b u t they h a d t o w a i t u n t i l quite recently

for f o r m a l r e c o g n i t i o n from federal authorities. T h e
o f the stakeholders do n o t visit, o r have any contact w i t h ,
spiritual value o f the site for some N e w A g e adherents
the Park. Some are o n l y interested i n the e c o n o m i c value
has emerged m o r e recently o n this ancient site, and i t is
o f the l a n d for alternative uses and h o l d this value h i g h e r
rather m o r e difficult t o integrate i n t o a m a n a g e m e n t
t h a n any o f the others. I n some cases, the values o f stake
strategy, g i v e n the conflict b e t w e e n t h e i r practices and
holders are irreconcilable.
those o f the l o n g e r - t e r m Native A m e r i c a n stakeholders.
Some conflicts b e t w e e n stakeholders' values at
Others, such as the n a t u r a l o r ecological values, have
C C N H P have been resolved (or at least simplified) outside
e m e r g e d as society as a w h o l e recognized the i m p o r t a n c e
the arena o f the Park b y the i n t r o d u c t i o n o f n e w legisla
o f these values, i n n a t i o n a l parks and elsewhere. I n all,
t i o n o r regulations, shifts i n authority, o r changes i n p r i o r i
t h e n , the e n r i c h m e n t and deepening o f the values o f the
ties. I n some instances, the values are s i m p l y i g n o r e d , so
site have also increased the site's significance.
as n o t t o raise interest (and therefore p o t e n t i a l conflict)

from any quarter. Conflicts over subsurface m i n e r a l
Consideration of Values in M a n a g e m e n t
rights, for example, can p i t legal o w n e r s h i p and develop
Policies a n d S t r a t e g i e s
m e n t rights against the need t o safeguard air and w a t e r

q u a l i t y and against the r e q u i r e m e n t t o p r o t e c t ruins f r o m
damage. H o w e v e r , the conflict m a y be d o r m a n t u n t i l
another energy crisis emerges o r u n t i l some o t h e r issue
changes the c u r r e n t situation.
Consultations w i t h Native A m e r i c a n groups,
particularly those culturally affiliated w i t h the Park, are
supported, and t o some extent mandated, b y
NAGPRA.
C C N H P created its A m e r i c a n I n d i a n C o n s u l t a t i o n C o m
T h i s section examines h o w the values ascribed t o the Park

or established t h r o u g h n a t i o n a l laws and o t h e r federal
provisions h a v i n g the force o f l a w figure i n c u r r e n t m a n
agement policies, strategies, and objectives at C C N H P .
Answers t o the question o f h o w values are taken i n t o con
sideration i n the m a n a g e m e n t policies, strategies, and
objectives have been gleaned from existing documenta
t i o n , conversations w i t h NPS and Park staff, and observa
tions on-site.
77
CURRENT GUIDANCE
T h e research u n d e r t a k e n for this study i d e n t i f i e d
T h e NPS has an impressive b o d y o f policies, regulations,
three m a n a g e m e n t p r i o r i t i e s at C C N H P :
a n d guidelines t h a t a t t e m p t t o standardize, i f n o t the deci
p r o t e c t i o n o f the archaeological resources
sions i n t h e parks, certainly t h e criteria and the processes
p r o v i s i o n o f a h i g h - q u a l i t y experience for
used t o reach t h e m . T h e p u r p o s e o f this guidance is t o

ensure f u l f i l l m e n t o f the agency's m a n d a t e t o p r o t e c t a n d
manage the great v a r i e t y o f n a t i o n a l l y significant areas
u n d e r its care w i t h o u t " d e r o g a t i o n o f the values a n d p u r
visitors
c o m p l i a n c e w i t h legal, statutory, a n d o p e r a t i o n a l
requirements
72
T h e r e s t o r a t i o n o f the n a t u r a l ecosystems is also
poses for w h i c h these various areas have been
a c o n c e r n , b u t t o a lesser degree t h a n the o t h e r three, as
established"
i n d i c a t e d i n the 2002 draft o f t h e Resource M a n a g e m e n t
67
and t o c o m p l y w i t h federal laws a n d regula
tions relevant t o p a r k operations. T h i s w e i g h t y p o l i c y
Plan, w h i c h states, " w h i l e b o t h c u l t u r a l a n d n a t u r a l
f r a m e w o r k m u s t still a l l o w field p e r s o n n e l t h e flexibility
p r e s e r v a t i o n efforts are c o m p a t i b l e , conflicts m a y arise.
needed t o m a k e decisions appropriate t o t h e c o n d i t i o n s o f
I n these instances, g i v e n the legislative p u r p o s e o f the
the i n d i v i d u a l parks.
Park, m a n a g e m e n t o f c u l t u r a l resources w i l l be favored
T h e n e w NPS M a n a g e m e n t Policies 2001 requires

f o u r p l a n n i n g processes at p a r k level: general manage
over m a n a g e m e n t o f n a t u r a l resources."
73
T h e m i s s i o n statement o f C C N H P also speaks o f
m e n t p l a n n i n g , strategic p l a n n i n g , i m p l e m e n t a t i o n plan
f o u r m a i n areas o f a c t i v i t y p r e s e r v a t i o n , p u b l i c enjoy
n i n g , a n d annual p e r f o r m a n c e p l a n n i n g . W i t h i n this
m e n t , research, a n d i n t e r p r e t a t i o n . These f o u r areas have
f r a m e w o r k , p l a n n i n g proceeds f r o m b r o a d m a n a g e m e n t
b e e n used i n this study t o organize the discussion i n this
68
concerns t o specific i m p l e m e n t a t i o n p r o g r a m s . Each p a r t
a n d the n e x t sections. I t s h o u l d be n o t e d that, i n m o s t
o f the process is set t o result i n w r i t t e n plans. H o w e v e r ,
instances, all policies have an i m p a c t o n many, i f n o t all,
these n e w policies w i l l be i m p l e m e n t e d gradually, a n d n o t
values o f a place. Some impacts are i n t e n t i o n a l a n d antici
all parks are i n c o m p l i a n c e w i t h the p l a n n i n g require
pated; others are n o t . A p o l i c y can also have a positive
m e n t s yet. I n the case o f C C N H P , the m a i n m a n a g e m e n t
effect o n a g i v e n aspect o f a value, w h i l e at the same t i m e
d o c u m e n t s c u r r e n t l y i n force are the G e n e r a l Manage
negatively affecting some o f its o t h e r dimensions. O n e o f
m e n t Plan o f 1985, the Strategic Plan for 2001-05, the
the benefits o f values-based m a n a g e m e n t is t h a t i t
Resource M a n a g e m e n t Plan o f 1995, a n d the Chaco
increases the awareness o f these impacts t h r o u g h the
A r c h e o l o g i c a l P r o t e c t i o n Site System J o i n t M a n a g e m e n t
m o n i t o r i n g o f values. T h e discussions t h a t f o l l o w a t t e m p t
Plan o f 1983 ( w i t h its 1990 a m e n d m e n t )
t o identify b o t h positive a n d negative results o f policies, i n
6 9
T h e seventeen-year-old G e n e r a l M a n a g e m e n t
o r d e r t o illustrate the r e a l i t y a n d c o m p l e x i t y o f manage
Plan is n o t regarded as obsolete b y staff, b u t i t is used p r i n
m e n t decisions; these discussions s h o u l d n o t be c o n s t r u e d
cipally as a list o f actions from w h i c h the superintendent
as a c r i t i c i s m o f C C N H P m a n a g e m e n t .
can select some for i m p l e m e n t a t i o n .
70
T h i s p l a n c a n n o t be
characterized as a strategic d o c u m e n t . Rather, i t focuses

o n c e r t a i n m a t t e r s t h a t w e r e considered p r o b l e m a t i c at
PRESERVATION POLICIES
Conservation
of Cultural
Resources
the t i m e a n d identifies specific actions t o be u n d e r t a k e n .
I n accordance w i t h the f o u n d i n g p u r p o s e o f the Park a n d
Some o f the issues t h a t w e r e critical i n 1985such as the
w i t h subsequent legislation, the c o n s e r v a t i o n o f c u l t u r a l
e x p l o i t a t i o n o f n a t u r a l resources a r o u n d the Park a n d a
resources is the first p r i o r i t y o f C C N H P . T h e m a i n p o l i c y
possible e x p o n e n t i a l g r o w t h i n p o p u l a t i o n i n t h e area a n d
i n this area seeks t o avoid i m p a i r m e n t o f the archaeological
i n t h e n u m b e r o f P a r k visitorshave failed t o m a t e r i a l i z e
resources b y d i s t u r b i n g t h e m as l i t t l e as possible. T h r e e
or have faded i n t o the b a c k g r o u n d . For these reasons, the
strategies are b e i n g e m p l o y e d : m i n i m i z i n g physical inter
usefulness o f the 1985 G e n e r a l M a n a g e m e n t Plan for the
v e n t i o n a n d f a v o r i n g noninvasive actions; a v o i d i n g expo
purposes o f this study is l i m i t e d , since i t n o l o n g e r reflects
sure t o the elements; a n d l i m i t i n g access.
the m a i n preoccupations o f Park staff. I n t e r m s o f day-to

day operations a n d the actions t h a t m o s t directly affect
A l t h o u g h reconstruction o f architectural ruins

was carried o u t d u r i n g the early years o f the Park, this
a n d reflect values, the m o s t relevant d o c u m e n t s are the
approach was abandoned decades ago. M o s t o f the cur
Resource M a n a g e m e n t Plan o f 1995 a n d the m o r e recent
r e n t c o n s e r v a t i o n w o r k on-site consists o f stabilization
one i n draft f o r m .
7 1
o f t h e r u i n s , backfilling, drainage c o n t r o l , a n d e r o s i o n
m a n a g e m e n t . O t h e r passive c o n s e r v a t i o n measures are
78
and are o p e n t o visitors. T h e rest o f the exposed r u i n s are

i n w h a t is classified as b a c k c o u n t r y an area t h a t can be vis
i t e d w i t h p e r m i s s i o n from Park m a n a g e m e n t .
L i m i t i n g excavations t o those t h a t are absolutely
essential is also a p a r t o f the preservation strategy at
Chaco, as i t is i n m o s t o t h e r n a t i o n a l parks. As p a r t o f the
p o l i c y o f m i n i m i z i n g i n t e r v e n t i o n s t o the site, C C N H P
has p o i n t e d scholarly research requests t o the materials
that are already excavated. T h i s p o l i c y is s u p p o r t e d b y
w o r k designed t o enhance access t o the 1.5 m i l l i o n objects
y i e l d e d over the years from excavations at Chaco and sur
r o u n d i n g sites. A few objects are e x h i b i t e d at the V i s i t o r
Figure2.9.
Reburial teams w o r k i n g i n the field. Over the last decade,
Center, b u t m o s t o f the collections are h e l d at the Univer
the Parks cultural resource management team has implemented a pro
sity o f N e w M e x i c o i n A l b u q u e r q u e . NPS policies s u p p o r t
g r a m o f reburial and backfilling o f excavated structures. W h i l e these
this strategy, and additional funds have b e e n allocated for
methods have proved to be effective i n terms o f conservation, they

hide from view the totality or parts o f the archaeological resources.
The criteria used to select the sites for backfilling l o o k at the interpreta
t i o n strategies o f the Park, the materials under consideration, the
the c o n s t r u c t i o n o f i m p r o v e d storage and study facilities

at the university, as w e l l as t o i m p r o v e databases, w h i c h
w i l l facilitate access b y scholars.
fragility o f the structures, and the degree o f maintenance that the sites
w o u l d require i f left exposed. Reburied sites are regularly monitored.
Photo: Guillermo Aldana
outside the Park
T h e i n v o l v e m e n t o f C C N H P i n the p r o t e c t i o n o f
resources outside its boundaries has c o m e a b o u t as a
also e m p l o y e d and consist o f barriers that prevent access,

o f d o c u m e n t a t i o n , and o f m o n i t o r i n g . T h i s m i n i m a l
i n t e r v e n t i o n approach, together w i t h the p o l i c y o f allow
i n g archaeological excavations o n l y i n extreme cases,
protects b o t h the physical remains and the i n f o r m a t i o n
they c o n t a i n .
T h e r e are a p p r o x i m a t e l y 1,250 sites i n the Park
classified as Active Preservation Sites. These i n c l u d e sev
eral h u n d r e d o f the largest and m o s t exposed structures,
all excavated sites, sites w h e r e research and analysis are
g o i n g o n , sites t h a t require r o u t i n e o r cyclical t r e a t m e n t ,
and sites actively threatened b y erosion. T h e c o n d i t i o n o f
150 o f these sites is assessed o n a regular basis, a n d a b o u t
f o r t y sites t h a t are considered v e r y sensitive are e x a m i n e d
every year. A l l o t h e r sites are considered Passive Preserva
t i o n Sites, and characteristically t h e y are l o w - m a i n t e n a n c e
sites t h a t are partially exposed o r b u r i e d , relatively stable,
unexcavated o r pristine, and n o t actively i n t e r p r e t e d .
Chacoan Resources
74
Restricting public access t o the r u i n s is a preserva

t i o n strategy t h a t has been used i n C C N H P for decades.
T h i s strategy is also manifested i n attempts m a d e t o l i m i t
the n u m b e r o f visitors c o m i n g t o the Park (discussed
b e l o w u n d e r "Public E n j o y m e n t Policies") and the
resources t h a t are accessible t o those w h o d o arrive. W i t h
result o f legislation, rather t h a n Park policy. I n 1980, legis

lation
75
established the Chaco C u l t u r e A r c h e o l o g i c a l Pro
t e c t i o n Site p r o g r a m t o manage and p r o t e c t t h i r t y - t h r e e

Chacoan sites located o n t r i b a l o r federal lands, outside
the j u r i s d i c t i o n o f the NPS. T h e r e are, however, t h o u
sands o f o t h e r sites, m a n y o f t h e m i n privately h e l d lands
that r e m a i n w i t h o u t any p r o t e c t i o n , and over w h i c h NPS
has n o influence or j u r i s d i c t i o n .
A m e n d m e n t s t o the Chaco C u l t u r e A r c h e o l o g i
cal P r o t e c t i o n Site System J o i n t M a n a g e m e n t P l a n
76
have
made C C N H P responsible for the a d m i n i s t r a t i o n o f sites

located i n Navajo lands, and for requesting and distribut
i n g funds t o the Navajo N a t i o n for the m a n a g e m e n t o f
these sites. These arrangements have b r o u g h t a b o u t a
close w o r k i n g relationship b e t w e e n the Park staff and
Navajo c u l t u r a l specialists. As w i t h the conservation o f
resources inside the Park, the objectives o f the manage
m e n t o f these external resources are t o m a i n t a i n t h e i r
i n t e g r i t y as remains from the past a n d t o preserve the
i n f o r m a t i o n a l value they e m b o d y C o n s e r v a t i o n policies
and strategies o f m i n i m a l disturbance have b e e n adopted
for sites located i n Navajo lands. I n contrast t o Park
resources, these sites are s e l d o m o p e n t o visitors.
Conservation
of Natural
Resources
over four t h o u s a n d k n o w n archaeological sites i n the
N a t u r a l resources have recently started t o receive m o r e
Park, m o s t o f those t h a t have been excavated are n o w
a t t e n t i o n from Park staff as a result o f legislation, direc
reburied. A p p r o x i m a t e l y fifty sites are b e i n g i n t e r p r e t e d
tives from NPS a d m i n i s t r a t i o n a n d executive orders, and
U N D E R S T A N D I N G A N DP R O T E C T I N G T H E VALUES
79
the availability o f funds for t h e i r study a n d p r o t e c t i o n .
d e v e l o p m e n t o f the Park, are the result o f C C N H P p o l i c y
T h e stated l o n g - t e r m objective is t o a l l o w n a t u r a l
decisions.
T h e q u a l i t y o f the v i s i t o r experience sought
processes t o take over, w i t h f u l l k n o w l e d g e t h a t this w i l l

n o t restore the l a n d t o Chaco-era c o n d i t i o n s . As m e n
b y C C N H P staff can o n l y be achieved i f the n u m b e r o f
t i o n e d before, the p r o t e c t i o n o f these resources can never
visitors is k e p t relatively low, and this a i m has b e c o m e a
be the t o p p r i o r i t y o f the Park, a n d i t is r e c o g n i z e d t h a t i f
d r i v i n g p r e o c c u p a t i o n over the years. Perhaps the m o s t
conflicts w e r e t o arise b e t w e e n t h e i r p r e s e r v a t i o n and t h a t
o b v i o u s manifestations o f this c o n c e r n are the efforts
o f c u l t u r a l resources, the latter w o u l d be f a v o r e d .
m a d e t o isolate the site b y l i m i t i n g access from several
77
A t this t i m e , m u c h o f the activity i n n a t u r a l

resource m a n a g e m e n t is directed at c o m p l y i n g w i t h legal
existing c o u n t y roads a n d b y k e e p i n g the m a i n r o a d t o

the Park unpaved. T h i s unpaved entrance r o a d c o u l d be
or NPS p o l i c y r e q u i r e m e n t s . I t consists o f species i n v e n t o
said t o have b e c o m e a s y m b o l o f p r o t e c t i o n i n Park l o r e .
ries a n d m a p p i n g , baseline data c o l l e c t i o n , a n d various
A l t h o u g h this r o u g h 25.5-kilometer (16-mile) ride can be
k i n d s o f i m p a c t studies. E r o s i o n c o n t r o l w o r k c o u l d be
a p a r t i a l deterrent, p a r t i c u l a r l y i n w i n t e r and d u r i n g the
considered as e n v i r o n m e n t a l p r o t e c t i o n efforts; neverthe
r a i n y season, o t h e r factors can be said t o be as i m p o r t a n t
less, the p r i n c i p a l purpose o f such w o r k is the preserva
i n k e e p i n g v i s i t o r n u m b e r s d o w n , such as the distance
t i o n o f the r u i n s . O t h e r actions are directed at the protec
f r o m o v e r n i g h t a c c o m m o d a t i o n s a n d the lack o f facilities
t i o n o f w a t e r a n d air quality, as m a n d a t e d b y legislation
on-site.
78
and NPS directives.

A t first glance, the i m p a c t o f p o l l u t i o n o n the
T h e l o w level o f d e v e l o p m e n t on-site has been a

long-standing p o l i c y o f C C N H P . I n the o p i n i o n o f some
resources o f the Park does n o t appear t o be as serious as
NPS staff, this p o l i c y came about, a n d has been m a i n
o t h e r threats. H o w e v e r , any d e t e r i o r a t i o n o f air q u a l i t y
tained, as a result o f the n a t i o n a l m o n u m e n t status t h a t
w o u l d affect the viewsheds o f the Park and, i f extreme,
the site h a d for m a n y decades. T h e "undeveloped" q u a l i t y
c o u l d c o n t r i b u t e t o the physical d e g r a d a t i o n o f archaeo
o f the Park is seen as a great asset, b y b o t h Park staff a n d
l o g i c a l materials. B y l i m i t i n g the n u m b e r o f vehicles a n d
visitors.
visitors, Park managers are e n s u r i n g a l o w level o f a m b i
n a t i o n a l parks seems t o have b e e n absent from the
79
T h e emphasis o n v i s i t o r access f o u n d i n the
ent c o n t a m i n a t i o n i n the i m m e d i a t e e n v i r o n m e n t . For
n a t i o n a l m o n u m e n t s , w h e r e the p r i m a r y c o n c e r n has
areas outside NPS j u r i s d i c t i o n , there is p r o t e c t i v e legisla
been the p r o t e c t i o n o f the c u l t u r a l , historic, o r scientific
t i o n t h a t m a y be e m p l o y e d w h e n e v e r p r o b l e m s t h r e a t e n
resources o f the units.
to encroach o n the i n t e g r i t y o f the site. T h e Park has sev
I n m o s t c u l t u r a l sites, values are affected and
eral m o n i t o r i n g efforts u n d e r w a y t o collect data o n air
often b r o u g h t i n t o conflict over issues o f conservation,
quality, w a t e r quality, a n d o t h e r indicators, so t h a t any
access, a n d the q u a l i t y o f the v i s i t o r experience. C C N H P
changes w i l l be i m m e d i a t e l y evident a n d managers m a y
is n o exception, as is i l l u s t r a t e d b y decisions r e g a r d i n g the
take appropriate action. These k i n d s o f activities, i n c l u d
Park's c a m p g r o u n d . T h e 1985 General M a n a g e m e n t Plan
i n g fire m a n a g e m e n t p l a n n i n g , are largely preventive con
calls for the c r e a t i o n o f a n e w and larger c a m p g r o u n d
servation o n a large scale a n d are a i m e d t o w a r d prepara
closer t o the entrance o f the Park, i n the G a l l o W a s h .
t i o n for dealing w i t h p r o b l e m s before t h e y affect the
T h e justifications for m o v i n g the c a m p g r o u n d from the
archaeological resources o r the q u a l i t y o f the v i s i t o r expe
old location were conservation (campgrounds were too
rience, as discussed below.

PUBLIC ENJOYMENT POLICIES
Policies i n the area o f p u b l i c e n j o y m e n t fall i n t o t w o m a i n
categories: those d i r e c t e d at t h e c o n d i t i o n s f o u n d b y visi
tors i n the Park a n d those related t o access t o the site.
Some o f the elements t h a t guarantee the q u a l i t y o f the
v i s i t o r s ' experience are covered b y legislation a n d b y
b r o a d NPS directives, such as those c o n c e r n e d w i t h air
quality, extraneous sounds, a n d so o n . Others, such as the
choice o f h a v i n g i n t e r p r e t a t i o n delivered b y Park rangers
rather t h a n b y descriptive panels, o r l i m i t a t i o n s o n the
80
80
close t o u n i q u e cliff dwellings) a n d t h e safety a n d enjoy

m e n t o f visitors ( c a m p i n g facilities w e r e located w i t h i n
the one-hundred-year f l o o d p l a i n a n d t o o close t o the
access road). Seventeen years later, the c a m p g r o u n d
remains i n its o r i g i n a l place. Park m a n a g e m e n t explains
t h a t m o r e - d e t a i l e d studies i n v a l i d a t e d some o f the 1985
rationale, since the m o v e t o G a l l o W a s h i m p l i e d develop
m e n t o f a pristine area, r i c h i n archaeological remains,
w h i l e the cliff dwellings close t o the o l d campsite are seen
to have already b e e n subjected t o m a n y decades o f con
tact w i t h visitors. T h e campsite m o v e w o u l d also have
r e q u i r e d a considerable i n v e s t m e n t and g r o u n d distur-
bance t o b r i n g w a t e r a n d electricity t o the n e w site. I n this
a n d academic groups, such as t h e School o f A m e r i c a n
p a r t i c u l a r case, the i n f o r m a t i o n a n d scientific values o f
Research i n Santa Fe a n d the S m i t h s o n i a n I n s t i t u t i o n . O f
the pristine G a l l o W a s h area, as w e l l as practical consider
p a r t i c u l a r i m p o r t a n c e was the Chaco Center Project
ations, prevailed over v i s i t o r convenience a n d c o m f o r t .
(1969-81), a j o i n t endeavor o f the NPS a n d the U n i v e r s i t y
T h e m a j o r i t y o f Park visitors are tourists w h o

c o m e m a i n l y for educational o r recreational reasons.
81
o f N e w M e x i c o , a n d one o f the largest archaeological

research projects ever u n d e r t a k e n i n the U.S. T h e Chaco
T h e r e are o t h e r g r o u p s w h o s e interest is o f a different
Center Project consisted m a i n l y o f fieldwork a n d the p u b
nature, a n d t h e y w o u l d like t o use the site i n different
l i c a t i o n o f results o f this a n d o t h e r research activities.
ways. Some N a t i v e A m e r i c a n g r o u p s fall i n t o this cate
Starting i n 1971, the p r o j e c t l o c a t e d a n d appraised the
gory. H o w e v e r , the o v e r a r c h i n g g o a l o f p r o t e c t i o n o f the
archaeological remains i n the Park a n d adjacent lands.
c u l t u r a l a n d n a t u r a l resources has p r e c l u d e d certain activi
O v e r one t h o u s a n d sites w e r e identified, and t w e n t y - f i v e
ties t h a t N a t i v e A m e r i c a n s consider t o be t h e i r r i g h t a n d
sites w e r e excavated as p a r t o f the w o r k . T h e project's p i o
o b l i g a t i o n , such as the g a t h e r i n g o f plants a n d the per
n e e r i n g use o f r e m o t e sensing aided i n i d e n t i f y i n g the pre
f o r m a n c e o f certain rituals.
historic r o a d system t h a t radiated o u t w a r d from Chaco
T h e social and spiritual values o f C C N H P t o

Native Americans, N e w Agers, and o t h e r interest g r o u p s
C a n y o n t o connect n u m e r o u s o u t l y i n g Chacoan c o m m u
nities i n the r e g i o n . T h e Chaco Center Project h a d a
84
are vested t o a considerable extent i n the p r o t e c t e d setting
s t r o n g influence d u r i n g the 1980s o n the i n t e r p r e t a t i o n
o f the Park. T h e General M a n a g e m e n t Plan states, "a key
presented at the Park. M o r e recently, a n e w effort o f the
element is the concept o f m a i n t a i n i n g the existing scene
U n i v e r s i t y o f C o l o r a d o - B o u l d e r a n d the NPS aims t o syn
the canyon ambienceso t h a t the m a j o r r u i n s can be
thesize the findings o f the earlier project and m a k e t h e m
experienced and i n t e r p r e t e d i n a setting m u c h like the
m o r e available.
e n v i r o n m e n t that s u p p o r t e d the daily existence o f the
A t the c o n c l u s i o n o f the Chaco Center Project i n
Chacoan i n h a b i t a n t s . " L e a v i n g aside discussion as t o
1981, C C N H P a d o p t e d a p o l i c y o f l i m i t e d archaeological
w h e t h e r the o r i g i n a l e n v i r o n m e n t o f the Chacoan age can,
excavations. A l l excavation proposals are r e v i e w e d b y Park
i n fact, be recaptured, i n effect, the m a n a g e m e n t strategies
staff a n d presented t o the A m e r i c a n I n d i a n C o n s u l t a t i o n
82
p r o t e c t the possibility o f spiritual experience at the site b y
C o m m i t t e e ; a l m o s t w i t h o u t exception, requests are
k e e p i n g distractions t o a m i n i m u m . W h i l e f o r b i d d e n b y
denied. Park personnel s u p p o r t this p o s i t i o n because i t
l a w t o favor the practice o f one r e l i g i o n over another, the
avoids exposing n e w structures and sites t h a t require
stance o f the Park protects the interests o f those w i t h a
active conservation. N a t i v e A m e r i c a n s t e n d t o oppose
spiritual interest i n the Park b y e x c l u d i n g activities that
excavation because o f concerns a b o u t d i s t u r b i n g h u m a n
c o u l d c o m p r o m i s e the i n t e g r i t y o f the setting. Paradoxi
remains and sacred sites. T h i s p o l i c y gives p r i o r i t y t o the
cally, regulations designed t o p r o t e c t the ruins l i m i t access
values o f N a t i v e A m e r i c a n s a n d t o the p r o t e c t i o n o f
t o certain places a n d can prevent stakeholders from u s i n g
f u t u r e p o t e n t i a l i n f o r m a t i o n value over the value o f infor
the Park for t h e i r ceremonies o r rituals.
m a t i o n i n the present.
R E S E A R C H POLICIES
I n line w i t h its m a n d a t e t o "facilitate research activities o n
INTERPRETATION AND
DISSEMINATION POLICIES
the u n i q u e archaeological resources," C C N H P has a
I n t e r p r e t a t i o n at C C N H P is done according t o the m a i n
research p o l i c y based o n c o l l a b o r a t i o n w i t h o t h e r NPS
lines o f a p r o g r a m established b y the 1991 Statement for
units, educational institutions, i n d e p e n d e n t scholars, a n d
I n t e r p r e t a t i o n and I n t e r i m Interpretive Prospectus.
85
This
t r i b a l and state g o v e r n m e n t s . T h e research p r i o r i t i e s o f
d o c u m e n t identifies seven p r i m a r y concerns regarding
the Park are developed i n accordance w i t h the Chaco
i n t e r p r e t a t i o n : " p r o m o t i n g safety, lessening i m p a c t t o
Research P l a n n i n g Strategy. T h e projects c u r r e n t l y
resources due t o increasing v i s i t a t i o n b y explaining t o the
identified are i n t e n d e d t o fill i n f o r m a t i o n gaps needed for
p u b l i c i n t e r n a l and external threats t o the resources, t e l l i n g
i n t e r p r e t a t i o n , m a n a g e m e n t , a n d preservation, o r t o c o m
a c o m p l e t e Park story, fostering sensitivity t o w a r d A m e r i
p l y w i t h c u l t u r a l resources a n d e n v i r o n m e n t a l laws a n d
can I n d i a n v i e w s o f Chaco and archaeology, developing
NPS p o l i c i e s .
better c o m m u n i t y relations t h r o u g h outreach services,
83
T h e Park's long-standing collaborative research
responding t o interpretive needs o f special populations,
strategy has p a r t n e r e d C C N H P w i t h o t h e r i n s t i t u t i o n s
8l
and i n t e r p r e t i n g Chaco C u l t u r e as a designated W o r l d
i n t r o d u c t i o n t o the site, b u t they can occupy another h o u r
H e r i t a g e Site."
o r m o r e , s h o r t e n i n g f u r t h e r the t i m e the v i s i t o r has for
86
I n addition, c u r r e n t i n t e r p r e t a t i o n p r i o r i t i e s
87
direct contact w i t h Park resources.
emphasize c o n s u l t a t i o n w i t h N a t i v e A m e r i c a n stakehold
T h e area encompassed b y the Park is extensive,
ers and the i n c o r p o r a t i o n o f t h e i r v i e w s and beliefs i n the
b u t the m a j o r i t y o f o p e n archaeological sites are located
stories t o l d . T h e i n t e r p r e t a t i o n available at the site
a r o u n d the l o o p r o a d . Access t o the t o p o f the n o r t h mesa
includes i n f o r m a t i o n about the c o n s e r v a t i o n o f the
a n d t o the v i e w s afforded b y t h a t vantage p o i n t can give
archaeological resources. T h e topics and perspectives pre
visitors a clearer u n d e r s t a n d i n g o f the Chaco Phenome
sented i n the i n t e r p r e t a t i o n o f the site acknowledge the
n o n , i n c l u d i n g the system o f roads. T h e Chaco Center
m u l t i p l i c i t y o f values attached t o the Park.

A t the site, i n t e r p r e t a t i o n and i n f o r m a t i o n are
Project i n c l u d e d extensive research and w o r k at Pueblo

A l t o , a great house o n t o p o f the n o r t h mesa. T h i s site was
available at the V i s i t o r Center ( t h r o u g h a small e x h i b i t i o n ,
selected, a m o n g o t h e r reasons, because m a n y o f the roads
interpretive videos, l i t e r a t u r e for sale, o r h u m a n contact
l i n k i n g Chaco C a n y o n w i t h sites t o the n o r t h converged
at the i n f o r m a t i o n desk) o r f r o m regularly offered t o u r s
there, and " i t was felt t h a t the excavated and restored site
w i t h Park rangers. I n t e r p r e t i v e panels and o t h e r i n f o r m a
c o u l d play an i m p o r t a n t p a r t i n the interpretative s t o r y
t i o n i n situ are l i m i t e d t o signs stating the sacredness o f
presented t o visitors b y the N a t i o n a l Park Service."
the place and t o s m a l l b o o k l e t s sold at some o f the m a j o r
Today o n l y a small percentage o f visitors have t h a t experi
sites. Some o f the i m p o r t a n t sites o f the Park t h a t are n o t
ence, since the mesa tops can o n l y be reached t h r o u g h a
90
o p e n t o visitors, like Fajada B u t t e , are m a d e accessible b y
difficult c l i m b u p the r o c k face, c h a l l e n g i n g even for able-
o t h e r meanspublications and audiovisual presentations
b o d i e d visitors.
i n the V i s i t o r Center.
L i k e all o t h e r parks i n the NPS system, C C N H P
T h e p o l i c y o f r e l y i n g o n h u m a n interpreters o n -
uses the I n t e r n e t t o p r o v i d e i n f o r m a t i o n t o the p u b l i c .
site is considered b y Park m a n a g e m e n t t o be w e l l suited t o
T h e Park's W e b site is less developed t h a n t h a t o f o t h e r
the t e l l i n g o f the v e r y c o m p l e x Chaco s t o r y T h e contact
parks i n the system, b u t i t contains practical as w e l l as his
o f visitors w i t h Park rangers a n d the absence o f signs o r
t o r i c a l i n f o r m a t i o n . Currently, interpretative p r i o r i t i e s
interpretative panels i n the r u i n s are believed t o con
include expanding educational o u t r e a c h o p p o r t u n i t i e s
t r i b u t e t o the q u a l i t y o f the experience, i n p a r t i c u l a r b y
a n d developing a Chaco-based c u r r i c u l u m . A l t h o u g h
enhancing the associative value o f the place. I n a d d i t i o n ,
i n f o r m a t i o n a b o u t the Park appears i n every NPS m a p o f
the presence o f rangers a r o u n d the site is believed t o dis
the system and is listed i n the N a t i o n a l Park Foundation's
courage v a n d a l i s m and i n a p p r o p r i a t e v i s i t o r behavior.
Passport to the Parks, recent Park m a n a g e m e n t has fol
H o w e v e r , the m a j o r i t y o f Chaco visitors i n t e r v i e w e d for
l o w e d a strategy o f d i s c o u r a g i n g p u b l i c i t y locally and
the 1 9 9 4 v i s i t o r survey s t r o n g l y preferred the f r e e d o m t o
nationally. T h i s has been v i e w e d as an i m p o r t a n t factor i n
visit the site i n d e p e n d e n t l y and t o rely o n brochures and
c o n t r o l l i n g the n u m b e r o f visitors, and thus the conserva
site panels for i n t e r p r e t a t i o n .
t i o n o f the resources and the q u a l i t y o f the visit. T h e
88
Despite the emphasis o n q u a l i t y o f experience,

certain circumstancessome o f t h e m outside the Park's
c o n t r o l and others created b y policyhave an i m p a c t o n
i n t e r p r e t a t i o n . I n general, the biggest l i m i t i n g factors are
i m p a c t o f these policies and strategies is discussed i n the

next section, o n the q u a l i t y o f the visitors' experience.
T h e i n t e r p r e t a t i o n policies o f the Park emphasize
the educational value o f the site. I n t e r p r e t a t i o n is seen as
the v e r y short t i m e that visitors are usually able t o spend
an o p p o r t u n i t y t o c o m m u n i c a t e the s t o r y o f Chaco t o the
i n the Park and the lack o f access t o some critical areas o f
public (actual visitors t o the site, p o t e n t i a l visitors and the
the Park. W i t h the nearest o v e r n i g h t a c c o m m o d a t i o n s
interested p u b l i c t h r o u g h w r i t t e n and o t h e r m e d i a , and
(except for the Park's c a m p g r o u n d ) located an h o u r and a
v i r t u a l visitors o n the W o r l d W i d e W e b ) . T h e topics for
h a l f away, travel t i m e t o a n d from the Park consumes at
i n t e r p r e t a t i o n , however, extend b e y o n d the factual infor
least three h o u r s o f m o s t visitors' dayand often as m u c h
m a t i o n o r c o m m u n i c a t i o n a b o u t the Chaco stories. A t
as five. A l m o s t h a l f the visitors spend b e t w e e n t w o a n d six
C C N H P , i n t e r p r e t a t i o n o p p o r t u n i t i e s are seized t o c o m
h o u r s v i s i t i n g the P a r k . T h e e x h i b i t i o n and the audiovi
m u n i c a t e m o s t o f the values o f the Park: scientific, educa
sual presentations at the V i s i t o r Center p r o v i d e a g o o d
t i o n a l , aesthetic, historic, n a t u r a l , and spiritual.
89
82
I m p a c t o f M a n a g e m e n t Policies o n the
Fajada Butte
Site's V a l u e s a n d Their P r e s e r v a t i o n
T h i s final section o f the case l o o k s at the i m p a c t o n the
site o f the policies identified earlier. I t also examines three
specific issuesthe closing o f Fajada B u t t e , access t o Casa
Rinconada, a n d the q u a l i t y o f visitors' experienceas
illustrations o f m a n a g e m e n t decisions.
T h e NPS provides guidance t o field personnel
t h r o u g h its strategic plans, m a n a g e m e n t policies, and
director s orders. Nevertheless, these directives leave con
siderable discretion t o the superintendents, so that t h e i r
actions and responses can be appropriate t o t h e i r parks'
specific conditions. I n a d d i t i o n t o these regulations, super
intendents m u s t take i n t o consideration the resources
b o t h h u m a n and financialavailable t o t h e m , and they
m u s t set priorities consistent w i t h the spirit o f the m i s s i o n
and mandate o f the park.
Management decisions have i m p a c t o n areas or
issues that are b e y o n d those o f i m m e d i a t e consideration.
A l t h o u g h values-based management seeks t o protect,
t o the largest extent possible, all the values o f a site, the
t o t a l p r o t e c t i o n o f all valuesor o f all aspects o f a given
valueis seldom possible. These are inevitable conse
quences o f decision m a k i n g , and they are the reason w h y i t
is extremely i m p o r t a n t t o understand h o w values are
affected b y specific decisions.
Fajada Butte is a p r o m i n e n t geological f o r m a

t i o n o n the eastern end o f the Park. Near its
top, o n the eastern cliff, there are three large,
shaped stone slabs positioned vertically against
t w o spiral petroglyphs. T h i s "Sun Dagger"
e n g r a v i n g was u n k n o w n t o the NPS u n t i l its
discovery by A n n a Sofaer and her colleagues
i n 1977. Sofaer i n t e r p r e t e d her t i m e d observa
1
tions o f the p o s i t i o n o f the sun and m o o n rela

tive t o the assemblage t o indicate that i t
m a r k e d solstices and equinoxes and o t h e r
astronomical events; some challenged her
claims. I n the late 1980s, Sofaer and her col
2
leagues reevaluated and reaffirmed their earlier

i n t e r p r e t a t i o n o f the Sun Dagger as a calendrical m a r k e r and also n o t e d the existence o f a
t o t a l o f t h i r t e e n astronomical glyphs at three
This section is organized according t o the type o f

policy b e i n g discussed. However, the interrelation a m o n g
different locations o n the b u t t e .
values and the m u l t i p l e effects o f decisions w i l l be clearly

evident, as the same issues are sometimes raised i n relation
t o several policies. T h e discussions raise positive and nega
tive effects o f decisions i n order t o illustrate the realities and
Despite the controversy over the significance

o f the Fajada Butte petroglyphs and other
assemblages t o Chaco's prehistoric inhabitants,
complexity o f management.
IMPACT OF PRESERVATION AND
RESEARCH POLICIES
As has been established, the legislative purpose o f C C N H P
gives undisputed p r i o r i t y t o the preservation o f the c u l t u r a l
features o f the Parkmore specifically, t o the Anasazi
archaeological remains. B u t as also seen earlier, the values
attributed t o these resources are varied and evolving. Since
m o s t o f the preservation policies o f C C N H P are m e a n t t o
protectphysicallythe archaeological materials and
structures, their i m p a c t o n other values can vary.
T h e conservation p o l i c y o f m i n i m a l i n t e r v e n t i o n
o n the f a b r i c m a i n l y reburial and stabilizationmeets
Sofaer's findings i m m e d i a t e l y d r e w the interest

o f c o n t e m p o r a r y Native Americans as w e l l as
n o n - N a t i v e Americans. This interest i n t u r n
increased visitation t o the butte. W h e n Park
managers became concerned about the site's
stability, the superintendent p r o h i b i t e d access
to the butte i n 1982 except for visits a u t h o r i z e d
by p e r m i t .
w i t h the approval o f m o s t Native A m e r i c a n groups. F r o m

their perspective, this conservation approach l i m i t s the
[continued on page 8y]
83
T h e 1985 C C N H P General M a n a g e m e n t Plan
l i m i t e d access accelerates n o r m a l e r o s i o n
specifies that "use o f Fajada B u t t e w i l l be b y
processes. T h e study also r e c o m m e n d e d stabi
p e r m i t o n l y and w i l l be restricted t o N a t i v e
l i z a t i o n o f the site a n d reevaluation o f the site's
A m e r i c a n s u s i n g the site for r e l i g i o u s purposes
use policy. I n 1 9 9 0 access t o the site was closed
(requests for access t o be s u p p o r t e d b y t r i b a l
to everyone, i n c l u d i n g researchers a n d tradi
leaders, i n c l u d i n g religious leaders);
t i o n a l users, p e n d i n g c o m p l e t i o n o f a manage
researchers w i t h antiquities p e r m i t s o r w i t h
m e n t p l a n for the area a n d stabilization o f the
research proposals approved b y the superin
Sun Dagger solstice m a r k e r . Since t h e n , the
tendent, after c o n s u l t a t i o n w i t h the D i v i s i o n o f
o n l y access a l l o w e d has been b y NPS e m p l o y
A n t h r o p o l o g y , Southwest C u l t u r a l Resources
ees t o m o n i t o r conditions. A 1 9 9 4 e t h n o g r a p h i c
Center, a n d cleared o n l y w h e n the p r o p o s e d
s t u d y questioned w h e t h e r the site s h o u l d be
research is nondestructive; and, N a t i o n a l Park
closed t o all N a t i v e A m e r i c a n s o r w h e t h e r i t
Service personnel o n well-justified official busi
s h o u l d be o p e n t o the c e r e m o n i a l activities o f
ness approved b y the

superintendent." T h e
4
d o c u m e n t also recog
nizes p o t e n t i a l safety
hazards t o visitors i n its
reasons for l i m i t i n g
v i s i t o r access.
I n 1989 Park staff discov
ered t h a t even these
l i m i t e d activities w e r e
causing damage. O n the
s u m m e r solstice o f t h a t
year, Park staff became
aware that t w o o f the three vertical slabs h a d
Sun Dagger. As a geological formation, Fajada Butte has always

been a striking feature o f Chaco Canyon. I t was not u n t i l 1977,
however, that the existence o f a Native American marker o n top o f
shifted. T h i s m o v e m e n t prevented the petrog l y p h spirals f r o m accurately m a r k i n g astro

n o m i c a l events. A n NPS study t o evaluate the
the butte became k n o w n . Today several Native American groups

claim the Sun Dagger, as w e l l as other areas o n and around the
butte, as culturally significant. A slight shift i n the position o f the
stones o f the Sun Dagger has skewed its alignment w i t h astronomi
cal events. Currently, access to the butte is l i m i t e d to m o n i t o r i n g
causes and extent o f the damage c o n c l u d e d

that the site is e x t r e m e l y fragile a n d t h a t even
84
visits by NPS personnel. Photo: Courtesy National Park Service,

Chaco Culture N H P Collection Archives.
some approved m e m b e r s o f tribes d e t e r m i n e d
example o f historic ceremonial use o f the b u t t e
t o be t r a d i t i o n a l l y associated w i t h the site.
p r i o r t o 1977.
I m p o r t a n t questions i n a l l o w i n g privileged use

o f Fajada B u t t e b y N a t i v e A m e r i c a n s w o u l d be
w h e t h e r these g r o u p s t r a d i t i o n a l l y used the
b u t t e for c e r e m o n i a l and o t h e r purposes, o r
w h e t h e r use began after the 1977 "discovery" o f
the Sun Dagger. Those questions are difficult
t o answer, since Native A m e r i c a n s have tended
t o keep i n f o r m a t i o n about t h e i r sacred places
and ceremonies secret.
O t h e r questions raised b y the 1994 study are

w h e t h e r all o f Fajada B u t t e s h o u l d be o f f l i m i t s
t o visitors, o r w h e t h e r some parts s h o u l d be
accessible t o some groups. Officially, the Park
has o n l y closed access t o the u p p e r p a r t o f the
b u t t e , as indicated b y the Federal Register notice
o f closure, w h i c h specifies t h a t the b u t t e w i l l
be closed " f r o m the t o p o f the talus slope, i.e.,
c o n t o u r i n t e r v a l 6400," and the crevice o n the

9
M a n y o f the representatives i n t e r v i e w e d for the
s o u t h face, p r o v i d i n g access t o the t o p has been
1994 study offered interpretations, w h i c h some
b l o c k e d w i t h a m e t a l grate. However, visitors
times varied, o f Anasazi use o f prehistoric cul
are t u r n e d away w e l l before they reach this
t u r a l features, as w e l l as i n f o r m a t i o n about the
p o i n t ; signs o n the access p a t h and at the base
vegetation and minerals o n and a r o u n d the
o f the b u t t e indicate t h a t the site is o f f l i m i t s .
butte, based u p o n k n o w l e d g e o f their o w n cul
T h i s s i t u a t i o n gave rise t o the request that as
t u r a l systems. However, an ethnohistorical liter
p a r t o f the 1994 study, Native Americans be
ature review f o u n d n o evidence o f historical use
asked t o define the boundaries o f Fajada B u t t e
o f any Chaco C a n y o n resource b y Rio Grande
t o see h o w t h a t b o u n d a r y compares w i t h the
Pueblos p r i o r t o the mid-1980s, a l t h o u g h some
Park administration's p e r c e p t i o n o f w h a t is or
o f these tribes have visited the Park for ceremo
s h o u l d be closed.
nial purposes since then. N o r have contempo

r a r y Z u n i ceremonial o r other uses at Fajada
Butte been identified. T h e research also indi
cated that the Navajo have i m p o r t a n t historical
and traditional associations w i t h Fajada Butte
(including h a v i n g a story i n their o r a l traditions
explaining the o r i g i n o f the butte), and revealed
a 1974 account o f the b u t t e as a place w h e r e
10
NPS's c o n c e r n started w i t h damage t o the Sun

Dagger. T h e r e are o t h e r c u l t u r a l features that
are c u r r e n t l y w i t h i n the inaccessible areas. T h e
1994 study, i n p a r t t h r o u g h i n t e r v i e w s w i t h
Native A m e r i c a n residents o f the area, identi
fied the f o l l o w i n g c u l t u r a l c o m p o n e n t s i m p o r
t a n t t o Native A m e r i c a n s today, listed i n the
order they appear w h e n the b u t t e is ascended:
11
Navajo gathered plants. I n general, t h o u g h , this

one instance from the Navajo is the o n l y precise
85
plants used b y N a t i v e A m e r i c a n s
T h i s case raises the difficult q u e s t i o n o f dealing
historical f a m i l y l i v i n g quarters, b o t h n o r t h
w i t h social values a t t r i b u t e d t o heritage sites
a n d s o u t h o f Fajada B u t t e
b y t r a d i t i o n a l c u l t u r e groups. Shouldor,
p e t r o g l y p h panel away from the base o f
m o r e t o the p o i n t , couldNPS g r a n t special
Fajada B u t t e
access t o N a t i v e A m e r i c a n s t o Fajada B u t t e
historic h o g a n o n flank o f Fajada B u t t e
w h i l e e x c l u d i n g o t h e r groups, such as N e w A g e
minerals
adherents? T h e issues raised i n r e l a t i o n t o the
calendars and symbols near roofs o f astronomers'
decisions o n Casa Rinconada indicated t h a t
rooms
NPS considers t h a t any special-access arrange
r o o m s w h e r e astronomers are believed t o
ments t h a t exclude o t h e r g r o u p s w o u l d be n o t
have lived
o n l y against p o l i c y b u t also u n c o n s t i t u t i o n a l .
Sun Dagger
I f this is a p o s i t i o n that is accepted w i t h o u t fur
eagle's nest
t h e r analysis, i t puts i n t o q u e s t i o n w h e t h e r the
c o n t e m p o r a r y c e r e m o n i a l area
NPS can respect and p r o t e c t the values o f all
prayer shrine
stakeholders o f a site.
I t s h o u l d be n o t e d t h a t the value o f all o f these

features t o N a t i v e A m e r i c a n s contrasts sharply
Notes
w i t h the perceptions h e l d b y n o n - N a t i v e
A m e r i c a n s c o n c e r n i n g Fajada B u t t e , w h i c h
1.
essentially define its significance i n t e r m s o f

the Sun Dagger.
For an in-depth discussion o f the significance o f Fajada

Butte, see Stoffle et al. 1994.
2.
Sofaer et al. 1982a.
3.
Ibid.
4.
NPS
1985,541990b.
12
I n the Park's e x a m i n a t i o n o f h o w t o proceed i n
5.
NPS
m a n a g i n g Fajada Butte, i t requested i n p u t from
6.
Stoffle et al. 1994.
Native Americans t o g a i n t h e i r views o n the
7.
I t is c o m m o n for only certain members o f clans or tribes to

possess knowledge concerning sacred sites and ceremonies.
subject. Stoffle and colleagues r e p o r t that "most
Secrecy w i t h respect to non-Native Americans has also

arisen because o f a history o f non-Native Americans inten
I n d i a n representatives w o u l d define all o f Fajada

Butte o f f l i m i t s t o all n o n - I n d i a n activity."
13
tionally desecrating sacred sites.

8.
Wozniak, Brugge, and Lange 1993,18-21; Stoffle et al. 1994,

26-32.
T h e y r e c o m m e n d e d boundaries t o p r o t e c t the
NPS 1999.
areas o f value t o t h e m , w h i c h coincide w i t h the
10.
Stoffle et al. 1994,37.
measures taken b y Park management. T h e
11.
Ibid., 38-39.
12.
Ibid., 38.
13.
Ibid., 48.
i r o n y is that the area defined b y Native A m e r i

cans has become o f f l i m i t s t o t h e m t o o .
86
9.
efforts t o preserve the ancestral heritage that some believe
t h a t c o u l d be used i n erosion c o n t r o l strategies t o p r o t e c t
s h o u l d be left t o f o l l o w a n a t u r a l course o f decay. Some
the archaeological r e m a i n s .
archaeologists also s u p p o r t the use o f these conservation

methods, w h i c h they see as p r o t e c t i n g the i n f o r m a t i o n
92
I n other instances, strict enforcement o f the regu

lations against r e m o v i n g any resourcescultural o r
value o f the archaeological record. T h e c u r r e n t p o l i c y
n a t u r a l f r o m the parks impinges o n Native A m e r i c a n
t h a t allows excavation o n l y o n v e r y rare occasions also
practices o f gathering plants and other materials for medic
reflects the approach o f m i n i m a l disturbance o f the
inal and r i t u a l purposes and creates an interesting conflict
archaeological remains. N a t i v e A m e r i c a n g r o u p s s u p p o r t
b e t w e e n values. T h e i m p o r t a n c e o f the Park's resources for
l i m i t i n g excavations, since this stance concords w i t h cul
these purposes is heightened b y the depletion o f m a n y o f
t u r a l beliefs t h a t these sites s h o u l d r e m a i n u n d i s t u r b e d .
these species from nearby lands b y g r a z i n g and other uses.
T h e Society for A m e r i c a n A r c h a e o l o g y also takes the posi
93
T h e 1985 General M a n a g e m e n t P l a n allows n o n

94
t i o n that " m o d e r n archaeology, i n fact, frequently requires
destructive uses o f the site and establishes that p e r m i s s i o n
n o excavation b u t depends u p o n the study o f existing col
is r e q u i r e d for anyone, i n c l u d i n g Native Americans, t o
lections and i n f o r m a t i o n r e p o r t e d i n scientific publica
gather materials. D u r i n g the p e r i o d o f consultation o f the
tions. Instead o f d i g g i n g , archaeologists b r i n g n e w tech
plan, the Navajo N a t i o n objected t o these provisions as "an
nologies and m e t h o d s t o bear u p o n materials excavated
i n t r u s i o n o n the privacy and independence o f Navajo cere
earlier." I n d i v i d u a l archaeologists, however, are m o r e
m o n i a l life," b u t the p e r m i s s i o n r e q u i r e m e n t stood
91
9 5
reluctant t o accept this policy, as evidenced b y the o n
C C N H P strictly follows the NPS p o l i c y that collecting
g o i n g requests for permissions t o excavate.
materials on-site is n o t allowed; unofficially, staff recognize
T h e excavation p o l i c y protects the p o t e n t i a l for

i n f o r m a t i o n v a l u e d b y academics and the i n t e g r i t y v a l u e d
that some collecting is likely t o be t a k i n g place. I n this par

ticular situation, the conflict goes b e y o n d an issue o f differ
by Native Americans. I t reserves the resources for f u t u r e
ent values. T h e r e is a c o n t r a d i c t i o n b e t w e e n stipulations i n
investigation, l i m i t i n g the i n f o r m a t i o n value t o t h a t w h i c h
the Native A m e r i c a n Relations Policy r e q u i r i n g respect o f
can be realized from nondestructive research activities.
religious ceremonies and traditions; the General Manage
T h e emphasis o n the s u r v i v a l o f the physical remains
m e n t Plan; and the American Indian Religious Freedom Act
addresses the associative value o f the Park b y p r o t e c t i n g
o n one side; and, o n the other side, the p r o h i b i t i o n s o f
the i n t e g r i t y and a u t h e n t i c i t y o f the remains.
r e m o v i n g a n y t h i n g from n a t i o n a l parks f o u n d i n federal
T h e conservation policies o f C C N H P also p r o

tect m a n y o t h e r values a t t r i b u t e d t o the site. T h e protec
r e g u l a t i o n s and the Archaeological Resources Protection Act

96
of 1979. T h e NPS M a n a g e m e n t Policies 2001 recognize the
t i o n that has b e e n g i v e n t o p l a n t a n d a n i m a l c o m m u n i t i e s
conflict and indicate t h a t "these regulations are u n d e r
i n the Park has created a sanctuary w i t h u n u s u a l o r rare
review, and NPS p o l i c y is e v o l v i n g i n this area."
conditions o f interest t o the scholarly c o m m u n i t y and t o

Native A m e r i c a n groups. T h e s t a t u t o r y and o p e r a t i o n a l
constraints o n unnecessary disturbance o f the e n v i r o n
m e n t s u c h as the Park p o l i c y o f c o n t r o l over g r a z i n g and
m i n e r a l e x p l o r a t i o n c a n increase the value g i v e n t o the
resources' i n f o r m a t i o n p o t e n t i a l , w h i l e at the same t i m e
i m p i n g i n g o n o t h e r values, such as the spiritual and cul
t u r a l values o f Native Americans, as w e l l as the e c o n o m i c
value t o those w h o w o u l d prefer t o e x p l o i t Park lands for
alternative uses.
T h e r e are a n u m b e r o f laws and NPS directives
for the p r o t e c t i o n and m a n a g e m e n t o f n a t u r a l resources
that c o u l d be said t o w o r k against some o f the c u l t u r a l
values o f C C N H P . For example, the executive order t h a t
restricts the i n t r o d u c t i o n o f "exotic" (nonnative) species
i n t o n a t u r a l ecosystems i n federal lands, i f i n t e r p r e t e d lit
erally o r enforced strictly, w i l l l i m i t the options o f plants
97
CULTURAL LANDSCAPES
NPS has recently p r o p o s e d a study o f the c u l t u r a l land
scape o f C C N H P . T h e NPS defines a c u l t u r a l landscape as
"a geographic area, i n c l u d i n g b o t h c u l t u r a l and n a t u r a l
resources and the w i l d l i f e o r domestic animals therein,
associated w i t h a historic event, activity, o r person o r
e x h i b i t i n g o t h e r c u l t u r a l o r aesthetic values."
98
Early studies o f the Park's resources tended t o

v i e w t h e m as a static g r o u p i n g o f ruins. H o w e v e r , i n the
1970s, the Chaco Center Project b r o u g h t a greater under
standing o f o t h e r prehistoric landscape features, such as
roads and w a t e r - c o n t r o l devices. More-recent studies have
considered the a s t r o n o m i c a l alignments o f prehistoric
structures and n a t u r a l features. A n e w c u l t u r a l landscape
study c o u l d be an i m p o r t a n t effort, since there is evidence
o f a sophisticated u n d e r s t a n d i n g o f e n v i r o n m e n t a l
dynamics and a s t r o n o m i c a l events t h a t demonstrates a
87
s t r o n g c o n n e c t i o n b e t w e e n the ancient inhabitants and
Casa IR i n c o n a d a
t h e i r n a t u r a l e n v i r o n m e n t . Chaco scholars have reached

these conclusions based u p o n a careful e x a m i n a t i o n o f the
physical remains o f Anasazi h a b i t a t i o n o f the r e g i o n ,
w h i c h i n c l u d e evidence o f lifeways adapted t o p r o v i d e
f o o d and w a t e r i n a n arid e n v i r o n m e n t as w e l l as struc
tures, roads, and a s t r o n o m i c a l markers. T h e i r conclusions
have also been s u p p o r t e d b y the p r o m i n e n c e o f landscape
features i n the o r a l t r a d i t i o n s o f the descendants o f the
Puebloan c u l t u r e w h o live i n the r e g i o n today.
T h e archaeological and e n v i r o n m e n t a l elements
o f the Park are already the focus o f preservation, research,
and i n t e r p r e t a t i o n . Seeing a place from a m o r e - t r a d i t i o n a l ,
reifying perspective that singles o u t easily definable objects
(artifacts, structures, sites, etc.), as has o c c u r r e d t o date at
Chaco, l i m i t s the a t t r i b u t i o n o f valueand, therefore,
explicit p r o t e c t i o n and m o n i t o r i n g t o those types o f
objects." A c u l t u r a l landscape perspective w i l l l o o k at
Casa Rinconada is the largest k n o w n great kiva

i n the Park, and i t is a m o n g the largest i n the
Chacoan sphere o f influence. Excavated i n the
1930s, i t n o w stands o p e n t o the elements, w i t h
its circular walls i n relatively g o o d c o n d i t i o n .
Because o f its e n o r m o u s size, its impressive
e n g i n e e r i n g and p o s i t i o n , its interesting inte
r i o r details, and its association w i t h ancient reli
gious ceremonies, it has always attracted the
a t t e n t i o n o f visitors. U n t i l recently i t was the
o n l y kiva w h e r e entrance was p e r m i t t e d .
these elements together w i t h n a t u r a l features, d o c u m e n t

i n g and u n d e r s t a n d i n g the relationship b e t w e e n t h e m and
i d e n t i f y i n g o t h e r significant geographical elements. T h e
results o f c u l t u r a l landscape studies w i l l be i m p o r t a n t for
m a n a g e m e n t purposes: they w i l l b r i n g a different percep
t i o n o f w h a t is valuable i n C C N H P and a l l o w the develop
m e n t o f a p r e s e r v a t i o n p o l i c y i n this area.
IMPACT OF R E S T R I C T I N G ACCESS
T h e policies o f C C N H P i n t e n d e d t o restrict accessby visi
tors, researchers, o r stakeholdersare v e r y successful i n
preserving the resources and the i n f o r m a t i o n they contain.
However, shielding the resources from physical damage
In 1987, a N e w Age eventthe " H a r m o n i c

Convergence"was planned and was expected
to attract about five thousand people t o the
Park for t w o days for ceremonies, dancing,
chanting, bonfires, and m e d i t a t i o n i n and
a r o u n d some o f the m a j o r ruins. Casa Rin
conada was t o be an i m p o r t a n t venue for
the festivities.
does n o t m e a n that all the values a t t r i b u t e d t o those

resources are b e i n g protected. L i m i t a t i o n s o f access can
have a negative i m p a c t o n some values; i n this case, b y
restricting the n u m b e r o f visitors t o the site, the benefits
o f the site's associative value are enjoyed b y fewer people.
T h e limitations o f access t o m a n y areas o f the Park have
reduced the n u m b e r o f places and vistas that visitors can
see and the ways i n w h i c h they can experience the values
o f the Park. However, the policies increase the q u a l i t y o f
the visit b y fostering a quiet and reflective atmosphere.
These restrictions, c o m b i n e d w i t h l i m i t e d i n t e r p r e t a t i o n
a r o u n d the site, do n o t facilitate the c o m m u n i c a t i o n o f the
T h e Park's c u l t u r a l resource specialists feared

that irreparable damage w o u l d be done t o the
structure and t o the archaeological i n t e g r i t y
o f the floors and o t h e r features, g i v e n the
n u m b e r s o f people and the kinds o f activities
planned. However, Park m a n a g e m e n t felt that
it needed t o allow some access b y this g r o u p t o
the k i v a . Refusing access t o the petitioners
1
i m p o r t a n c e and extension o f Chaco C u l t u r e b e y o n d the

lands o f the Park. A visitor w h o stays o n the canyon floor
m i g h t have resulted i n legal action alleging dis
misses the views o f the Chaco roads, views o f the m o u n
c r i m i n a t i o n . T h e superintendent and his staff
tains sacred t o Native Americans, and a panoramic v i e w o f

the great and small houses seen from above.
88
faced the c o n f l i c t i n g values o f the mandate
o n the one h a n d t o p r o t e c t the i n t e g r i t y o f the

ruins, and o n the o t h e r h a n d t o u p h o l d the
r i g h t o f access t o the site, religious freedom,
and the m a n d a t e t o p r o v i d e for e n j o y m e n t b y
the public. I n k e e p i n g w i t h the available guide
lines, the staff put together a m i t i g a t i o n p l a n
establishing b e h a v i o r a l and geographical
boundaries for all p r o p o s e d activities for this
Casa Rinconada viewed from above. For several years during
event and r e c o m m e n d e d preventive measures

to p r o t e c t Casa Rinconada. These i n c l u d e d lay
ing d o w n a protective floor over the exposed
archaeological levels. C o n t i n g e n c y plans for
the time that Casa Rinconadathe largest kiva i n the Park

was open to visitors, a shallow layer o f dirt protected the floor
features. Recently, the features were uncovered after access to
the interior was prohibited. Both Native American sensitivities
and conservation concerns influenced this decision. Photo:
Guillermo Aldana
p r o b l e m s w e r e prepared.
T h e event t o o k place, a t t r a c t i n g o n l y a b o u t h a l f
h a d a l e g i t i m a t e r i g h t t o use the k i v a , and they
o f the anticipated c r o w d , and the i m p a c t o n the
also h a d concerns about the i m p a c t that inap
physical resources was negligible. After the
p r o p r i a t e access w o u l d have o n visitors.
event, however, staff started t o f i n d "offerings"
I n 1996, h e e d i n g the advice o f the c o m m i t t e e
t h a t w e r e b e i n g left i n some areas o f the Park,
and c o n c e r n e d w i t h visitor-induced damage
p r i n c i p a l l y i n Casa Rinconada. I n 1991 cre
and the n e w practices, C C N H P proposed the
m a t e d h u m a n remains started t o be left i n the
closure o f Casa Rinconada and c o n d u c t e d the
kiva, and a l t h o u g h the scattering o f ashes f r o m
r e q u i r e d e n v i r o n m e n t a l i m p a c t study, fol
cremations m a y be p e r m i t t e d b y Park superin
l o w e d b y a p e r i o d o f p u b l i c consultation. T h e
tendents, n o p e r m i t s h a d been g r a n t e d i n
study expressed p a r t i c u l a r c o n c e r n over the
these cases. Perhaps m o r e i m p o r t a n t , b o t h the
practice o f leaving ashes, since t h e i r r e m o v a l
offerings and the deposit o f h u m a n remains
r e q u i r e d the scraping o f the surface w h e r e
v i o l a t e d the sensitivities o f N a t i v e A m e r i c a n
they w e r e deposited. A l t h o u g h the r e m o v a l o f
g r o u p s affiliated w i t h the Park. M e m b e r s o f
the ashes left o n the k i v a floor disturbed o n l y
the A m e r i c a n I n d i a n C o n s u l t a t i o n C o m m i t t e e
the layer o f fill that h a d b e e n added i n 1991 as a
r e c o m m e n d e d t o Park staff t h a t access t o the
protective buffer, i t was felt that this fill s h o u l d
k i v a be f o r b i d d e n . A c c o r d i n g t o Park staff,
be r e m o v e d since i t obscured the o r i g i n a l floor
there was disagreement a m o n g the t r i b a l repre
and its features. T h e d o c u m e n t s m a k e n o m e n
sentatives as t o w h i c h N a t i v e A m e r i c a n g r o u p s
t i o n o f N a t i v e A m e r i c a n concerns.
89
T h i s decision is consistent w i t h the p r i o r i t y

g i v e n b y Park m a n a g e m e n t t o the c o n s e r v a t i o n
o f the archaeological remains. C o n t i n u e d
access b y visitors and the leaving o f offerings
and the deposit o f h u m a n ashes w e r e seen t o
be d e t r i m e n t a l m a i n l y t o the physical conserva
t i o n o f the site. A t the same t i m e , the o b s c u r i n g
o f flooring elements was seen t o have a nega
Gate blocking the entrance to Casa Rinconada. Today access to
the interior o f the kiva is blocked by these barriers. From the r i m
above, visitors can see the kiva, including the floor features, which
were obscured i n the past. The uncovering o f all the architectural
features can contribute to the understanding o f the visitor. H o w
ever, the ban o n access required for the protection o f the ruins
prevents visitors from experiencing the space o f the kiva. Photo:
tive i m p a c t o n the educational value o f the

place, n o t o n its spiritual values. Since
backfilling and r e b u r i a l are c o n s e r v a t i o n strate
gies w i d e l y used i n the Park, one can assume
Marta de la Torre
that the value o f m a i n t a i n i n g the v i s i b i l i t y o f

S h o r t l y after the p u b l i c consultations, i t was
f l o o r elementseven i f from a distancewas
a n n o u n c e d that Casa Rinconada w o u l d be
seen as critical i n this case.
closed t o a l l . A t present, visitors can v i e w the
T h e values favored b y the decision t o close
i n t e r i o r f r o m the d o o r w a y s o r the r i m above,
Casa Rinconada w e r e the scientific i m p o r t a n c e
and access is possible o n l y w i t h special p e r m i s
o f the sitethe u n i q u e , fragile, and unrestor-
sion o f the superintendent. Some Native A m e r
able qualities o f its o r i g i n a l features, a n d the
icans perceive the cause o f the closure t o be the
p o t e n t i a l for y i e l d i n g f u r t h e r i n f o r m a t i o n i f
acts o f groups w h o h a d n o c u l t u r a l c l a i m t o the
these qualities are n o t disturbed. Affected b y
place. I n t h e i r view, the actions w e r e v i o l a t i n g
the decision w e r e the spiritual values h e l d b y
the sacredness o f "their" place, and o n l y these
Native A m e r i c a n s and N e w Agers and the
n e w rituals s h o u l d have been banned. T h e
benefits t o the general p u b l i c from e n t e r i n g the
official reason g i v e n for closing the k i v a was
k i v a and experiencing the i n t e r i o r space.
the p r o t e c t i o n o f the physical resource. A n y

6
T h e conflict b r o u g h t a b o u t b y the i n t r o d u c t i o n
decision t o a l l o w use b y N a t i v e A m e r i c a n s b u t
o f N e w A g e practices i n a heritage place was
n o t b y o t h e r g r o u p s w o u l d have v i o l a t e d the
n o t an issue explored d u r i n g the decision m a k
establishment clause o f the U.S. C o n s t i t u t i o n ,
w h i c h pertains t o the separation o f r e l i g i o n and
the state.
90
C H A C O C U L T U R E N A T I O N A L H I S T O R I C A L PARK
i n g process. H o w e v e r , the emergence o f stake

h o l d e r g r o u p s ascribing n e w values o r appro-
p r i a t i n g existing ones a n d the need t o deter

m i n e l e g i t i m a c y for t h e i r claims are difficult
issues t h a t m a n y heritage managers c o n f r o n t .
I n this p a r t i c u l a r case, d e n y i n g access t o a n e w
spiritual g r o u p w o u l d have b e e n seen as reli
g i o u s d i s c r i m i n a t i o n a n d thus u n c o n s t i t u
t i o n a l . T h e r e s o l u t i o n o f the conflict d i d n o t
have t o be reached t h r o u g h negotiations,
since NPS m a n a g e m e n t was able t o f i n d a
" c o n s e r v a t i o n " j u s t i f i c a t i o n for the closure
a n d thus sidestep the difficult matters o f
d e t e r m i n i n g the l e g i t i m a c y o f n e w stake
h o l d e r g r o u p s a n d p r i o r i t i z i n g values.
Preservation reasons have b e e n g i v e n for closing

some i m p o r t a n t sites i n the Park t o visitors. Fajada B u t t e
a n d Casa Rinconada, for example, h o l d p a r t i c u l a r
significance for certain t r i b a l m e m b e r s . W h i l e k e e p i n g
visitors away f r o m these sites can p r o t e c t N a t i v e A m e r i
can spiritual values, the no-access r u l e , w h i c h also applies
t o those w h o h o l d the place sacred, prevents t h e m
from
e n j o y i n g the benefits o f this value.

IMPACT OF LIMITING T H E NUMBER
OF VISITORS
T h e p o l i c y o f r e s t r i c t i n g contact w i t h the resources is
based o n t h e Park's e s t i m a t i o n t h a t this is the best w a y t o
p r o t e c t the sites g i v e n the available resources. T h i s p o l i c y
requires a strategy t o m a i n t a i n a l o w n u m b e r o f visitors,
b u t the o p t i m a l n u m b e r is n o t k n o w n . Park staff recog
nize t h a t t h e y w o u l d have difficulty establishing the m a x i
m u m n u m b e r o f visitors the Park c o u l d sustain at any
g i v e n t i m e f r o m the p o i n t o f v i e w o f c o n s e r v a t i o n a n d
safety; nevertheless, t h e y feel t h a t peak v i s i t a t i o n days i n
the s u m m e r m o n t h s c o m e close t o m a x i m u m c a r r y i n g
Notes
capacity o f the site. A s m a l l n u m b e r o f visitors is seen as

b e i n g preferable b o t h for the sake o f the physical c o n d i
t i o n o f the r u i n s and the landscape and for the sake o f the
1.
2.
3.
The Cultural Resource Management Guidelines (NPS 28)

(NPS 1994) was the primary reference for staff as they con
sidered the request for this use o f the site. NPS 28, which
was supplanted in 1998 by Director s Order No. 28 and the
updated Cultural Resource Management Guidelines (NPS
1997a), contains a procedure to be followed whenever any
intervention is contemplated.
Although depositing materials on-site is prohibited by fed
eral and NPS regulations, offerings found in the Park are
gathered by staff and curated according to the practices
established by the NPS for items left at the Vietnam Veter
ans Memorial in Washington, D.C.
In accordance w i t h NPS general regulations and applicable
state laws.
4.
NPS
5.
NPS 1997b.
6.
Loe
1996.
1996, B-04.
q u a l i t y o f the experience.
G e o g r a p h i c a l i s o l a t i o n and few facilities and serv
ices inside the Park s u p p o r t efforts t o l i m i t the n u m b e r o f
visitors. T h e " p r i m i t i v e " nature o f the site is seen as posi
tive b y m a n y visitors, w h o consider t h e i r stay i n the Park
as an o p p o r t u n i t y t o get b a c k t o nature and away f r o m the
annoyances o f c i v i l i z a t i o n .
100
T h e lack o f services and
facilities, however, l i m i t s the a m o u n t o f t i m e t h a t those

w h o visit can spend. S h o r t visits o b v i o u s l y present a chal
lenge t o the staff i n p r o v i d i n g a m e a n i n g f u l i n t e r p r e t a t i o n
o f such a c o m p l e x site.
IMPACT OF STAKEHOLDER RELATIONSHIPS
C C N H P has a considerable n u m b e r o f stakeholders at the
local, n a t i o n a l , a n d i n t e r n a t i o n a l levels. T h e values t h a t
t h e y ascribe t o the Park vary, a n d Park staff recognize the
balance o f p o w e r t h a t exists a m o n g stakeholders as w e l l
as the p o t e n t i a l for serious conflict. T h e fact t h a t C C N H P
is a d m i n i s t e r e d b y a federal agency gives the strongest
w e i g h t t o the voice o f the NPS a n d its cabinet-level par
ent, the D e p a r t m e n t o f the Interior. W h i l e these a u t h o r i
ties are the voice o f the c i t i z e n r y o n one level, t h e i r
specific i n s t i t u t i o n a l r e q u i r e m e n t s a n d p r i o r i t i e s can
sometimes relegate the interests o f o t h e r stakeholders t o
lesser positions. C o m p l i a n c e w i t h h i g h e r authorities
obliges the NPS t o certain p r i o r i t i e s and actions t h a t favor
U N D E R S T A N D I N G A N D P R O T E C T I N G T H EVALUES
91
the values that u n d e r l i e these mandates over w h a t m i g h t

be i m p o r t a n t t o the local o r nonfederal interests.
O v e r the years, heritage professionalsarchaeol
u n d e r n o r m a l circumstances) c o u l d be stirred i n t o action i f

i t saw a threat t o the values that placed the site o n the
W o r l d Heritage List. A n o t h e r example o f a stakeholder
ogists i n p a r t i c u l a r h e l d a privileged p o s i t i o n a m o n g
g r o u p , at a more-local level, is the neighbors o f the Park.
stakeholder groups. Today, N a t i v e A m e r i c a n s m i g h t
Park staff r e p o r t that this g r o u p , i n general, is n o t v e r y
have m o v e d t o that p o s i t i o n , and t h e i r stake i n the site is
involved o r interested i n Park-related issues. However, i f
b r o a d l y recognized i n the m a n a g e m e n t o f the Park.
the authorities decided t o pave the r o a d leading i n t o the
A l t h o u g h concerned o n l y w i t h the r e p a t r i a t i o n o f objects
Park, some m e m b e r s w o u l d side w i t h the Park against the
and h u m a n remains, NAGPRA has i n d i r e c t l y reinforced the
p a v i n g project, b u t others w o u l d c o m e o u t i n favor o f it.
i m p o r t a n c e o f these stakeholders and t h e i r values. T h e
T h e difference i n t h e i r positions w o u l d p r o b a b l y be based
p a r t i c i p a t i o n o f Navajo, Z u n i , and H o p i tribes and Pueblo
u p o n w h e t h e r they t h o u g h t a paved r o a d created a danger
groups i n the Park's A m e r i c a n I n d i a n C o n s u l t a t i o n C o m
to t h e i r herds from speeding vehicles, o r w h e t h e r they
m i t t e e has g i v e n t h e m an i m p o r t a n t advisory role i n the
w o u l d like t o facilitate access t o their homes.
m a n a g e m e n t o f the site. T h e superintendent brings t o this

g r o u p m o s t issues t h a t i m p a c t the conservation and use o f
Park m a n a g e m e n t recognizes that the p o s i t i o n

o f a stakeholder g r o u p w i l l depend u p o n the m a t t e r b e i n g
the sitefostering a c o n s u l t a t i o n t h a t goes w e l l b e y o n d
considered. T h e r e are n o t m a n y stakeholder g r o u p s w h o
that m a n d a t e d b y NAGPRA.
W h i l e Park m a n a g e m e n t rec
w o u l d be o n the side o f the Park o n all issues. T h u s , the
ognizes t h a t officially this g r o u p has o n l y a "consultative"
Park has n o u n c o n d i t i o n a l allies, and the i m p o r t a n c e o f
role, i t admits that o p i n i o n s expressed b y this g r o u p are
m a i n t a i n i n g g o o d relations and o p e n lines o f c o m m u n i c a
g i v e n v e r y serious consideration. T h e m o s t recent
t i o n w i t h all stakeholders is critical.
Resource M a n a g e m e n t Plan d r a f t
101
acknowledges the
shift i n the stakeholders' p o w e r m a p : "over the past t e n

years, the Park's A m e r i c a n I n d i a n C o n s u l t a t i o n C o m m i t
tee has g r a d u a l l y t a k e n the lead r o l e i n shaping Park p o l
icy a n d practice. T h i s has created a certain tension
b e t w e e n the N a t i v e A m e r i c a n and archaeological con
stituencies. Resolving this tension is the c u r r e n t challenge
for the [ C u l t u r a l Resource] d i v i s i o n / '
102
T h e o p i n i o n s o f the m e m b e r s o f this consultative

c o m m i t t e e are n o t always u n a n i m o u s , n o r are they always
i n agreement w i t h those o f Park m a n a g e m e n t . T h e clos
i n g o f Casa Rinconada seems t o be one instance i n w h i c h
N a t i v e A m e r i c a n g r o u p s feel t h a t t h e i r c u l t u r a l r i g h t t o
enter the r u i n s has been c u r t a i l e d b y a NPS decision
r e q u i r i n g t h e i r asking for p e r m i s s i o n t o do so, even
t h o u g h t h e y w e r e the first t o suggest the closure. C o n
versely, however, the change i n attitudes o f some Native
A m e r i c a n s t o w a r d the preservation o f resources c o u l d be
a t t r i b u t e d t o contacts and discussions i n this c o m m i t t e e .
Some m e m b e r s o f the g r o u p n o w s u p p o r t "conservation"
o f the ruins, r e c o g n i z i n g t h a t some o f the n o n - N a t i v e
A m e r i c a n values o f the site can enhance and p r o t e c t t h e i r
o w n values.
T h e r e are stakeholders w h o have a passive rela
tionship w i t h the site and w i l l continue t o have o n e u n t i l
such t i m e as they w i s h t o h i g h l i g h t the values they ascribe
to the site o r u n t i l they consider those values threatened.
As a h y p o t h e t i c a l example, the stakeholder g r o u p repre
sented b y the i n t e r n a t i o n a l c o m m u n i t y ( n o t v e r y active
92
Q u a l i t y o f V i s i t o r s ' Experience
T h e superintendent and staff o f C C N H P are
c o m m i t t e d t o p r o v i d i n g a high-quality
experience for visitors. M a n a g e m e n t strategies
are established and decisions are made w i t h
awareness o f their i m p a c t o n the p r o t e c t i o n o f
this quality. A l t h o u g h n o t explained o r analyzed
in detail i n any official d o c u m e n t , the quality
o f a visitor's experience is believed t o depend o n
direct contact w i t h the archaeological and natu
ral resources, a peaceful atmosphere, and
a pristine e n v i r o n m e n t . Those responsible for
the Park carefully manage all three factors.
C C N H P is able t o m a i n t a i n this isolation

t h r o u g h a c o m b i n a t i o n o f factorssome cir
cumstantial, others resulting f r o m p o l i c y deci
sions. T h e geographic l o c a t i o n o f the Park and
the relatively few accommodations for travelers
i n the s u r r o u n d i n g t o w n s play an i m p o r t a n t
role i n m a i n t a i n i n g l o w visitor numbers. O t h e r
c o n t r i b u t i n g factors are a direct result o f the
strategy o f little development that the Park has
f o l l o w e d for decades. These factors include n o t
paving the access roads, offering m i n i m a l serv
ices for visitors on-site, l i m i t i n g the n u m b e r o f
campgrounds, and discouraging publicity about
the Park.
C C N H P ' s mandate t o m a i n t a i n the archaeologi

cal resources o f the Park i n " u n i m p a i r e d " condi
t i o n requires that direct contact o f visitors w i t h
the ruins be carefully c o n t r o l l e d . T h e strategy
e m p l o y e d b y Park management has been t o
restrict access t o a sufficient b u t relatively small
n u m b e r o f ruins and t o require special permis
sion for v e n t u r i n g i n t o the backcountry.'
T h e efforts t o m a i n t a i n the l o w profile o f the

Park are easily justified i n t e r m s o f legislation
and managerial discretion, i n the sense that i t
is undeniable that sooner o r later any p o l i c y
encouraging visitation is likely t o have a negative
i m p a c t o n the conservation o f the resources.
However, other national parksYosemite i n
California, for examplehave encountered
T h e Park's peaceful e n v i r o n m e n t is m a i n t a i n e d
b y l i m i t i n g the n u m b e r o f visitors.This strategy
also favors the p r o t e c t i o n a n d regeneration o f
the n a t u r a l e n v i r o n m e n t . V i s i t o r n u m b e r s at
C C N H P i n 2001 are variously r e p o r t e d t o be
b e t w e e n 61,000 and 74,000, and b o t h figures
represent a decline over totals o f recent years.
O t h e r national parks i n the r e g i o n have visita
t i o n n u m b e r s that are several times those
of CCNHP.
great resistance f r o m stakeholders t o c u r t a i l i n g

visitation for conservation reasons. T h e accept
ance o f C C N H P ' s policies designed t o discour
age public access c o u l d be a t t r i b u t e d t o a c o m b i
n a t i o n o f factors. A t the local level, the Park's
stakeholders are relatively small groups o f
Native Americans o r others w h o do n o t benefit
m u c h f r o m the Park ( n e i g h b o r i n g c o m m u n i
ties). A large stakeholder g r o u p t h e scientific
c o m m u n i t y c a n derive benefit w i t h o u t visiting
U N D E R S T A N D I N G A N D P R O T E C T I N G T H EVALUES
93
the Park o n a regular basis. A n d finally, there
t o u r i s m i n the Southwest decreased dramati
seems t o be a general lack o f appreciation o f the
cally. T h e anticipated p o p u l a t i o n g r o w t h from
values o f the Park a m o n g the public at large.
regional development o f the energy and fuel
T h e p a v i n g o f the m a i n r o a d leading i n t o the

Park has been discussed for m a n y years. T h u s
far, Park m a n a g e m e n t has been able t o h o l d its
position, one that is fueled b y fear o f increased
n u m b e r s o f visitors. A m e m o r a n d u m dated July
t a t i o n is w e l l b e l o w 1989 levels. Park manage

m e n t is n o t m a k i n g any efforts t o increase it, and
the quality o f the experience for Park visitors
remains very h i g h .
1989 f r o m the superintendent at C C N H P t o the
O n e o f the m a n a g e m e n t objectives stated i n
director o f the Southwest Regional Office
NPS's 1995 Resource M a n a g e m e n t Plan is t o
presents a h y p o t h e t i c a l scenario i n w h i c h visita
"prevent development i n the p r i m a r y visitor-
t i o n t o C C N H P w o u l d double w i t h i n three years
use areas [ n o additional roads, n o expansion o r
i f the e n t r y r o a d w e r e paved. U s i n g the 1989 visi
a d d i t i o n o f p a r k i n g areas, and n o f u r t h e r sup
t o r n u m b e r o f 91,000 and estimating
p o r t facilities] that w o u l d adversely i m p a c t the
an annual increase o f approximately 11 percent,
historic landscape and setting."
the scenario envisaged a possible visitor l o a d o f

over 200,000 b y the year 2000. Park authorities
considered that these n e w conditions w o u l d
require a larger visitor center; m o r e p a r k i n g
areas; n e w c o m f o r t stations; a larger camp
g r o u n d ; and expansion o f waste t r e a t m e n t
facilities, f o o d services, and other amenities.
I t w o u l d also d e m a n d additional funds for
staffing, i n c l u d i n g guides, l a w enforcement
rangers, resource m a n a g e m e n t professionals,
and conservation technicians. T h e prospect was
o v e r w h e l m i n g , and i t was considered certain
that the q u a l i t y o f the visit w o u l d d i m i n i s h .
Chaco w o u l d b e c o m e a c r o w d e d n a t i o n a l p a r k
like others i n the r e g i o n . T w o years after this
m e m o r a n d u m was issued, the first cases o f
hantavirus were reported i n the region, and
94
industries never materialized either. C u r r e n t visi
T h e almost pristine n a t u r a l e n v i r o n m e n t ,
another factor o f a q u a l i t y visitor experience,
has resulted from the absence o f d a m a g i n g
activities such as h i g h visitation, g r a z i n g , and
m i n i n g over a l o n g p e r i o d o f t i m e . T h i s q u a l i t y
appreciates as Park lands c o n t i n u e t o be p r o
tected. However, i n the setting o f C C N H P , the
characteristics o f the lands outside its b o u n d
aries can influence the experience o f the visitor.
W h i l e the r e g i o n has n o t experienced the devel
o p m e n t that was anticipated a few years back,
any eventual n e w uses o f the s u r r o u n d i n g
landswhether habitation or m i n i n g a r e likely
t o have a significant i m p a c t o n the q u a l i t y o f
the air and views f r o m the Park. W h i l e this is an
area that is technically outside the responsibility
and c o n t r o l o f NPS management, the g o o d -
n e i g h b o r relationship w i t h local stakeholders that
far as t o r e c o m m e n d that "future proposals t o add
Park staff m a i n t a i n c o u l d influence decisions i n
facilities or upgrade existing ones at Chaco seri
the future.
ously consider their p o t e n t i a l i m p a c t o n the pres
Some o f the qualities identified w i t h a g o o d

visitor experience are apparently s u p p o r t e d b y
the results o f a visitor study carried o u t i n three
national p a r k units i n 1994. As p a r t o f the study,
4
visitors at C C N H P w e r e asked t h e i r reasons for
ent experience e n v i r o n m e n t . Modifications that

w o u l d significantly increase the n u m b e r o f visi
tors o r severely restrict visitor independence and
m o b i l i t y w o u l d probably have the greatest influ
ence i n detracting from the present conditions."
v i s i t i n g the Park and asked t o identify "aspects
This last q u o t a t i o n f r o m the visitor study s u m m a
o f the Park settings, w h i c h are composed o f the
rizes m o s t o f the conflicts and issues raised
managerial, physical, and social aspects o f a Park,
b y the focus o n the q u a l i t y o f the experience.
that w e r e i m p o r t a n t t o the realization o f their
Visitors t o C C N H P constitute a relatively small
desired experiences." T h e researchers f o u n d
g r o u p that recognizes the r u i n s ' educational and
that the m a i n reason visitors came t o Chaco was
symbolic value and seeks contact w i t h nature i n
t o learn about history; the desire t o experience
a t r a n q u i l e n v i r o n m e n t away from crowds. T h e
the n a t u r a l e n v i r o n m e n t came second.
study points o u t , however, that the conditions
A n o t h e r element c o n t r i b u t i n g t o the q u a l i t y
o f the visit is related t o the educational value
o f the Park and considered v e r y i m p o r t a n t b y
C C N H P management. This element is the
o p p o r t u n i t y t o offer ranger-led tours and pre
sentations. However, the 1994 study f o u n d that
visitors w e r e n o t as interested i n the personal
that exist i n the Park are the result o f a series o f

decisions and circumstances, as discussed above.
Changes i n some o f these conditionssuch as
the p a v i n g o f the r o a d o r c o n s t r u c t i o n o f
overnight accommodations on-sitecould
attract a m u c h larger n u m b e r o f visitors and
change the atmosphere o f the place.
contact available i n ranger-led tours as they
As always, choices are t o be made b e t w e e n access
w e r e i n the f r e e d o m t o w a l k independently
and p r o t e c t i o n : i n this case, access b y m a n y or b y
t h r o u g h the ruins w i t h self-guided b o o k l e t s or
few, and the physical p r o t e c t i o n o f the resources
be helped w i t h i n f o r m a t i o n a l signs i n the ruins
as w e l l as p r o t e c t i o n o f a certain q u a l i t y o f visit
and elsewhere i n the Park.
that can exist o n l y i f i t is l i m i t e d t o a relatively
T h e undeveloped nature o f the Park was

considered a positive attribute b y the m a j o r i t y
o f visitors interviewed, and the study goes so
small n u m b e r o f people. A l l the values a t t r i b u t e d

t o the Park are affected b y decisions i n this area
i n b o t h positive and negative ways.
95
Notes
1.
Most o f the regulations governing access to the resources

o f the Park are left to the discretion o f the superintendent,
as authorized by the Code of Federal Regulations
(36 CFR 1.5).
These regulations can be found i n NPS 2001c. Site-specific

regulations include the closure o f certain areas (Fajada
Butte, Atlatl Cave, and the interior chamber o f Casa Rinconada), the restriction o f access to the ruins and frontcountry and backcountry areas, and the requirement that
permissions be requested for special uses.
2.
W h i l e each park is unique i n its facilities and carrying

capacity, the following figures are given as indicators
(from: http.7 / www.nps.gov):
Gross Park Surface
Visitors
(FY2001)
(FY2001)
CCNHP, N e w Mexico
13,750 hectares
61,602
Mesa Verde National
21,093 hectares
Park, Colorado
(52,122 acres)
W u p a t k i National Park,
17,013 hectares
Arizona
(42,042 acres)
(33,974 acres)
3.
4.
Bandelier National Park,
13,628 hectares
N e w Mexico
(33,677 acres)
511,764
537,851
293,548
NPS 1995, objective page.

The t w o other parks included i n the study were Mesa
Verde National Park and W u p a t k i National Monument;
see Lee and Stephens 1994.
96
5.
Lee and Stephens 1994,2-3.
6.
Ibid., 33-36.
7.
Ibid., 39-
8.
Ibid., 46-47.
CHACO CULTURE NATIONAL HISTORICAL
PARK
Conclusions
T h e NPS mandate t o preserve " u n i m p a i r e d the n a t u r a l
C C N H P , the purpose o f the Park lies i n the archaeological
and c u l t u r a l resources and values o f the n a t i o n a l p a r k sys
ruins, b u t the value seen i n those resources has g r o w n and
t e m for the e n j o y m e n t , education, and i n s p i r a t i o n o f this
changed over t i m e . H o w e v e r , the focus o n the physical
and f u t u r e g e n e r a t i o n s "
conservation o f the archaeological materials is at times an
103
carries w i t h i t a great deal o f
responsibility. As w i t h m a n y large g o v e r n m e n t bureaucra
obstacle t o the r e c o g n i t i o n and p r o t e c t i o n o f some o f the
cies, the actual a u t h o r i t y for selecting and i m p l e m e n t i n g
values ascribed t o those materials. I n a d d i t i o n , the force o f
m a n a g e m e n t strategies resides i n legislation and related
law, n o t policy, appears t o be the m a i n factor i n the recog
p r o c e d u r a l d o c u m e n t s w r i t t e n t o ensure compliance.
n i t i o n and p r o t e c t i o n o f values i n n a t i o n a l parks.
One o f the overarching issues explored b y this
I n the l o n g h i s t o r y o f Chaco C a n y o n as a heritage
study is the possibility that the i n d i v i d u a l parkssupported
site, the e v o l u t i o n and emergence o f values over t i m e
b y the NPS management e n v i r o n m e n t c a n recognize,
have been fueled b y n e w k n o w l e d g e and b y c h a n g i n g soci
take i n t o consideration, and protect all the values ascribed
etal mores and professional practices. T h e e v o l u t i o n i n
t o a place. T h e i n f o r m a t i o n gathered indicates that, w h i l e
values b r o u g h t a b o u t b y professional practices is best
there are certain constraints, this is possible w i t h i n limits.
reflected i n the i n f o r m a t i o n and associative values, p r o
T h e case o f C C N H P indicates that regardless o f any n u m
tected b y policies related t o excavation and conservation.
ber o f values that are ascribed t o a national park, the pre
T h e fate o f N a t i v e A m e r i c a n spiritual values and the natu
ponderant and p r i m a r y ones w i l l always be those that w e r e
r a l values o f the site illustrates how, i n the case o f the
the reason for the creation o f the Park. I n the case o f
NPS, legislation plays a m a j o r role i n the creation o f n e w

values and i n the r e c o g n i t i o n o f stakeholders' interests.
O t h e r questions explored i n this case have been
the a m o u n t o f l a t i t u d e Park superintendents have, w i t h i n
this v e r y s t r u c t u r e d n a t i o n a l system, t o establish policies
and objectives that address the specific s i t u a t i o n o f the
Park, as w e l l as w h e t h e r compliance w i t h higher-level
authorities l i m i t e d t h e i r choices o f action. T h e answers
d o n o t clearly fall o n one side o r the other. T h e r e are cer
tainly m a n y activities at the site, p a r t i c u l a r l y at the level
o f reports and justification, i n t e n d e d t o address issues
o f compliance. H o w e v e r , at a m o r e - p r a g m a t i c level, the
case has s h o w n that the superintendent has a s u r p r i s i n g
a m o u n t o f l a t i t u d e t o i n t e r p r e t the n a t i o n a l policies and
directives. I n a d d i t i o n , an e x a m i n a t i o n o f Chaco C a n y o n
Figure 2.10. Meditating i n Casa Rinconada. C C N H P is considered a
as a heritage place illustrates h o w this site is the result o f
place o f spiritual significance by several Native American groups. More
its h i s t o r y and the decisions that have been made i n the
recently, N e w Agers have also come to view Chaco as a special place.
past. I n theory, policies at the n a t i o n a l and local levels
Some o f the practices o f this new group o f stakeholders offend the
c o u l d change d r a s t i c a l l y w i t h emphasis shifting, for
sensitivities o f stakeholders o f longer standing. The NPS has found

itself having to decide whether all stakeholder claims are legitimate
and whether some groups have rights that take priority. So far, the NPS
has sidestepped a direct decision on these matters by resolving the
conflict i n the arena o f "conservation." Photo: Courtesy National Park
Service, Chaco Culture N H P Collection Archives.
example, b e t w e e n c o n s e r v a t i o n and access. I n fact, w h i l e

policies have changed over the Park's history, the p r i o r i t i e s
and conditions on-site have r e m a i n e d fairly constant.
A simple c o m p a r i s o n o f C C N H P w i t h another
nearby n a t i o n a l p a r k can illustrate this p o i n t . T h i s study
CONCLUSIONS
97
has repeatedly p o i n t e d o u t the p r i m a c y o f the conserva
o f alternative l a n d uses, p o l l u t i o n , increased p o p u l a t i o n
t i o n o f the c u l t u r a l resources i n all m a n a g e m e n t decisions
(and visitors). T h e battles t o be f o u g h t w i l l require s t r o n g
at C C N H P . T h i s emphasis is j u s t i f i e d at the NPS system
Park coalitions w i t h some o f the stakeholder groups. T h e
level b y its mandate t o m a i n t a i n resources u n i m p a i r e d ,
g r o u p s t h a t w i l l be the needed allies w i l l depend o n the
and j u s t i f i e d at the p a r k level b y its legislative purpose.
battle t o be f o u g h t . T h e good-relations approach w i t h all
A t the same t i m e , o t h e r parks i n the system w e r e created
the stakeholders (rather t h a n strong-and-fast alliances
w i t h similar purposes and today are v e r y different from
w i t h some o f t h e m ) , w h i c h is f o l l o w e d at this t i m e , seems
C C N H P , w i t h its u n d e v e l o p e d a n d t r a n q u i l setting.
wise. As i n the past, the critical e l e m e n t o f m a n a g e m e n t
Mesa Verde N a t i o n a l Park, i n the n e i g h b o r i n g
i n the Park w i l l be the ability o f the superintendent t o
state o f C o l o r a d o , provides an interesting contrast t o
m a i n t a i n focus o n the core values o f the Park, o n b e h a l f
C C N H P w i t h regard t o its m a n a g e m e n t policies and its
o f its constituents, present a n d f u t u r e .
approach t o visitors and access. Mesa Verde became a

n a t i o n a l p a r k (rather t h a n a n a t i o n a l m o n u m e n t ) i n 1906,
Notes
and almost i m m e d i a t e l y i t became one o f the n a t i o n a l

sites featured i n efforts t o develop t o u r i s m and visitation.
Decisions w e r e m a d e t o h a r d e n the
front-country
areas o f
the site t o m a k e t h e m accessible t o as m a n y people w h o
1.
U.S. Code 1916.
2.
For a discussion o f these evolving definitions and conflict
w a n t e d t o see t h e m , and t o m a k e t h e m relatively i m p e r v i

ous t o damage t h r o u g h the p a v i n g o f pathways and the
p e r m a n e n t c o n s o l i d a t i o n o f ruins, w h i l e f o r b i d d i n g all vis
i t o r access t o the b a c k c o u n t r y Today m o r e t h a n 500,000
among them, see Sellars 1997 and W i n k s 1997.

3.
NPS 2000a, sec. 1.4.4.
4.
See NPS 2000a, sec. 1.4, for the interpretation o f the

Organic Act of 1916, the General Authorities
people visit a s m a l l p a r t o f Mesa Verde N a t i o n a l Park

every year, w h e r e a paved r o a d delivers t h e m t o the edge
o f a few archaeological sites. T h e r e they are encouraged
to explore inside the ruins, eat i n the restaurant, and sleep
at the i n n . A t Mesa Verde, i t c o u l d be said t h a t a choice
was m a d e t o sacrifice some sites for the sake o f access and
National
Act of 19J0, as
amended (U.S. Code, vol. 16, sees. 1, i a - i ) .

5.
NPS 2000a, 5.
6.
L o w r y 1994,29.
7.
Birdsall and Florin 1992,349-52.
8.
The information here has been gathered from Lister and

Lister 1981; Lekson et al. 1988; and Strutin and H u e y 1994.
i n exchange for the p r o t e c t i o n o f others i n the backcoun
For a more comprehensive bibliography o f Chaco Canyon,
try. T h e archaeological remains w e r e the reason for the
see "Bibliography o f Chaco Resources" maintained by D a n
creation o f b o t h parks, b u t Mesa Verde and Chaco p r o t e c t
Meyer, Department o f Anthropology, University o f Calgary:
these resources t h r o u g h v e r y different strategies.
http: / / vvWvV.ucalgary.ca/ -dameyer/chacbib.html

(12 Feb. 2003).
T h e ever-present d i l e m m a i n heritage sites o f

access versus c o n s e r v a t i o n appears t o be h a n d l e d at
9.
Anasazi,
a Navajo w o r d usually translated as "ancient ene
mies," was introduced i n 1936 to replace Basket M a k e r -
C C N H P w i t h less conflict t h a n i n o t h e r parks i n the sys
Pueblo as the archaeological label for the prehistoric ances
t e m t h a t have t r i e d t o l i m i t the n u m b e r o f visitors. T h e
tors o f the historical Pueblo people o f n o r t h e r n Arizona
geographic l o c a t i o n o f C C N H P a n d its s u r r o u n d i n g s has
and N e w Mexico. The Navajo are not descendants o f the
s u p p o r t e d the i s o l a t i o n policy. I n 1985 there was consider
Anasazi, and some Pueblo people prefer to use a t e r m from
able c o n c e r n a b o u t the i m p a c t t h a t a change i n these con
their o w n language, such as the H o p i Hisatsinom,
ditions w o u l d b r i n g t o the Park. A l t h o u g h the anticipated
to their prehistoric ancestors.
threats never materialized, the d e v e l o p m e n t o f the r e g i o n
10.
to refer
It should be noted that i n many cases, Native American his
remains n o t a possibility b u t a c e r t a i n t y at some p o i n t i n
tories differ from what could be called "academic" history
the f u t u r e . As the r e g i o n evolves, the l o n g - t e r m protec
Attempts are made throughout this study to state Native
t i o n o f C C N H P depends substantially o n the ability o f its
American views i f they have been made k n o w n to the

authors o f the study and i f they differ from those presented
superintendent and staff to u n d e r s t a n d and balance the
by the NPS or academic sources.
interests o f all the stakeholders, t o m e e t its compliance

obligations, and t o find acceptable solutions w h e n these
forces conflict. T h e specific threats t h a t m i g h t emerge i n
the f u t u r e are unpredictable. H o w e v e r , they are l i k e l y t o
o r i g i n a t e p r i n c i p a l l y from d e v e l o p m e n t and its corollaries
98
11.
A more-complete time line o f Chaco Canyon and C C N H P

in historical times is presented i n appendix A. Unless other
wise noted, the information provided i n this section has
come from Lee 1971; Lister and Lister 1981; and Strutin and
H u e y 1994.
12.
Wozniak, Brugge, and Lange 1993; Stoffle et al. 1994.
43.
Wozniak, Brugge, and Lange 1993; Stoffle et al. 1994.
13.
U.S. Code 1906, sec. 2.
44.
NPS 1990a.
14.
M c M a n a m o n 2001, 257.
45.
U.S. Code 1993.
15.
U.S. Code 1906, sec. 2.
46.
U.S. Code 1990.
16.
C C N H P staff, private communication, A p r i l 2002.
47.
Federal Register, 12 March 1999 (vol. 64, no. 48).
17.
NPS 2002b, pt. 1,4-5.
48.
See Hoover 2001,34-37.
18.
The Civilian Conservation Corps was established i n 1933 by
49.
Stoffle et al. 1994, 81.
50.
Begay et al. 1993, quoted i n Stoffle et al. 1994, 81.
51.
Keller and Turek 1998,190.
52.
Ibid., 191.
53.
Brugge 1993,12.
the Act for the Relief
of Unemployment
through the Performance
of Useful Public Work, and for Other Purposes during the Great
Depression years. Originally intended to deal w i t h the con
servation o f natural resources, its w o r k later extended to the
construction and repair o f paths, campsites, and so o n and,
i n some cases, as i n Chaco, to the stabilization o f archaeolog
ical structures.
54.
U.S. Code 1969, as amended by Public Law 94-52,3 July 1975;

Public Law 94-83, 9 Aug. 1975; and Public Law 97-258,4(b),
19.
NPS 1991,19.
20.
US. Code 1980.
21.
NPS 1984,27.
22.
UNESCO W o r l d Heritage Committee 1 9 8 4 , 7 - 8 .
23.
The official Web site o f the park (www.nps.gov/ chcu) pro
high-density urbanization, industrial expansion, resource
vides more information o n facilities and visits to the site.
exploitation, and new and expanding technological advances
24.
NPS 2002a.
and recognizing further the critical importance o f restoring
25.
Hantavirus, a disease carried by rodents, is potentially deadly
13 Sept. 1982.
55.
Sec. 101 (US. Code, vol. 42, sec. 4331) (a): "The Congress, rec
ognizing the profound impact o f m a n s activity o n the inter
relations o f all components o f the natural environment, par
ticularly the profound influences o f population g r o w t h ,
and maintaining environmental quality to the overall welfare

and development o f man, declares that i t is the continuing
to humans.
policy o f the Federal G o v e r n m e n t . . . to create and maintain
26.
conditions under w h i c h m a n and nature can exist i n produc
27.
Park infrastructure information is taken from NPS 2002a.
tive harmony, and fulfill the social, economic, and other
28.
NPS 2000a, 1.4.3.
29.
NPS 2000a.
30.
NPS 2002b contains a statement o f the Park's significance (to
requirements o f present and future generations o f

Americans."
56.
Order N o . 12: Conservation Planning, Environmental
be discussed below). The 1995 Resource Management Plan
Impact Analysis, and Decision M a k i n g (NPS 2001b), effective
(NPS 1995) and the 1985 General Management Plan (NPS

1985) m e n t i o n the importance o f only the archaeological
remains, w h i c h constitute the purpose o f the Park.
31.
U.S. President 1907.
32.
Hardacre 1879,274.
33.
NPS 2002b, 1.
34.
NPS 2002b.
35.
Ibid., 3-4.
36.
NPS 2002b.
37.
For an extensive description o f the interest i n Native A m e r i
8 Jan. 2001.
57.
58.
See Satterfield 2002.

For a discussion o f the associative / symbolic value o f her
itage, see Lipe 1984,1-11.
59.
Lee and Stephens 1994,135.
60.
Rothman 1989,17.
61.
NPS 1985.
62.
UNESCO W o r l d Heritage Committee 2002,1.C.3.
63.
NPS 1984,28.
64.
UNESCO W o r l d Heritage Committee 1985.
centuries, see Lee 1971.
65.
UNESCO W o r l d Heritage Committee 1999.
NPS 1985,119-29. Appendix B summarizes the various cate
66.
NPS 2002b, H i .
67.
U.S. Code, vol. 16, sec. i a - i .
68.
NPS 2000a, sec. 2.3.
can antiquities i n the late nineteenth and early twentieth
38.
NPS 1982 was superseded and replaced by NPS Director s
gories and their "scoring" value.

39.
U.S. Code 1916.
40.
NPS 1995.
41.
NPS 2002b.
42.
69.
Respectively, NPS 1985; NPS 2000b; NPS 1995, currently

being revised and existing i n draft f o r m , NPS 2002b; and NPS
1983, w i t h its 1990 amendment, NPS 1990a. These and other
NOTES
99
documents consulted for the preparation o f this case are
93.
listed i n the references.

70.
nate that certain fruits, berries, or nuts may be gathered i f
management policies, but no time has yet been specified for
this has no adverse effect o n park resources, no other gather
its development.
NPS 2002b.
72.
A list o f the more-specific management priorities or actions

identified i n the 2002 draft o f the Resource Management
Plan (NPS 2002b) is presented i n appendix C.
73.
NPS 2002b, 4.
74.
Ibid., 11-12.
75.
Public Law 96-550 (U.S. Code 1980).
76.
NPS
1990a.
title 36, chapter 1, sec. 2.1 (Parks,
tions provide some latitude to park superintendents to desig
A new general management plan is required by the new NPS
71.
Code of Federal Regulations,
Forests, and Public Property), 2002. A l t h o u g h current regula
ing or consumptive use o f resources is allowed unless

authorized by federal statute or treaty rights.
94.
NPS 1985.
95.
C C N H P N-5.
96.
Code of Federal Regulations,
97.
NPS 2000a, sec. 8.5, 9 0 .
98.
Birnbaum 1994,1.
99.
title 36, chapter 1, sec.
2.1,2002.
For a discussion o f l i m i t i n g versus more-holistic perspectives

toward cultural heritage, see Byrne et al. 2001,55-72.
77.
NPS 2002b, pt. 2 , 1 .
78.
The closest towns w i t h tourist accommodations are
100.
Lee and Stephens 1994, 46.
Bloomfield, Aztec, and Farmington. Santa Fe and Albu
101.
NPS 2002b.
querque, the t w o major cities i n the area, are t w o and a half
102.
Ibid., pt. 2 , 1 .
103.
Ibid., 10.
to three hours away by car. There has been talk i n the Navajo
N a t i o n o f building a hotel i n Crownpoint, south o f the site,
but there has been no follow-up. Some local families allow
camping o n their lands during the high season.
79.
80.
NPS 1985.
81.
82.
NPS 1985, 46.
83.
NPS 2002b, 7.
84.
For details o f the w o r k done by the Chaco Center Project,

see Lister and Lister 1981.
85.
NPS 1991.
86.
Ibid., 6.
87.
Information provided by C C N H P staff.
88.
89.
Ibid.
90.
Lister and Lister 1981,157.
91.
Stuart and M c M a n a m o n , n.d., 8.
92.
Public Law 90-583 (U.S. Code 1968) provides for the control o f
noxious plants o n federal lands, and Executive Order 11987
(U.S. President 1977), "Exotic Organisms," calls for restric
tions o n the introduction o f exotic species into natural
ecosystems o n federal lands. NPS policy also states that con
t r o l or eradication o f an exotic species w i l l be implemented
w h e n that species threatens resources (such as native species,
rare or endangered species, or natural ecological communi
ties or processes) on park lands (NPS 1988). Priority is placed
on control programs for exotic species having a high impact
on park resources and for w h i c h there is a reasonable expec
tation for successful control.
IOO
o f Navajo laborers w h o d i d m u c h o f the actual
Appendix A:
Time Line d u r i n g H e r i t a g e Status
late artifacts for the m u s e u m ' s collection. N u m e r
1250-
M e m b e r s o f affiliated clans and religious societies
they are located t o d a y
present
o f the H o p i and the Pueblos o f N e w M e x i c o have
d i g g i n g . " T h e i r p r i m a r y purpose was t o accumu

1
ous artifacts w e r e shipped t o the m u s e u m , w h e r e
visited Chaco o n pilgrimages t o h o n o r their
1901
t i o n s excavations at Chaco C a n y o n , as w e l l as
ancestral homelands.
1&23
1849
the l a n d c l a i m o f R i c h a r d W e t h e r i l l there, w h i c h
T h e Spanish m i l i t a r y e x p e d i t i o n l e d b y Jose
i n c l u d e d Pueblo B o n i t o , C h e t r o K e t l , and Pueblo
A n t o n i o V i z c a r r a passed t h r o u g h Chaco C a n y o n
del A r r o y o , General L a n d Office special agent S.J.
and p r o d u c e d the first w r i t t e n account identify
H o l s i n g e r strongly r e c o m m e n d e d that the U.S.
i n g the ruins there.
g o v e r n m e n t create a n a t i o n a l p a r k t o preserve
Chacoan sites, and he c o m p i l e d a r e p o r t docu
W h i l e i n the area o f Chaco C a n y o n , the Wash
m e n t i n g m a n y ruins. T h e General L a n d Office
i n g t o n E x p e d i t i o n , a U.S. A r m y T o p o g r a p h i c a l
responded b y suspending the H y d e e x p e d i t i o n s
Engineers reconnaissance detachment headed
excavations at Pueblo B o n i t o . T h e H y d e expedi
b y L t . James H . Simpson, encountered and w r o t e
t i o n never r e s u m e d its archaeological w o r k at
descriptions o f Chacoan sites. T h e r e s u l t i n g gov
Chaco.
e r n m e n t r e p o r t i n c l u d e d detailed illustrations.
T h i s was the first substantial w r i t t e n and graphic
1902-10 Despite the denial o f R i c h a r d WetherilTs l a n d
r e p o r t c o n c e r n i n g the c u l t u r a l heritage at Chaco
c l a i m i n 1902, he c o n t i n u e d t o homestead at
Canyon.
1877
Chaco C a n y o n and operated a t r a d i n g post at

Pueblo B o n i t o u n t i l his controversial m u r d e r
W i l l i a m H e n r y Jackson, a p h o t o g r a p h e r w h o was
i n 1910.
p a r t o f the U.S. g o v e r n m e n t ' s G e o l o g i c a l and

Geographical Survey o f the Territories, l e d b y
1888
F o l l o w i n g an investigation o f the H y d e Expedi
1906
As a direct result o f controversy over WetherilFs
F. V H a y d n , p r o d u c e d more-extensive descrip
excavations at Chaco C a n y o n and claims b y
tions and maps o f the Chacoan sites.
professionally t r a i n e d archaeologists that they

d i d n o t p r o p e r l y account for the site's scientific
V i c t o r and Cosmos M i n d e l e f f o f the Bureau o f
significance, Congress enacted the Antiquities
A m e r i c a n E t h n o l o g y surveyed and p h o t o g r a p h e d
T h e l a w t h e n a t i o n s first t o p r o t e c t
the m a j o r Chacoan sites for a study o f Pueblo
antiquitiesgranted the president the p o w e r
architecture. T h e i r p h o t o g r a p h s i n c l u d e d the
t o establish n a t i o n a l m o n u m e n t s .
d o c u m e n t a t i o n o f l o o t i n g and vandalism. As the

o l d e s t - k n o w n p h o t o g r a p h s , t h e y p r o v i d e a base
Act.
1907
line for m e a s u r i n g the subsequent effects o f l o o t
President T h e o d o r e Roosevelt set aside approxi

m a t e l y 20,630 acres at Chaco C a n y o n as Chaco
i n g , vandalism, visitation, and n a t u r a l collapse
C a n y o n N a t i o n a l M o n u m e n t u n d e r the a u t h o r i t y
at the sites.
o f the Antiquities Act. U n t i l 1916, w h e n the
1896-
After excavating several ancestral Puebloan sites
1901
i n the Four C o r n e r s r e g i o n , i n c l u d i n g sites at
N a t i o n a l Park Service (NPS) was created, the

m o n u m e n t was administered b y the federal agen
cies that h a d j u r i s d i c t i o n over the land.
Mesa Verde i n 1888, amateur archaeologist and

relic h u n t e r R i c h a r d W e t h e r i l l came t o excavate
1916
Congress passed the Organic Act, w h i c h p r o v i d e d
at Chaco C a n y o n . W e t h e r i l l d r e w the interest o f
for the creation o f the NPS, w h i c h has adminis
the H y d e b r o t h e r s o f N e w Y o r k t o the site. O v e r
tered Chaco C a n y o n N a t i o n a l M o n u m e n t and
the next five years, the H y d e E x p l o r i n g Expedi
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l Park since
t i o n c o n d u c t e d full-scale excavations at Pueblo
that t i m e .
B o n i t o . George H . Pepper o f the A m e r i c a n

M u s e u m o f N a t u r a l H i s t o r y i n N e w Y o r k super
vised the excavations, w h i l e W e t h e r i l l "led a b a n d
1921-2J
N e i l J u d d o f the N a t i o n a l Geographic Society

led the excavation o f several h u n d r e d r o o m s at
Pueblo B o n i t o , as w e l l as parts o f Pueblo del
APPENDIX A
IOI
A r r o y o and several smaller sites, for the S m i t h
194J
sonian I n s t i t u t i o n . A g o a l o f this e x p e d i t i o n was
m o v e d away, the NPS erected fences at its b o u n d
t o preserve the excavated Pueblo B o n i t o ; exten
aries t o exclude livestock and thereby t o restore
sive conservation treatments w e r e c o n d u c t e d at
rangeland vegetation.
the site.
1928
1949
Chaco C a n y o n N a t i o n a l M o n u m e n t t o the NPS
cated t h a t the lands m e n t i o n e d i n the o r i g i n a l
i n r e t u r n for c o n t i n u e d rights t o c o n d u c t sci
p r o c l a m a t i o n d i d n o t c o n t a i n all o f the described
entific research at the m o n u m e n t .
ruins, President C a l v i n C o o l i d g e issued a second
1959
agency's 50th anniversary i n 1966, the NPS cre

ated the m o n u m e n t ' s V i s i t o r Center, staff hous
1929-41 Edgar Lee H e w e t t o f the School o f A m e r i c a n
i n g , and c a m p g r o u n d s .
Research and D o n a l d D . B r a n d o f the U n i v e r s i t y

o f N e w M e x i c o l e d excavations at C h e t r o K e t l
and m a n y s m a l l Chacoan sites.
1969-81 T h e NPS a n d the U n i v e r s i t y o f N e w M e x i c o r u n

the Chaco Center Project, a m u l t i d i s c i p l i n a r y
Congress enacted legislation (U.S. Statutes at Large
research u n i t established t o enhance the under
46:1165) t h a t related t o several aspects o f interest
standing o f prehistoric N a t i v e A m e r i c a n cultures
i n lands at Chaco. First, i t a u t h o r i z e d the
o f the San Juan Basin. T h e center carried o u t
exchange o f private lands w i t h i n the m o n u m e n t
f i e l d w o r k and p u b l i c a t i o n a n d e x p e r i m e n t e d w i t h
for federal lands elsewhere i n N e w M e x i c o . I n
the application o f n e w technologies t o research.
a d d i t i o n , i t a u t h o r i z e d the d r i v i n g o f livestock
T h e center's w o r k identified and appraised over
across m o n u m e n t lands for o w n e r s (and t h e i r
one t h o u s a n d sites i n the Park and adjacent lands
successors i n interest) o f certain lands i n and
and used r e m o t e sensing t o identify the prehis
a d j o i n i n g the m o n u m e n t . T h e act also specified
t o r i c r o a d system t h a t radiates o u t w a r d from
means b y w h i c h the U n i v e r s i t y o f N e w M e x i c o
Chaco C a n y o n t o connect n u m e r o u s o u t l y i n g
and the M u s e u m o f N e w M e x i c o and / o r the
Chacoan c o m m u n i t i e s i n the r e g i o n .
School o f A m e r i c a n Research (located i n Santa

Fe) c o u l d c o n t i n u e t o c o n d u c t research o n t h e i r
1979
P l a n / D e v e l o p m e n t C o n c e p t Plan (NPS 1979).
c r e t i o n o f the secretary o f the interior, o n o t h e r

lands w i t h i n the m o n u m e n t .
_
G o r d o n V i v i a n carried o u t extensive conservation

w o r k at Pueblo B o n i t o , C h e t r o K e t l , and Casa
Rinconada.
1937
1941
A C i v i l i a n C o n s e r v a t i o n C o r p s ( C C C ) c r e w o f all-
1980
Congress enacted Public L a w 96-550, w h i c h cre

ated Chaco C u l t u r e N a t i o n a l H i s t o r i c a l Park, tak
i n g the place o f Chaco C a n y o n N a t i o n a l M o n u
m e n t . T h i s l a w contained three general p r o v i
sions: (1) i t added a p p r o x i m a t e l y 12,500 acres t o
the Park; (2) i t designated t h i r t y - t h r e e o u t l y i n g
Navajo stonemasons i n i t i a t e d repairs t o m a n y
sites i n the San Juan Basin as Chaco C u l t u r e
large excavated Chacoan structures t h a t w e r e
A r c h e o l o g i c a l P r o t e c t i o n Sites and p r o v i d e d for
d e t e r i o r a t i n g due t o years o f exposure t o r a i n ,
the a d d i t i o n o f o t h e r sites i n the future; i n addi
w i n d , and freeze-thaw cycles. I n a d d i t i o n , the
t i o n , i t created the Chaco C u l t u r e A r c h e o l o g i c a l
C C C b u i l t a t w o - h u n d r e d - p e r s o n camp near
P r o t e c t i o n Site p r o g r a m t o j o i n t l y manage and
Fajada B u t t e t o house w o r k e r s t o p r o v i d e
p r o t e c t Chacoan sites located o n lands n o t u n d e r
i m p r o v e m e n t s t o the m o n u m e n t .
the j u r i s d i c t i o n o f the NPS; and (3) i t a u t h o r i z e d
After a year o f heavy rains, T h r e a t e n i n g R o c k fell

o n t o and destroyed a p p r o x i m a t e l y t h i r t y r o o m s
at Pueblo B o n i t o t h a t h a d been excavated i n the
1920s.
102
T h e NPS approved the d o c u m e n t Chaco C a n y o n

N a t i o n a l M o n u m e n t : General M a n a g e m e n t
f o r m e r lands w i t h i n the m o n u m e n t or, at the dis
933 37
As p a r t o f the NPS's M i s s i o n 66 c o n s t r u c t i o n
campaign, w h i c h extended from 1956 t o the
correct these errors.
T h e U n i v e r s i t y o f N e w M e x i c o deeded lands i n
After a resurvey o f the m o n u m e n t p r o p e r t y i n d i
p r o c l a m a t i o n , Presidential P r o c l a m a t i o n 1826, t o
1931
After the last Navajo resident at the m o n u m e n t
a c o n t i n u i n g p r o g r a m o f archaeological research
i n the San Juan Basin.
1981
T h e Chaco C u l t u r e Interagency M a n a g e m e n t
1987
G r o u p c o m p o s e d o f the NPS, the B u r e a u o f
N a t i o n s Educational, Scientific, and C u l t u r a l
L a n d M a n a g e m e n t , the B u r e a u o f I n d i a n Affairs,
O r g a n i z a t i o n ( U N E S C O ) designated Chaco C u l
the Navajo N a t i o n , the State o f N e w M e x i c o , and
t u r e N a t i o n a l H i s t o r i c a l Park as a W o r l d H e r i t a g e
the U.S. Forest Servicewas created t o p r o v i d e
Site.
for d e v e l o p m e n t o f a j o i n t m a n a g e m e n t p l a n for
f o r m a l l y designated Chacoan o u t l y i n g sites, as
1991
Committee.
i n v o l v e d i n the d e v e l o p m e n t o f the p l a n h a d
either j u r i s d i c t i o n over, o r interest i n , lands con
1993
t a i n i n g o u t l y i n g sites.
i n g for ruins conservation at agency sites i n the
T h e Park superintendent closed access t o Fajada
Southwest, i n c l u d i n g C C N H P . Since that t i m e ,

the p r o g r a m has p r o v i d e d significant f u n d i n g t o
tors except those a u t h o r i z e d b y p e r m i t .
the Park for c a r r y i n g o u t conservation-related

w o r k and for h i r i n g conservation-related staff.
T h e Chaco C u l t u r e Interagency M a n a g e m e n t
G r o u p issued the d o c u m e n t Chaco A r c h e o l o g i c a l
P r o t e c t i o n Site System: J o i n t M a n a g e m e n t Plan,
1995
Protection
n e w o u t l y i n g sites and r e m o v e d four f o r m e r l y
preservation, p r o t e c t i o n , and research o f desig
designated o u t l i e r sites as Chaco C u l t u r e A r c h e o
nated Chacoan o u t l y i n g sites.
logical P r o t e c t i o n Sites. These changes increased
Based o n p u b l i c c o m m e n t s and p l a n n i n g and
the t o t a l n u m b e r o f outliers t o t h i r t y - n i n e and
m a n a g e m e n t discussions t h a t f o l l o w e d , the NPS
extended t h e i r geographic scope outside the San
prepared the d o c u m e n t D r a f t General Manage
Juan Basin.
m e n t P l a n / D e v e l o p m e n t C o n c e p t Plan / E n v i r o n
m e n t a l Assessment, Chaco C u l t u r e N a t i o n a l His
1996
W o r l d M o n u m e n t s F u n d n a m e d C C N H P and
associated archaeological sites i n N e w M e x i c o t o
torical Park, N e w M e x i c o . T h e d o c u m e n t
its list o f the 100 m o s t endangered m o n u m e n t s .
i n c l u d e d a description o f p r o p o s e d actions (gen

eral m a n a g e m e n t plan) as w e l l as alternatives for
I n response t o the urgings o f affiliated Native
m a j o r proposals contained i n the p l a n . I n O c t o
A m e r i c a n tribes, the NPS closed b o t h entrances
ber, this d o c u m e n t was released for p u b l i c and
t o the great k i v a k n o w n as Casa Rinconada.
agency consideration. O n N o v e m b e r 1, a p u b l i c
m e e t i n g t o receive c o m m e n t s was h e l d i n A l b u
1997
T h e N a t u r a l Resources Defense C o u n c i l and the

N a t i o n a l T r u s t for H i s t o r i c Preservation issued
querque. A c c o r d i n g t o the NPS, "the m a j o r i t y
the r e p o r t Reclaiming Our Heritage: What We Need
response was i n favor o f the general m a n a g e m e n t
to Do to Preserve America's National Parks, w h i c h
p l a n proposals as described i n the draft docu
i n c l u d e d C C N H P as one o f several case studies o f
m e n t . " I n the fall o f the same year, the NPS also

2
threatened parks.
h e l d meetings w i t h federal, state, and local agen

cies; the Navajo N a t i o n ; energy companies; and
T h e NPS and the U n i v e r s i t y o f C o l o r a d o -
individuals t o r e v i e w the m o s t i m p o r t a n t l a n d
B o u l d e r f o r m e d a c o l l a b o r a t i o n a i m e d at creating
m a n a g e m e n t and p r o t e c t i o n proposals c o n t a i n e d
a synthesis o f the w o r k done b y the Chaco Center
i n the D r a f t L a n d P r o t e c t i o n Plan, Chaco C u l t u r e
Project (1969-81) t h r o u g h a series o f conferences.
N a t i o n a l H i s t o r i c a l Park.
1985
Congress enacted the Chacoan Outliers
Act of 199$ (Public L a w 104-11). T h e act added nine
w h i c h c o n t a i n e d guidelines for the identification,
1984
T h e NPS created the Vanishing Treasures Initia

tive, w h i c h is a i m e d at p r o v i d i n g a d d i t i o n a l fund
Butte, a N a t i v e A m e r i c a n sacred site, t o all visi
1983
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l Park i n s t i t u t e d
the Chaco A m e r i c a n I n d i a n C o n s u l t a t i o n
r e q u i r e d u n d e r Public L a w 96-550. T h e agencies
1982
T h e W o r l d H e r i t a g e C o m m i t t e e o f the U n i t e d
1999
T h e N a t i o n a l Parks C o n s e r v a t i o n Association
I n September, the Southwest R e g i o n approved
n a m e d C C N H P t o its annual list o f the t e n m o s t
the d o c u m e n t General M a n a g e m e n t Plan / D e v e l
endangered n a t i o n a l parks i n the U n i t e d States
opment Concept Plan/Chaco Culture National
c i t i n g damage t o the resources caused b y e n v i r o n
H i s t o r i c a l Park, N e w M e x i c o .
m e n t a l conditions; insufficient preservation and
APPENDIX A
103
maintenance; l o o t i n g ; and p o t e n t i a l d e v e l o p m e n t
o f s u r r o u n d i n g lands.
As p a r t o f its r e q u i r e d activities u n d e r the Native
American Graves Protection and Repatriation Act of
1990 (NAGPRA),
C C N H P d e t e r m i n e d t h a t the
Navajo N a t i o n s h o u l d be i n c l u d e d i n its list o f

Native A m e r i c a n tribes d e e m e d t o be c u l t u r a l l y
affiliated w i t h the prehistoric inhabitants o f
Chacoan sites. T h i s d e t e r m i n a t i o n m e a n t t h a t
the Navajo, like the Pueblo and H o p i tribes o f
the r e g i o n w h o h a d already b e e n considered
descendants, can legally c l a i m possession o f
h u m a n remains and artifacts w i t h i n the Park.
T h i s f i n d i n g has p r o d u c e d a series o f protests
f r o m the H o p i and m o s t o f the Pueblo tribes, as
w e l l as c r i t i c i s m f r o m the Society for A m e r i c a n
Archaeology.
Notes
104
1.
Rothman 1989, 23.
2.
NPS
1985,4-
Period of Occupation
A p p e n d i x B:
Resource Classification
Score 5: Anasazi
Score 4: Paleo-Indian, Archaic, and Navajo 1750-1900;
T h i s scoring system was developed t o d e t e r m i n e
u n k n o w n A n a s a z i o r Archaic
the relative i m p o r t a n c e o f resources after the

a d d i t i o n o f n e w lands t o the Park as a result o f
the 1980 legislation. A l t h o u g h i t was n o t i n t e n d e d
t o be used as a r a n k i n g o f resources, i t does seem
Score 2: Navajo 1900-45 and u n k n o w n ; historic pre-1900;

u n k n o w n N a v a j o o r historic
Score 1: U n k n o w n
t o indicate the relative value a t t r i b u t e d t o

resources o n the basis o f c u l t u r a l affiliations, site
type, and date. T h e i n f o r m a t i o n was taken
from
NPS 1985,119-29.
Cultural Affiliation
Score 5: Anasazi
Score 4: Archaic, Paleo-Indian, and u n k n o w n (probably
Anasazi o r Archaic)
Score 3: Navajo and u n k n o w n (probably Anasazi o r
Navajo)
Score 2: H i s t o r i c and u n k n o w n (Navajo o r historic)
Score 1: U n k n o w n
Site Type
Score 5: H a b i t a t i o n , k i v a
Score 4: H o g a n , Anasazi r o a d o r trail, signaling site, shrine
o r other ceremonial feature, Anasazi ledge u n i t ,
field house, w a t e r c o n t r o l feature, Archaic o r
Paleo-Indian c a m p
Score 3: A r t i f a c t scatter; otherArchaic o r Paleo-Indian;
campAnasazi, Navajo, historic, o r u n k n o w n ;
r o c k art; storage site
Score 2: B a k i n g pit; Anasazi o r u n k n o w n hearth; Navajo
o r historic ledge u n i t ; b u r i a l ; r a n c h c o m p l e x
Score 1: Road o r trailNavajo o r historic; a n i m a l hus
b a n d r y feature; sweathouse; oven; q u a r r y ; cairn;
otherNavajo o r historic; o t h e r u n k n o w n ;
unknown
APPENDIX B
105
A p p e n d i x C:
M a n a g e m e n t P r i o r i t i e s off CCNHP
in 2 0 0 1
M a k i n g m u s e u m collections m o r e accessible t o
researchers b y p r o v i d i n g i n f o r m a t i o n o n m u s e u m
holdings i n a v a r i e t y o f formats
U p d a t i n g m u s e u m exhibits t o p r o v i d e m o r e accu
Source: NPS
2002b,
pt.
rate i n f o r m a t i o n t o visitors about the c u r r e n t
4,3-5.
u n d e r s t a n d i n g o f the Park's c u l t u r a l resources

S u m m a r y o f C u l t u r a l Resources P r i o r i t i e s
U p d a t i n g all site records and maps t o p r o v i d e
S u m m a r y o f N a t u r a l Resources P r i o r i t i e s
accurate i n f o r m a t i o n o n the resources m a n a g e d

b y the Park
I n i t i a t i n g studies a n d m o n i t o r i n g t o gather data

for use i n developing a m a n a g e m e n t p l a n for the
D e v e l o p i n g and m a n a g i n g NPS and GIS data
Park's p i o n e e r i n g e l k h e r d
bases t o m o n i t o r Park n a t u r a l and c u l t u r a l

resources
C o n t i n u i n g studies o f Park vegetation and

w i l d l i f e t o u n d e r s t a n d Park resources a n d t h e i r
C o n d u c t i n g NPS-required c u l t u r a l resources
l o n g - t e r m recovery from p o o r range manage
studies t o i m p r o v e u n d e r s t a n d i n g a n d manage
ment prior to 1990
m e n t o f the resources
C o n d u c t i n g studies t o u n d e r s t a n d the Park's
C o m p l y i n g w i t h all laws r e g u l a t i n g activities o n
ecological significance a n d its r o l e i n c o n s e r v i n g
federal lands and c o n s u l t i n g w i t h c u l t u r a l l y
r e g i o n a l biodiversity
affiliated tribes o n Park m a n a g e m e n t issues
I m p l e m e n t i n g and m o n i t o r i n g r e c o m m e n d a t i o n s
P u b l i s h i n g final reports o n past archaeological
from research studies t o effectively manage n a t u
projects t o m a k e the data available t o the general
r a l resources
public
C o n t i n u i n g the site preservation backfilling p r o
C o n t i n u i n g d e v e l o p m e n t o f the n i g h t sky m o n i
toring program
g r a m t o p r o t e c t archaeological sites for the f u t u r e
erosion threats t o c u l t u r a l sites and t o preserve
c o n d u c t regular, cyclic preservation treatments t o
riparian habitats and biodiversity
prevent catastrophic site loss
C o n d u c t i n g baseline site c o n d i t i o n assessments

and c o m p l e t i n g architectural d o c u m e n t a t i o n as
required
C o m p i l i n g the b a c k l o g o f preservation records

and p r e p a r i n g annual reports d o c u m e n t i n g site
preservation treatments
G a i n i n g m u s e u m c o l l e c t i o n accountability
t h r o u g h the d e v e l o p m e n t and i m p l e m e n t a t i o n o f
m u s e u m m a n a g e m e n t plans and t h r o u g h reduc
i n g the b a c k l o g o f uncataloged objects a n d
archives
Preserving m u s e u m collections b y p r o p e r l y con

serving and s t o r i n g objects and archives and
h o u s i n g t h e m i n facilities that m e e t federal and
NPS standards
106
D e v e l o p i n g h y d r o l o g y data as needed t o manage
D e v e l o p i n g preventative maintenance plans t o
Survey these resources t o d e t e r m i n e w h i c h pos
Appendix D:
Summary of Legislation
P e r t i n e n t t o CCNHP
sess exceptional value as c o m m e m o r a t i n g o r i l l u s t r a t i n g

the h i s t o r y o f the U n i t e d States;
C o n d u c t the research necessary t o get accurate
i n f o r m a t i o n o n these resources;
Antiquities
Act of 1906 {U.S.
Code,
v o l . 1 6 , sees. 4 3 1 - 3 3 ) 1 9 0 6
Enter i n t o contracts, associations, partnerships,

etc., w i t h appropriate organizations o r individuals
T h i s act was passed t o p r o t e c t archaeological resources
(bonded) t o protect, preserve, m a i n t a i n , etc., any historic
f r o m damage o r d e s t r u c t i o n at the hands o f looters, ama
o r ancient b u i l d i n g , site, etc., used i n c o n n e c t i o n w i t h
t e u r archaeologists, and curious visitors. T h e act specified
p u b l i c use.
that u n a u t h o r i z e d excavation o f any historic o r prehis
Further, i t establishes the NPS A d v i s o r y B o a r d
t o r i c r u i n m a y be punishable b y fine a n d / o r j a i l . I t gave
and A d v i s o r y C o u n c i l t o assist the director i n i d e n t i f y i n g
the president the a u t h o r i t y t o p r o c l a i m as n a t i o n a l m o n u
sites for NPS n o m i n a t i o n , i n m a n a g i n g those sites, and i n
ments l a n d m a r k s o f historic o r prehistoric interest. I t
g a t h e r i n g i n f o r m a t i o n f r o m the m o s t qualified experts o n
n a m e d the federal departments that m i g h t issue p e r m i t s
the matters w i t h i n t h e i r p u r v i e w .
for p r o p e r research o n federal lands and a l l o w e d that fur

ther constraints o n such activity c o u l d be issued b y these
National
(NHPA)
departments.
sees.
National
(U.S.
Park
Service
Organic
Act
Code, v o l . 1 6 , sees. 1-4)1916
Historic
Preservation
as Amended
Act of 1966
(U.S. Code, v o l . 1 6 ,
470ff.)1966
T h i s act declares the r e c o g n i t i o n o f the federal govern

m e n t o f the i m p o r t a n c e o f historic places t o the q u a l i t y o f
T h i s act established the NPS and p r o v i d e d its mandate,
life i n the U n i t e d States and declares a c o m m i t m e n t t o the
stating t h a t i t "shall p r o m o t e a n d regulate the use o f the
preservation o f the historical and c u l t u r a l foundations o f
federal areas k n o w n as n a t i o n a l parks, m o n u m e n t s , and
the n a t i o n as a l i v i n g p a r t o f its c o m m u n i t y life and devel
reservations hereinafter specified b y such means and
o p m e n t , i n order t o give a sense o f o r i e n t a t i o n t o the
measures as c o n f o r m t o the f u n d a m e n t a l purposes o f the
A m e r i c a n people. I t states that ' A l t h o u g h the m a j o r bur
said parks, m o n u m e n t s , and reservations, w h i c h purpose
dens o f historic preservation have been b o r n e and m a j o r
is t o conserve the scenery and the n a t u r a l and historic
efforts i n i t i a t e d b y private agencies and individuals, and
objects and the w i l d l i f e therein, a n d t o p r o v i d e for the
b o t h s h o u l d c o n t i n u e t o play a v i t a l role, i t is nevertheless
e n j o y m e n t o f the same i n such m a n n e r and b y such
necessary and appropriate for the Federal G o v e r n m e n t t o
means as w i l l leave t h e m u n i m p a i r e d for the e n j o y m e n t o f
accelerate its historic preservation p r o g r a m s and activi

ties, t o give m a x i m u m encouragement t o agencies and
future generations."
T h e director o f the NPS is g i v e n considerable lati
individuals u n d e r t a k i n g preservation b y private means,
tude i n this legislation for g r a n t i n g privileges, leases, and
and t o assist State and local governments and the N a t i o n a l
p e r m i t s t o use the l a n d o r its resources, p r o v i d e d that the
T r u s t for H i s t o r i c Preservation i n the U n i t e d States t o

expand and accelerate t h e i r historic preservation p r o
grantees are satisfactorily qualified.
g r a m s and activities." Further, i t makes clear that the fed

Historic
(U.S.
eral g o v e r n m e n t has a s t r o n g interest t o p r o v i d e leader
Sites Act of 1935
Code, v o l . 1 6 , sees.
461-67)1935
ship i n the preservation o f the prehistoric and historic

resources o f the U n i t e d States and o f the i n t e r n a t i o n a l
T h i s l a w declares the n a t i o n a l p o l i c y t o preserve for p u b l i c
c o m m u n i t y o f nations and i n the a d m i n i s t r a t i o n o f the
use historic sites, buildings, and objects o f n a t i o n a l
n a t i o n a l preservation p r o g r a m i n partnership w i t h states,
significance for the i n s p i r a t i o n and benefit o f the people o f
I n d i a n tribes, Native Hawaiians, and local governments.
the U n i t e d States. T h e NPS director, o n b e h a l f o f the sec
T w o sections are p a r t i c u l a r l y p e r t i n e n t t o archaeological
retary o f the interior, shall ensure that the f o l l o w i n g func
resources such as those at C C N H P :
tions are u n d e r t a k e n :
M a k e , organize, and preserve graphic, p h o t o
SECTION 106 REGULATIONS
graphic, and narrative data o n historic and archaeological
T h i s section requires federal agencies t o take i n t o account
sites, buildings, and objects;
the effects o f t h e i r undertakings o n historic properties and
APPENDIX D
107
afford the A d v i s o r y C o u n c i l a reasonable o p p o r t u n i t y t o
their historic, archaeological, architectural, and c u l t u r a l
c o m m e n t o n such undertakings. T h e procedures define
values;
h o w agencies m e e t these s t a t u t o r y responsibilities. T h e
Properties n o t u n d e r agency j u r i s d i c t i o n b u t
"106 Process" seeks t o a c c o m m o d a t e historic preservation
p o t e n t i a l l y affected b y agency actions are t o be f u l l y con
concerns w i t h the needs o f federal undertakings, t h r o u g h
sidered i n agency p l a n n i n g ;
c o n s u l t a t i o n early i n the p l a n n i n g process w i t h the agency
Preservation-related activities m u s t be carried o u t
official and o t h e r parties w i t h an interest i n the effects o f
i n c o n s u l t a t i o n w i t h o t h e r federal o r state agencies, Native
the u n d e r t a k i n g o n historic properties. T h e goal o f con
A m e r i c a n tribes, and the private sector;
s u l t a t i o n is t o identify historic properties p o t e n t i a l l y
Procedures for compliance w i t h section 1 0 6 o f
affected b y the u n d e r t a k i n g ; assess its effects; and seek
the same act are t o be consistent w i t h regulations issued
ways t o avoid, m i n i m i z e , o r m i t i g a t e any adverse effects
b y the A d v i s o r y C o u n c i l .
o n historic properties. T h e agency official m u s t c o m p l e t e
Agencies m a y n o t g r a n t assistance o r a license
this process p r i o r t o a p p r o v i n g the expenditure o f federal
t o an applicant w h o damages o r destroys historic p r o p
funds o n the w o r k o r before any p e r m i t s are issued.
e r t y w i t h the i n t e n t o f a v o i d i n g the requirements o f
T h e regulations that i m p l e m e n t section 1 0 6
section 1 0 6 .
define the appropriate participants and the professional

and practical standards t h e y m u s t meet; they also describe
Archaeological
the c o m p o n e n t s o f the process necessary t o c o m p l y w i t h
Act of 1974
the National Historic Protection Act, i n c l u d i n g the
469ff.)1974
identification and r e c o r d i n g o f historic properties; an

assessment o f threats, p o t e n t i a l l y adverse effects, and
readiness for emergencies; consequences o f failure t o
resolve such threats; and the appropriate k i n d s o f consul
t a t i o n required.
SECTION 110 REGULATIONS
and
Historic
Preservation
[U.S. Code, v o l . 1 6 , sees.
S u p p o r t i n g earlier legislation, this act specified t h a t i t was

federal p o l i c y t o require the preservation, t o the extent
possible, o f historical and archaeological data threatened
b y d a m c o n s t r u c t i o n o r alterations o f t e r r a i n . I t includes
the preservation o f data, relics, and specimens t h a t m i g h t
be lost o r destroyed as the result o f f l o o d i n g , r o a d con
Section n o sets o u t the historic preservation responsibili
s t r u c t i o n , o r construction-related activity, b y any U.S.
ties o f federal agencies; i t is i n t e n d e d t o ensure that his
agency o r b y someone licensed b y such an agency, o r b y
t o r i c preservation is fully i n t e g r a t e d i n t o the o n g o i n g p r o
any a l t e r a t i o n o f the t e r r a i n caused b y a federal construc
g r a m s o f all federal agencies.
t i o n project o r federally licensed activity.
T h e guidelines that accompany this act s h o w h o w
It requires the n o t i f i c a t i o n o f the secretary o f the
federal agencies s h o u l d address the various o t h e r require
i n t e r i o r i f any such damage is possible, i n advance o f the
m e n t s and guidelines i n c a r r y i n g o u t t h e i r responsibilities
start o f such a project, so that the appropriate m i t i g a t i n g
u n d e r the act. T h e head o f each federal agency, acting
action c o u l d be i n i t i a t e d (research, salvage, recovery, doc
t h r o u g h its preservation officer, s h o u l d b e c o m e familiar
u m e n t a t i o n , etc.). T o reduce the b u r d e n o n contractors,
w i t h the statutes, regulations, a n d guidelines that bear
landowners, and o t h e r citizens, this l a w requires the secre
u p o n the agency's historic preservation p r o g r a m r e q u i r e d
t a r y o f the i n t e r i o r t o initiate such w o r k w i t h i n sixty days
b y section n o .
o f n o t i f i c a t i o n and t o compensate the o w n e r for the t e m
T h e section also requires that all federal agencies

establish a preservation p r o g r a m for the identification,
p o r a r y loss o f use o f the land, i f necessary. I t also specifies

the r e p o r t i n g procedures t o be used, disposition o f recov
evaluation, n o m i n a t i o n t o the n a t i o n a l register, and p r o
ered materials, a n d the c o o r d i n a t i o n o f such w o r k at the
t e c t i o n o f historic properties. Each federal agency m u s t
n a t i o n a l level, a n d r e c o m m e n d s f o l l o w - u p procedures i n
consult w i t h the secretary o f the i n t e r i o r ( t h r o u g h the
order t o assess the need for a n d success o f this p r o g r a m .
director o f the NPS) i n establishing its preservation p r o

grams. Each m u s t use historic properties available t o i t i n
American
c a r r y i n g o u t its responsibilities. Benchmarks i n this
1978
respect include the f o l l o w i n g :
1978
A n agency's historic properties are t o be m a n a g e d

and m a i n t a i n e d i n a w a y that considers the preservation o f
108
(U.S.
Indian
Religious
Freedom
Code, v o l . 4 2 , sec.
Act
of
1996)
This act states that " i t shall be the p o l i c y o f the U.S. t o pro
tect and preserve for A m e r i c a n Indians their inherent r i g h t
o f freedom t o believe, express, and exercise the traditional
Agencies are r e q u i r e d t o consult w i t h Congress and t o
religions o f the A m e r i c a n Indian, E s k i m o , A l e u t , and
solicit and consider the v i e w s and suggestions o f o t h e r
Native Hawaiians, i n c l u d i n g b u t n o t l i m i t e d t o access t o
stakeholders and customers w h o are p o t e n t i a l l y affected
sites, use, and possession o f sacred objects and the freedom
by the p l a n .
to w o r s h i p t h r o u g h ceremonials and traditional rites."
Performance plans are done o n a yearly basis,

covering the agency's fiscal year. L i n k e d w i t h the strategic
The Archaeological
Act of 1979
Resources
[U.S. Code, v o l . 1 6 ,
Protection
sec.
p l a n c u r r e n t l y i n effect, p e r f o r m a n c e plans m u s t include

the goals for the fiscal year; a description o f the processes
470aa-mm) 1979
and skills and o f the technology, h u m a n , capital, and

i n f o r m a t i o n resources needed t o m e e t the goals; and
T h i s act secures the p r o t e c t i o n o f archaeological

resources and sites o n p u b l i c lands and I n d i a n lands, and
fosters increased c o o p e r a t i o n and exchange o f i n f o r m a
t i o n b e t w e e n g o v e r n m e n t a l authorities, the professional
archaeological c o m m u n i t y , and private individuals h a v i n g
collections o f archaeological resources and data o b t a i n e d
before 31 O c t o b e r 1 9 7 9 .
a description o f h o w the results w i l l be verified and

validated.
Performance reports, prepared at the e n d o f
each year, detail the agency's achievements t o w a r d the
a c c o m p l i s h m e n t o f the annual goals set o u t i n the per
f o r m a n c e plan.
It requires that any investigation a n d / o r r e m o v a l

o f archaeological resources o n p u b l i c o r I n d i a n lands be
c o n t i n g e n t o n a qualified applicant o b t a i n i n g a p e r m i t .
T h e successful application m u s t demonstrate that the
w o r k is i n the p u b l i c interest, that recovered materials w i l l
r e m a i n U.S. p r o p e r t y (curated b y an appropriate institu
t i o n ) , and that the w o r k p r o p o s e d is consistent w i t h the
larger m a n a g e m e n t goals o f the lands i n question. O t h e r
requirements include t r i b a l notification, r e p o r t i n g , over
sight, deadlines, p r o h i b i t e d acts, and confidentiality,
a m o n g others.
Government
Performance
Act of 1993
{U.S. Statutes
and
Results
at Large
107
[ 1 9 9 3 ] : 2 8 5 ; Public L a w 1 0 3 - 6 2 )
T h i s act requires federally f u n d e d agencies t o develop and
i m p l e m e n t accountability systems based o n goal setting
and performance m e a s u r e m e n t and t o r e p o r t o n t h e i r
progress i n b o t h p l a n n i n g and results i n the b u d g e t a r y
process. T h e act was created t o address a b r o a d range o f
concerns about g o v e r n m e n t accountability and p e r f o r m
ance, w i t h the goal o f i m p r o v i n g citizens' confidence i n
the g o v e r n m e n t b y forcing accountability i n the manage
rial and i n t e r n a l w o r k i n g s o f federal agencies. A l l partici
p a t i n g agencies m u s t c o m p l e t e three documents: a strate
gic plan, a p e r f o r m a n c e plan, and a performance r e p o r t .
Strategic plans, issued every three t o five years,
m u s t include a comprehensive m i s s i o n statement, a
description o f general goals and objectives and h o w these
w i l l be achieved, identification o f key factors that c o u l d
affect achievement o f the general goals and objectives,
and a description and schedule o f p r o g r a m evaluations.
APPENDIX D
109
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continue scientific research w i t h i n those specified parcels. This statute
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. 1968. Carlson-Foley Act of 1968 (noxious plant control), sec. 1241;
Public Law 90-583.
. 1969. National Environmental Policy Act of 1969 (NEPA). Vol. 42, sees.
4321-47. http: / /ceq.eh.doe.gov/nepa/regs/nepa/nepaeqia.htm (12
Feb. 2003).
. 1979. Archaeological Resources Protection Act (ARPA). Vol. 16, sec.

47oaa-mm.
. 1980. US. Statutes at Large 94:3228; Public Law 96-550, title v, sec.
503. Note: This act passed by the U.S. Congress provides for the estab
lishment o f Chaco Culture National Historical Park as well as for t h i r t y
Chaco Culture Archeological Protection Sites and the abolishment o f
Chaco Canyon National M o n u m e n t , http: / / w w w 4 . 1 a w .
cornell.edu/uscode/16/410ii-5.html (12 Feb. 2003).
. 1990. Native American Graves Protection and Repatriation Act
(NAGPRA). Vol. 25, sec. 32; Public Law 101-601. http: / / www.cr.nps.gov/
nagpra/index.htm (as o f 12 Feb. 2003) and http: / / www.cast.uark.edu/
o t h e r / n p s / n a g p r a / n a g p r a . d a t / l g m o o 3 . h t m l (12 Feb. 2003).
. 1995. Chacoan Outliers Protection Act of 1995. US. Statutes at Large
109 (1995): 158; Public Law 104-11. Note: The act added nine new o u t l y i n g
sites and removed four formerly designated outlier sites as Chaco
Culture Archeological Protection Sites. These changes increased the
total number o f outliers t o thirty-nine, totaling 14,372 acres, and
. 1983. Chaco Archeological Protection Site System: Joint Manage

ment Plan. NPS.
. 1984. W o r l d Heritage List N o m i n a t i o n Submitted by the United
States o f America, Chaco Culture National Historical Park. NPS.
. 1985. General Management Plan/Development Concept Plan,
Chaco Culture National Historical Park, N e w Mexico. NPS.
. 1988. Resource Management Plan: Chaco Culture National
Historical Park. NPS.
. 1990a. Chaco Culture Archeological Protection Site System Joint
Management Plan: Plan Amendment. NPS.
. 1990b. Chaco Culture National Historical Park temporarily closes
Fajada Butte. News release, 19 March. NPS. Note: A copy o f this news
release is contained i n app. B o f Stoffle et al. 1994.
. 1991. Statement for Interpretation and I n t e r i m Interpretive
Prospectus: Chaco Culture National Historical Park, Chaco Canyon,
N e w Mexico. NPS.
. 1994. NPS 28: Cultural Resource Management Guidelines.
Release N o . 4. NPS.
. 1995. Resource Management Plan: Chaco Culture National
Historical Park. NPS.
. 1996. Protection o f Casa Rinconada Interior: Environmental
Assessment: Chaco Culture National Historical Park. NPS.
. 1997a. Director's Order N o . 28: Cultural Resource Management
Guidelines. Release N o . 5. NPS.
. 1997b. Finding o f N o Significant Impact: Protection o f Casa Rin
conada Interior: Chaco Culture National Historical Park. NPS, 30 June.
. 1999. Chaco Culture National Historical Park, San Juan County,
N e w Mexico; Fajada Butte closure. Federal Register 64 (48). Washington,
D.C.: U.S. Government Printing Office, 12 March.
. 2000a. Management Policies 2001. NPS. Note: The report's intro
duction states that "this volume is the basic service-wide policy docu
ment o f the National Park Service." It includes sections concerning
park system planning, land protection, natural resource management,
cultural resource management, wilderness preservation and manage
ment, and interpretation and education. The document also includes a
glossary and appendices containing references to laws cited i n the text
and relevant executive orders, memoranda, and director's orders,
h t t p : / / w w w . n p s . g o v / p o l i c y / m p / p o l i c i e s . p d f (12 Feb. 2003).
. 2000b. National Park Service Strategic Plan, FY2001-FY2005.
NPS. http: / /planning.nps.gov/document/NPS%5Fstrategic%
5 F p l a n % 2 E p d f (12 Feb. 2003).
. 2001a. Chaco Culture National Historical Park Annual Perfor

mance Plan: Fiscal Year 2002. NPS.
. 2001b. Director's Order N o . 12: Conservation Planning,
extended their geographic scope outside the San Juan Basin,
Environmental Impact Analysis, and Decision-Making. NPS.
http: / /www.nps.gov/legal/laws/ 1 0 4 t h / 104-ii.pdf (12 Feb. 2003).
h t t p : / / w w w . n p s . g o v / p o l i c y / D O r d e r s / D O r d e r 1 2 . h t m l ( 1 2 Feb. 2003).
U.S. National Park Service (NPS). 1979. Chaco Canyon National M o n u

ment: General Management Plan/Development Concept Plan. NPS.
. 1982. NPS 12: National Environmental Policy Act
Guidelines. NPS.
. 2001c. Chaco Culture National Historical Park. Superintendent's

C o m p e n d i u m (Site Specific Rules and Regulations). NPS.
. 2002a. Chaco Culture National Historical Park Annual Perfor
mance Plan, Fiscal Year 2002. NPS.
REFERENCES
I I I
. 2002b. Chaco Culture National Historical Park Resource Manage

ment Plan (Draft). NPS, 10 Jan.
U.S. President. 1907. Proclamation 740. U.S. Statutes at Large 35: 2119,11
March. Note: This proclamation by U.S. President Theodore Roosevelt
created Chaco Canyon National M o n u m e n t .
. 1928. Proclamation 1826. U.S. Statutes at Large 45: 2937,10 Jan.
Note: This presidential proclamation by U.S. President Calvin Coolidge
extended the boundaries o f Chaco Canyon National M o n u m e n t .
. 1977. Executive Order 11987, "Exotic Organisms." 24 May.
http.7 / envirotext.eh.doe.gov/data/eos/carter/
19770524.html
(12 Feb. 2003).

Winks, R. W 1997. The National
Park Service Act of 1916: "A contradictory
mandate"? Denver University Law Review 74 (3): 575-620.

Wozniak, F. E., D . Brugge, and C. Lange, eds. 1993. A n Ethnohistorical
Summary o f Ceremonial and Other Traditional Uses o f Fajada Butte
and Related Sites at Chaco Culture National Historical Park. N e w Mex
ico Historic Preservation Division, Santa Fe. Note: This document was
prepared for the N e w Mexico Historic Preservation Division under an
intergovernmental agreement w i t h the Southwest Regional Office o f
the U.S. National Park Service, w h i c h funded the study.
112
Rachael
Anderson
Petuuche
Gilbert
Vanishing Treasures A r c h a e o l o g i s t
Tribal Councilman
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l Park
A c o m a Pueblo
N a t i o n a l Park Service
TaftBlackhorse
Joyce Raab
Archivist
Navajo N a t i o n Chaco Sites P r o t e c t i o n P r o g r a m
Navajo N a t i o n H i s t o r i c Preservation D e p a r t m e n t
Russell
James
Bodnar
Ramakka
C h i e f o f Interpretations
C h i e f o f N a t u r a l Resources M a n a g e m e n t
Wendy Bustard
Virginia
Salazar
Museum Curator
Regional C u r a t o r
I n t e r m o u n t a i n S u p p o r t Office-Santa Fe
G. B. Cornucopia
Richard
Park G u i d e
Historian
Jill Cowley
Brad
H i s t o r i c a l Landscape A r c h i t e c t
N a t u r a l Resources P r o g r a m M a n a g e r
Sellars
Shattuck
Dabney Ford
C. T. Wilson
C h i e f o f C u l t u r a l Resources M a n a g e m e n t
Superintendent
Richard
Friedman
M c K i n l e y C o u n t y GIS Center
N e w Mexico
PERSONS C O N T A C T E D D U R I N G T H E D E V E L O P M E N T OF T H E CASE
113
Port Arthur Historic Site

Randall Mason, David Myers,
and Marta de la Torre
T h i s case study l o o k s at the m a n a g e m e n t o f P o r t A r t h u r

H i s t o r i c Site i n Australia. Since 1987 the g o v e r n i n g b o d y
W e sincerely t h a n k all those w h o have p a t i e n t l y

and generously c o n t r i b u t e d t h e i r t i m e and ideas, those
has been the P o r t A r t h u r H i s t o r i c Site M a n a g e m e n t
w h o have h e l p e d us focus o u r interpretations, a n d those
A u t h o r i t y ( P A H S M A ) , a g o v e r n m e n t business enterprise
w h o o t h e r w i s e assisted us i n o u r f i e l d w o r k and research.
created b y the Tasmanian State g o v e r n m e n t . C o n s e r v a t i o n
D i g i t a l r e p r o d u c t i o n s o f the f o l l o w i n g supple
and stewardship o f P o r t A r t h u r as a heritage site are the
m e n t a r y d o c u m e n t s are c o n t a i n e d w i t h i n the accompany
p r i m a r y objective o f P A H S M A , w h i c h i n m a n a g i n g the site
i n g C D - R O M : B r o a d A r r o w Cafe C o n s e r v a t i o n Study
also m u s t take i n t o consideration financial viability.

T h e f o l l o w i n g section describes the site o f P o r t
A r t h u r itselfits geographic situation, history, and evolu
t i o n as a heritage siteas w e l l as its c o n t e m p o r a r y fea
tures, partnerships, infrastructure, and facilities. I t t h e n
discusses the m a n a g e m e n t context i n w h i c h P A H S M A
operates, i n c l u d i n g its relationship t o state and c o m m o n
w e a l t h g o v e r n m e n t s and heritage organizations.
T h e next section examines the identification and
m a n a g e m e n t o f the values o f the site and is s t r u c t u r e d
a r o u n d the three research questions established for the
case studies: (1) H o w are the values associated w i t h the
site identified?; (2) W h a t is t h e i r place i n m a n a g e m e n t
policies?; and (3) W h a t i m p a c t is the actual m a n a g e m e n t
o f the site h a v i n g i n the values?
I n the c o n c l u d i n g section, several didactic
themes are addressed, i n c l u d i n g the balancing o f c u l t u r a l
and e c o n o m i c values, the i m p l i c a t i o n s o f P A H S M A s par
ticular i n s t i t u t i o n a l arrangements, and the i m p a c t o f its
B u r r a Charter-based conservation p l a n n i n g process o n
site values.
T h i s case study is the result o f m a n y h o u r s o f
research, i n t e r v i e w s , site visits, extensive consultation,
and frank discussion. T h e staff and b o a r d o f P A H S M A
have b e e n e x t r e m e l y h e l p f u l i n the research, p r o d u c t i o n ,
and r e f i n e m e n t o f this study. T h e y have b e e n f o r t h c o m i n g
and generous and have participated energetically i n
the discussions that t o o k place d u r i n g the Steering C o m
mittee's visit t o P o r t A r t h u r i n January 2002, and later
b y correspondence.
I n p r e p a r i n g this case study, the authors consulted
the extensive d o c u m e n t a t i o n p r o d u c e d b y P A H S M A and
previous m a n a g i n g authorities as w e l l as sources from
elsewhere i n Australia.
Il6
PORT A R T H U R HISTORIC SITE
(1998); P o r t A r t h u r H i s t o r i c Site C o n s e r v a t i o n Plan, v o l

u m e s 1 and 2 (2000); and P A H S M A A n n u a l R e p o r t 2001.
Management Context and History of Port Arthur

Historic Site
Geographic Description
I n the seventeenth and eighteenth centuries, England

i m p l e m e n t e d a p o l i c y under w h i c h convicted criminals
were sent t o Australia t o serve o u t their sentences and be
r e f o r m e d t h r o u g h w o r k . Prisons, support c o m m u n i t i e s ,
and small industries were established i n Australia t o p u n
ish, employ, and equip the i n c o m i n g convict p o p u l a t i o n .
Port A r t h u r was t o be the center o f this n e w convict sys
t e m , organized i n the r e m o t e area n o w k n o w n as the
Tasman Peninsula. There, repeat offenders and the recal
citrant served o u t their t e r m s o f t e n life sentences at
h a r d labor.
N o w i n a r u i n e d state, P o r t A r t h u r is o f great
significance t o c o n t e m p o r a r y Australians, particularly
Tasmanians. T h e site is one o f the best-known symbols
Figure 3.1. Map o f Australia. Port A r t h u r is located on the island o f
Tasmania, south o f the Australian mainland.
o f the era o f "convictism," w h i c h played such a formative

role i n Australia's h i s t o r y and identity.
Australia's o n l y island state, Tasmania is located
south o f Australia, separated from the m a i n l a n d b y Bass
Strait. I n designating a site for its penal colony, England
chose the Tasman Peninsula for its remoteness and isola
t i o n . T h e peninsula is connected t o m a i n l a n d Tasmania
Figure 3.2. The Tasman Peninsula, located at the southeast end
Figure 3.3. The location o f Port A r t h u r and seven other prominent
of Tasmania.
convict heritage sites.
117
b y a slender i s t h m u s k n o w n as E a g l e h a w k N e c k , w h i c h is
east coast o f N e w H o l l a n d (Australia) a n d its adjacent
less t h a n 30 meters (33 yards) w i d e . Aside from this n a r r o w
islands as t h e colonies t h a t w o u l d receive t r a n s p o r t e d
l a n d l i n k , the T a s m a n Peninsula is s u r r o u n d e d e n t i r e l y b y
criminals. T h e first fleet t h a t sailed from E n g l a n d the fol
water. D i r e c t l y t o the s o u t h is the s o u t h e r n Pacific Ocean,
l o w i n g year t o settle the A u s t r a l i a n state o f N e w S o u t h
a n d t o the east is the T a s m a n Sea. T o the west a n d n o r t h is
Wales carried a significant n u m b e r o f convicts. I n 1790,
a series o f bays, some sheltered from the o p e n ocean. O n e
G o v e r n o r P h i l l i p o f N e w S o u t h Wales i n t r o d u c e d the
o f these p r o t e c t e d , deep harbors was d u b b e d P o r t A r t h u r .
p o l i c y o f assigning convicts as i n d e n t u r e d laborers o r
Its l o c a t i o n o n the peninsula m a d e i t ideal for the con

s t r u c t i o n o f a penal settlement i n large p a r t because i t
w o u l d p r o v i d e a p o r t for o c e a n g o i n g vessels t r a v e l i n g
across S t o r m Bay t o a n d from H o b a r t , the center o f colo
n i a l g o v e r n m e n t i n Tasmania. Today, H o b a r t is Tasma
nia's capital and remains an i m p o r t a n t p o r t i n its o w n
r i g h t . B y r o a d , P o r t A r t h u r is a p p r o x i m a t e l y 100 k i l o m e
ters (62 miles) from H o b a r t ; b y m o d e r n boat, the t r i p
takes b e t w e e n three a n d f o u r h o u r s .
P o r t A r t h u r has a t e m p e r a t e a n d w e t c l i m a t e .
T h e area's p l e n t i f u l r a i n once s u p p o r t e d l u s h v e g e t a t i o n ,
i n c l u d i n g forests d o m i n a t e d b y v a r i o u s species o f native
Figure 3.4. View o f the church and Mason Cove, 1873. Photo: Courtesy
W. L. Crowther Library, State Library o f Tasmania.
eucalypt. Today, m u c h o f this native v e g e t a t i o n has

b e e n cleared a n d replaced b y grass a n d E u r o p e a n decid
u o u s trees.
H i s t o r y of Settlement a n d Use
P o r t A r t h u r is a c o m p l e x a n d r i c h heritage site. D o z e n s
o f b u i l d i n g s o c c u p y the site, some i n r u i n s , some restored
as m u s e u m s , others adapted for reuse i n a v a r i e t y o f ways.
Some structures date f r o m the c o n v i c t p e r i o d (1830-77),
a n d others represent later eras. T h e site is also r i c h i n
archaeological resources.
PRE-CONVICT PERIOD
A b o r i g i n a l peoples are believed t o have i n h a b i t e d the
Figure 3.5. View o f the church and Mason Cove, 2002. Photo: David Myers
island o f Tasmania for at least 36,000 years p r i o r t o the

arrival o f the first Europeans i n the mid-seventeenth cen
tury. D u t c h n a v i g a t o r A b e l T a s m a n l e d t h e first E u r o p e a n
e x p e d i t i o n t o Tasmania i n 1642 a n d n a m e d the island V a n
D i e m e n s L a n d after his sponsor, the governor-general o f
the D u t c h East India C o m p a n y .
C O N V I C T PERIOD AND C O N V I C T I S M
U n d e r the B r i t i s h E m p i r e , the c o n v i c t system was for

m a l l y i n i t i a t e d t h r o u g h the Transportation Act o f 1717,
w h i c h stated t h a t the "labor o f c r i m i n a l s i n the colonies
w o u l d benefit the n a t i o n . " C o n v i c t s w e r e once a u c t i o n e d
t o B r i t i s h colonists i n N o r t h A m e r i c a , b u t the A m e r i c a n
R e v o l u t i o n p u t an e n d t o this practice. I n D e c e m b e r 1786,
Orders i n C o u n c i l identified, a m o n g o t h e r territories, the
Figure 3.6. The penitentiary building, the largest and most p r o m i n e n t
structure from the convict period. Photo: Marta de la Torre
Il8
s e r v a n t s t o free s e t t l e r s . P h i l l i p b e l i e v e d t h a t p r o v i d i n g
in Australia changed markedly. T h e committee
convict labor for ap e r i o d o f t w o years at the e x p e n s e o f
replacing the assignment system with an e w
approach
the C r o w n w o u l d e n c o u r a g e settlers to the area. T h e
k n o w n as the p r o b a t i o n system. C o m m i t t e e
members
practice soon spread throughout the colony and
believed n e w convicts should complete various stages of
k n o w n as the a s s i g n m e n t
became
incarceration and labor and eventually earn their
system.
I n 1803, G o v e r n o r K i n g o f N e w S o u t h W a l e s s e n t
a
fleet,
proposed
through g o o d behavior. U n d e r the n e w system,
freedom
newly
transported prisoners w o u l d initially s p e n d aportion o f
w h i c h i n c l u d e d convicts, to establish the first
British settlement in V a n Diemen's L a n d (Tasmania) near
their sentences w o r k i n g at ap r o b a t i o n station. T h e y t h e n
the present city o f H o b a r t . K i n g h a d c h o s e n the island to
w o u l d be o r g a n i z e d into g a n g s to w o r k o n roads, to clear
w a r d off the threat o f F r e n c h settlement a n d to
land, a n d to provide agricultural labor in r e m o t e areas. T o
monitor
A m e r i c a n w h a l i n g ships. H o b a r t s o o n b e c a m e a n i m p o r
incorporate the probation system, housing for the
tant port a n d the seat of g o v e r n m e n t for the island. V a n
gangs h a d to be constructed quickly.
convict
Immediately following the adoption of the pro
D i e m e n sLand, w h i c h originally w a s not a separate

c o l o n y b u t a n o u t p o s t o f N e w S o u t h W a l e s , a n d its iso
b a t i o n s y s t e m i n 1841, V a n D i e m e n ' s L a n d w a s c h o s e n a s
lated location w e r e v i e w e d as suitable for the
the location o f several p r o b a t i o n stations to be adminis
containment
o f h a r d - c o r e convicts. T h e island's first p e n a l s e t t l e m e n t
tered
from
Port Arthur. T h e s e stations w e r e
established
w a s established at M a c q u a r i e H a r b o u r , o n the island's
at Saltwater River, the C o a l M i n e s , C a s c a d e s , a n d I m p r e s
w e s t c o a s t , i n 1821. A s e c o n d s t a t i o n w a s c r e a t e d a t M a r i a
sion Bay. A d d i t i o n a l stations w e r e set u p o n the adjacent
I s l a n d i n 1825. B o t h f a c i l i t i e s w e r e s e c o n d a r y p e n a l
Forestier Peninsula. W h e n criminal transport to
that held prisoners w h o h a d committed n e w
stations
S o u t h W a l e s c e a s e d a f t e r 1842, t h e n u m b e r o f
offenses
N e w
convicts
sent to V a n D i e m e n ' s L a n d increased significantly.
since their transport to Australia.

D e m a n d in H o b a r t for w o o d w a s high, particu
B y this time, P o r t A r t h u r h a d entered a significant
l a r l y f o r s h i p b u i l d i n g , a n d i n S e p t e m b e r 1830 t h e f i r s t c o n
period of development, m a r k e d by construction of a hos
victs w e r e sent to P o r t A r t h u r to cut timber. S o o n there
p i t a l (1842),
after, t h e island's t h i r d s e c o n d a r y p e n a l station w a s
for administrators. T h e start o f construction of the
con
structed at P o r t Arthur.
flour
m i l l a n d g r a n a r y (1842-44), a n d h o u s e s
Model
P r i s o n ( l a t e r k n o w n a s t h e S e p a r a t e P r i s o n ) i n 1848 s i g
F o l l o w i n g the closure o f the p e n a l settlements at
n a l e d a shift i n the settlement's a p p r o a c h to the a d m i n i s
M a r i a I s l a n d i n S e p t e m b e r 1832 a n d a t M a c q u a r i e H a r b o u r
tration of prisoners. T h e n e w approach was based
a m o n t h later, P o r t A r t h u r ' s population, infrastructure,
ideas
a n d i m p o r t a n c e g r e w rapidly. T h e following year, a small
eighteenth century and the beginning of the
from
on
Britain a n d the U n i t e d States at the e n d o f the

nineteenth
island within sight of Port A r t h u r w a s selected for burials.
century that prisoners should be reformed through a
T h e island, w h i c h w o u l d over time receive
r e g i m e o f t o t a l s i l e n c e a n d a n o n y m i t y . I n t h e 1820s, e x p e r
approximately
o n e t h o u s a n d interments, w a s t h e n k n o w n as D e a d
iments in separate a n d silent incarceration w e r e carried
I s l a n d . I n 1834, p r i s o n e r s ' b a r r a c k s w e r e b u i l t a n d t h e f i r s t
o u t i n the U n i t e d States, m o s t n o t a b l y at E a s t e r n State
juvenile p r i s o n in the British E m p i r e w a s c o n s t r u c t e d at
Penitentiary in Philadelphia, Pennsylvania. T h e Philadel
Point Puer, across the bay
p h i a s y s t e m w a s refined in Britain a n d later at Pentonville
from
P o r t A r t h u r . Its p u r p o s e
w a s to separate y o u n g m a l e convicts f r o m the "bad c o m
P r i s o n i n L o n d o n , w h i c h s e r v e d as the m o d e l for the
pany and example" of the adult convict population.
design o f the Separate P r i s o n at P o r t Arthur. A m o n g
Con
s t r u c t i o n b e g a n o n the s e t t l e m e n t ' s first p e r m a n e n t b u i l d

i n g s , w h i c h i n c l u d e d a c h u r c h . B y 1836, t h e s e t t l e m e n t
cells u s e d to isolate prisoners
contained almost one thousand convicts and Point Puer
i n f l u e n c e s o f o t h e r p r i s o n e r s , a n d its " d u m b cells,"
nearly three hundred boys. Port Arthur h a d b e c o m e
w h e r e i n p r o b l e m inmates w e r e deprived of light a n d
an
i m p o r t a n t industrial center, the site o f ship a n d s h o e m a n
the
s y s t e m ' s m o r e p r o m i n e n t c o m p o n e n t s w e r e its s o l i t a r y
from
the corrupting
s o u n d . T h e s e prisoners w e r e a l l o w e d outside their cells
ufacturing, lime making, saw milling, stone quarrying,
o n l y o n c e a day. T h e y w e r e f o r c e d to w e a r h o o d s to a v o i d
coal mining, brick and pottery manufacturing, leather tan
b e i n g r e c o g n i z e d b y o t h e r c o n v i c t s a n d felt slippers to
ning, and agricultural production.
muffle the s o u n d of their footsteps. O t h e r changes
A n 1838 B r i t i s h H o u s e o f C o m m o n s S e l e c t
C o m
mittee o n transportation severely criticized the arbitrari

ness of the assignment system. Consequently,
at
the settlement d u r i n g this period included the closure

o f t h e P o i n t P u e r b o y s ' p r i s o n i n 1849 a n d t h e
conversion
convictism
119
of the
flour
m i l l a n d g r a n a r y into apenitentiary
W h i t e h o u s e b r o t h e r s l a u n c h e d ab i w e e k l y
from
steamer
service b e t w e e n H o b a r t a n d N o r f o l k B a y to transport visi
1854 t o 1857.
tors to C a r n a r v o n . T w o y e a r s later, the b r o t h e r s
T h e n u m b e r o f transported convicts to V a n
Diemen's L a n d decreased over the years, and the practice
opened
the first h o t e l at t h e site o f t h e f o r m e r C o m m i s s a r i a t
f i n a l l y c e a s e d i n 1853. T h r e e y e a r s l a t e r , V a n D i e m e n s
S t o r e . I n 1893, t h e v o l u n t e e r T a s m a n i a n T o u r i s t A s s o c i a
L a n d w a s r e n a m e d T a s m a n i a . A l t h o u g h p r o b a t i o n sta
tion w a s f o r m e d to p r o m o t e a n d develop T a s m a n i a as a
tions o n the island gradually w e r e shuttered as the last
tourist destination. T h e association p r e p a r e d a n d distrib
c o n v i c t s p a s s e d t h r o u g h t h e m , P o r t A r t h u r a n d its o u t -
u t e d leaflets a b o u t C a r n a r v o n , focusing o n the scenic
stations c o n t i n u e d to o p e r a t e for s o m e t i m e . T h e settle
qualities o f t h e r e g i o n . T h e site's s o r d i d p a s t w a s r a r e l y
m e n t e v o l v e d into aw e l f a r e establishment, h o u s i n g p a u
m e n t i o n e d , a n omission that b e c a m e ar e c u r r i n g pattern
pers, invalids, a n d t h e m e n t a l l y ill, as e v i d e n c e d b y t h e
in the p r o m o t i o n o f C a r n a r v o n a n d the rest of T a s m a n i a .
c o n s t r u c t i o n o f a P a u p e r s ' M e s s i n 1864 a n d t h e a s y l u m i n
T h e 1890s a l s o w i t n e s s e d t h e o p e n i n g o f t h e P o r t A r t h u r
1868. I n 1871, c o n t r o l o v e r P o r t A r t h u r w a s t r a n s f e r r e d
M u s e u m i n H o b a r t at t h e p h o t o g r a p h y s t u d i o o f J. W
from
Beattie, w h i c h exhibited n u m e r o u s period
the British imperial to the T a s m a n i a n State govern
photographs
o f the site as w e l l as c o n v i c t - e r a relics.
ment. T h e cessation of imperial funds signaled the

impending decay of Port Arthur'sstructures. Six years
A s e r i e s o f f i r e s i n 1884,1895, a n d 1897 d e s t r o y e d
later, the P o r t A r t h u r p e n a l c o l o n y w a s finally c l o s e d
and d a m a g e d several structures. M a n y of the remaining
d o w n . T h i s e v e n t s i g n a l e d t h e e n d o f t h e free l a b o r s u p p l y
convict-era buildings w e r e gutted, including the church,
that T a s m a n i a h a d relied o n since the beginning of the
asylum, hospital, prison, a n d penitentiary. Concurrently,
n i n e t e e n t h c e n t u r y . F r o m 1830 t o 1877, m o r e t h a n 12,000
h o w e v e r , m a n y n e w buildings w e r e b e i n g constructed, as
sentences w e r e served out at the
the c o m m u n i t y around Carnarvon grew.
THE
settlement.
COMMUNITY, OR "CARNARVON," P E R I O D
After the end of convictism in Tasmania, the physical

r e m a i n s o f the convict s y s t e m w e r e often referred to as
"blots o n the landscape." R e m i n d e r s o f the island's sordid
past, they w e r e routinely d e m o l i s h e d a n d their materials
r e u s e d . I n 1877, t h e n e w l y d u b b e d T a s m a n P e n i n s u l a w a s
o p e n e d to p r i v a t e settlement, t h e f o r m e r p r i s o n site w a s
r e n a m e d Carnarvon, and the government attempted
to
a u c t i o n t h e l a n d lots a n d b u i l d i n g s to t h e p u b l i c . A t first,
local residents resisted b u y i n g p r o p e r t y at C a r n a r v o n , b u t
b y t h e e a r l y 1880s a s m a l l c o m m u n i t y w i t h a s c h o o l a n d
p o s t office h a d b e e n established. S o m e o f the p e n a l build
ings w e r e d e m o l i s h e d a n d sold as salvage, a n d others w e r e
converted to serve n e w purposes. C a r n a r v o n b e c a m e
center of the T a s m a n Peninsula community,
the
functioning
as ag a t h e r i n g spot for sporting events a n d other func

tions. T o u r i s m grew, benefiting the local
economy.
Although the establishment of the Carnarvon

c o m m u n i t y w a s slow to take hold, b o t h local a n d outside
interest i n t h e f o r m e r p e n a l site h a d g r o w n , n u r t u r e d b y
c u r i o s i t y a b o u t its d a r k past. M a n y l o c a l s w i s h e d t h e
remains o f the penal settlement w o u l d c r u m b l e into obliv
i o n ; at t h e s a m e t i m e , t h e y r e a l i z e d its p o t e n t i a l f o r i n c o m e .
T h u s b e g a n C a r n a r v o n ' sevolution into atourist t o w n .
T h e first c o n c e r t e d effort to benefit financially
from
t h e site's t o u r i s t p o t e n t i a l c a m e i n 1881only f o u r
years after the closing o f the p e n a l c o l o n y w h e n
120
PORT A R T H U R HISTORIC
SITE
the
I n 1913, t h e T a s m a n i a n T o u r i s t A s s o c i a t i o n s u b
m i t t e d the first p r o p o s a l to the T a s m a n i a n State g o v e r n
m e n t for t h e m a n a g e m e n t o f t h e r u i n s at t h e site. L a t e r
that year, the g o v e r n m e n t d r a f t e d the first set o f r e c o m
m e n d a t i o n s for t h e site's m a n a g e m e n t , i n c l u d i n g p h y s i c a l
repairs to the c h u r c h , a n d b e g a n to i m p l e m e n t t h e m
the
f o l l o w i n g year. T h i s m o v e m a r k e d the first effort o f t h e

T a s m a n i a n State g o v e r n m e n t to actively preserve a his
toric site.
T h e government then established the Scenery
P r e s e r v a t i o n B o a r d ( S P B ) i n 1915 t o m a n a g e p a r k s a n d
r e s e r v e s a c r o s s t h e state, i n c l u d i n g t h e P o r t A r t h u r site.
T h e following year, the S P B laid the g r o u n d w o r k for the
first f o r m a l p r o t e c t i o n o f t h e r u i n s at P o r t A r t h u r t h r o u g h
the c r e a t i o n o f five reserves: the c h u r c h , the penitentiary,
the M o d e l Prison, Point Puer, a n d D e a d Island. T h e S P B
w a s directly responsible for Port Arthur's m a n a g e m e n t ,
b u t its s e c r e t a r y a n d field s t a f f a l l state
employees
w e r e b a s e d i n H o b a r t . It is w o r t h n o t i n g t h a t t h e b o a r d ' s
m a i n f u n c t i o n w a s to p r o t e c t t h e site's n a t u r a l e n v i r o n
m e n t a n d s c e n e r y r a t h e r t h a n its c u l t u r a l h e r i t a g e .
T h e s e r e s e r v e s w e r e Australia's first g a z e t t e d
historic sitesa measure of Port Arthur's long-standing
importance in Australianculture. Gradually,the S P B
a c q u i r e d l a n d at t h e site, a p p o i n t e d guides, a n d c o n d u c t e d
a few small-scale preservation projects. O v e r the next
two
d e c a d e s , C a r n a r v o n w a s w i d e l y p u b l i c i z e d , a n d its n o t o r i
e t y s p r e a d q u i c k l y . B y 1925, t h e S P B , i t s f i n a n c i a l r e s o u r c e s
r u n n i n g low, accepted the T a s m a n M u n i c i p a l Council's
A f t e r y e a r s o f d e l a y s , t h e m o t e l f i n a l l y o p e n e d i n i960.
offer to a s s u m e m a n a g e m e n t o f the reserves, subject to
T w o years later, the T a s m a n P e n i n s u l a B o a r d , a n e w
certain conditions set b y the S P B .
g r o u p w i t h i n t h e S P B , a s s u m e d responsibility for site
I n 1926, a r e m a k e o f t h e 1908 f i l m For the Term

of His Natural Life w a s s h o t a t t h e s i t e , d e s p i t e
conservation after years o f ineffective
protests
management.
I n 1971, t h e T a s m a n i a n S t a t e g o v e r n m e n t d i s
t h a t it w o u l d r e s u l t i n n e g a t i v e p u b l i c i t y f o r T a s m a n i a .
s o l v e d t h e S P B a n d r e p l a c e d it w i t h t h e N a t i o n a l P a r k s
R e l e a s e d i n 1927, t h e f i l m w a s a b o x - o f f i c e s u c c e s s a n d
and Wildlife Service ( N P W S ) ,w h i c h then
h a d a significant i m p a c t i n p r o m o t i n g t o u r i s m to t h e site.
r e s p o n s i b i l i t y f o r t h e m a n a g e m e n t o f P o r t A r t h u r . I n 1973,
assumed
T h a t s a m e year, C a r n a r v o nw a s r e n a m e d P o r t A r t h u r in
the T a s m a n Municipal Council vacated the t o w n hall/asy
a n effort to h e l p o u t s i d e r s identify t h e site's c o n v i c t his
l u m building a n d m o v e d to N u b e e n a . A t that time, the
tory. T h e P o r t A r t h u r T o u r i s t a n d Progress Association
N P W S h a d apolicy that excluded residential use within
w a s also f o r m e d for the p u r p o s e of further developing
t h e h i s t o r i c site. T h e c o u n c i l ' s r e l o c a t i o n a n d c o n v e r s i o n
the site into a tourist center.
o f the t o w n hall to avisitor center w a s s y m b o l i c o f the
The Tasman Municipal Councilmanaged
community's displacement
the
from
t h e h i s t o r i c site. A s dis
s i t e u n t i l 1938, w h e n c o n t r o l w a s t u r n e d o v e r t o t h e P o r t
c u s s e d i n t h e f o l l o w i n g s e c t i o n , t h e 1970s a n d s u c c e e d i n g
Arthur and E a g l e h a w k N e c k Board, an e w group within
decades s a w increased state investment in conservation
the S P B , as aresult o f the T a s m a n i a n State
and creation of more dedicated management
government's
r e n e w e d financial support for the S P B . O v e r the next
two
regimes
for P o r t A r t h u r as a h e r i t a g e site. A r e g u l a r f e r r y s e r v i c e
years, the government acquired the P o w d e r Magazine, the
b e g a n t r a n s p o r t i n g tourists f r o m the site to D e a d Island.
G o v e r n m e n t Cottage, the C o m m a n d a n t ' s House, and the
A t the request o f the ferry operator, the island's n a m e
cottage in w h i c h Irish political prisoner W i l l i a m S m i t h
w a s officially c h a n g e d to the Isle o f the D e a d .
O ' B r i e n w a s h e l d i n 1850. A s b e f o r e , t h e j u s t i f i c a t i o n f o r
I n 1979, t h e T a s m a n i a n S t a t e
purchasing the properties w a s their economic

potential
from
earning
tourism. However, during W o r l d W a r II,
v i s i t a t i o n to t h e site p l u n g e d . T h e S P B h a d its b u d g e t
government
a n n o u n c e d the first substantial c o m m i t m e n t o f

from
t h e C o m m o n w e a l t h a n d t h e s t a t e (A$9
monies
million
o v e r s e v e n y e a r s ) to c o n s e r v a t i o n at t h e site i n t h e f o r m
s l a s h e d at t h e s a m e t i m e it w a s a s s i g n e d t h e t a s k o f m a n
of the Port Arthur Conservation and Development
aging sixteen n e w reserves. A s aresult, the buildings at
j e c t ( P A C D P ) . T h i s p r o j e c t , w h i c h c o n t i n u e d u n t i l 1986,
Port A r t h u r w e r e allowed to decay even further, a n d
funded the extensive restoration of historic buildings,
losses d u e to theft a n d v a n d a l i s m o n l y a d d e d to the toll.
the stabilization o f ruins, a n d the development o f visitor-
Following the recommendations of a document

k n o w n as the M c G o w a n Plan, the T a s m a n i a n State gov
e r n m e n t t o o k a b o l d s t e p i n 1946, p u r c h a s i n g t h e
town
o f P o r t A r t h u r f o r t h e s u m o f 21,000. I n a s t a r k c h a n g e
from
the past, the plan called for valuing the history a n d
Pro
related facilities a n d infrastructure, a n d p r o v i d e d for the

conservation and development of historic resources
t h r o u g h o u t the T a s m a n P e n i n s u l a as well. B a s e d o n
input
from
AustraliaI C O M O S (International Council on
M o n u m e n t s a n d Sites), the N P W S revised a n d e x p a n d e d
a r c h i t e c t u r e o f the site r a t h e r t h a n f o c u s i n g p r i m a r i l y
t h e r e c o g n i z e d significance o f P o r t A r t h u r as a historic site
o n its e c o n o m i c v a l u e . T o u r i s t v i s i t a t i o n to t h e site g r e w
t o i n c l u d e t h e t o w n s h i p p e r i o d ( r o u g h l y 1880 t o 1930).
rapidly o n c e again after the e n d o f W o r l d W a r II. A c c e s s
T h e P A C D P w a s at the t i m e the largest heritage conserva
to the site r e m a i n e d
free,
however, and the S P B h a d
tion a n d d e v e l o p m e n t project u n d e r t a k e n in all o f A u s
difficulty d e v e l o p i n g a n d m a n a g i n g t h e site w i t h t h e s m a l l
tralia. It also s e r v e d as a significant training g r o u n d for
a m o u n t s o f i n c o m e generated f r o m guide fees a n d build
Australian heritage professionals. This training c o m p o
ing rentals. Nevertheless, s o m e conservation a n d g r o u n d
nent has p r o d u c e d anationwide interest in the ongoing
b e a u t i f i c a t i o n p r o j e c t s m o v e d f o r w a r d . I n t h e 1950s, t h e
conservation w o r k and protection of the cultural
S P B m a n a g e d to p u r c h a s e the t o w n h a l l / a s y l u m building
resources at P o r t Arthur.
a n d l e a s e d it to t h e T a s m a n M u n i c i p a l C o u n c i l , w h i c h h a d
A s the seven-year project c a m e to a close, the
b e e n u s i n g t h e b u i l d i n g as its c h a m b e r s . E n c o u n t e r i n g
Tasmanian Minister of Arts, Heritage and E n v i r o n m e n t
licensing p r o b l e m s at H o t e l Arthur, located i n the f o r m e r
refused to provide further funding. T h e T a s m a n i a n Parlia
Medical Officer's H o u s e , the S P B approved construction
m e n t r e s p o n d e d i n 1987 b y p a s s i n g t h e Port Arthur
Historic
o f an e w m o t e l o n the hill b e h i n d Civil Officers' R o w over
Site Management Authority Act. T h i s a c t c r e a t e d a n d t r a n s
l o o k i n g t h e r e a r o f t h e M o d e l P r i s o n a n d t h e w h o l e site.
f e r r e d a u t h o r i t y o v e r the site to the P o r t A r t h u r H i s t o r i c
121
Site M a n a g e m e n t A u t h o r i t y ( P A H S M A ) , a g o v e r n m e n t
The M a n a g e m e n t C o n t e x t
business enterprise (GBE).

COMMONWEALTH HERITAGE LEGISLATION,
I n l a t e A p r i l o f 1996, t r a g e d y s t r u c k w h e n a g u n
POLICY, AND ADMINISTRATION
m a n killed thirty-five p e o p l e at P o r t Arthur, t w e n t y inside

the B r o a d A r r o w Cafe and
fifteen
in the immediate vicin
T h o u g h t h e P o r t A r t h u r H i s t o r i c Site is o w n e d b y
the
ity M o s t o f the victims w e r e tourists, but m a n y w o r k e d
T a s m a n i a n (state-level) g o v e r n m e n t , n o t the
a n d lived at P o r t Arthur. T h e event p r o v e d to be t r a u m a t i c
w e a l t h (federal- o r national-level) g o v e r n m e n t , this discus
c o m m o n
to the site staff a n d the local c o m m u n i t y . I n D e c e m b e r
sion of management and policy contexts begins with a
of that year, the B r o a d A r r o w Cafe w a s partially d e m o
l o o k at relevant national-level factors.
lished. T h e t r a g e d y f o r g e d an e w c h a p t e r i n P o r t A r t h u r ' s ,
Australia has separate c o m m o n w e a l t h , state, a n d
and Australia's,history by almost immediately catalyzing
territory governments, w h i c h together c o m p o s e a fairly
the passage a n d e n a c t m e n t o f national g u n control legis
decentralized system. Decisions a n d actions related to
lation in Australia.T h e Australianp r i m e minister also
m o s t heritage places and their land use are governed
by
t a p p e d f u n d s to b u i l d an e w V i s i t o r C e n t e r to r e p l a c e the
state a n d local laws. C o r r e s p o n d i n g l y , sites either are
Broad A r r o w Cafe.
f u n d e d b y state g o v e r n m e n t s or generate revenue o n their
Shortly thereafter, the T a s m a n i a n authorities
o w n . T h i s i m p o r t a n t p o l i t i c a l c o n t e x t is ad i s t i n c t l y differ
commissioned the Doyle Inquiryinto the m a n a g e m e n t
of
P o r t Arthur. T h i s investigation l o o k e d at the w o r k i n g s o f

P A H S M A s i n c e its e s t a b l i s h m e n t , i n c l u d i n g t h e
P A H S M A
ent one
from
sites f u n d e d b y n a t i o n a l g o v e r n m e n t s .
T h e Australian
Heritage Commission Act (1975) i s
the commonwealth's p r i m a r y legislation dealing w i t h
Board's handling of the development of the n e w Visitor
the identification, protection, a n d presentation of cultural
C e n t e r a n d p a r k i n g a r e a , its r e l a t i o n s w i t h e m p l o y e e s i n
heritage places at the national level. T h i s act established
the a f t e r m a t h o f the tragedy at the cafe, a n d the c o n s e r v a
the A H C and the Register of the National Estate. T h e
tion a n d m a i n t e n a n c e o f historic resources at the site.
A H C is a n i n d e p e n d e n t a u t h o r i t y o p e r a t i n g u n d e r t h e
T h e i n q u i r y r e s u l t e d i n a m e n d m e n t s t o t h e PAHSMA
1 0
Act
jurisdiction of the c o m m o n w e a l t h government's Environ
as w e l l as the reconstitution o f the P A H S M A B o a r d . W i t h
m e n t a n d H e r i t a g e p o r t f o l i o , a n d is r e s p o n s i b l e to t h e
t h e 1998 c h a n g e i n t h e T a s m a n i a n l e g i s l a t u r e from t h e
M i n i s t e r f o r E n v i r o n m e n t a n d H e r i t a g e . T h e m i n i s t e r is
Liberal P a r t y to the L a b o r Party, the state
a u t h o r i z e d to d i r e c t t h e A H C o r its c h a i r to p r o v i d e a d v i c e
government
adopted policies e n c o u r a g i n g t o u r i s m to i m p r o v e the

e c o n o m y . T h i s n e w stance also led to the a p p o i n t m e n t
a n d to enter places into the Register o f the National

of
high-profile individuals to the P A H S M A B o a r d , including

a former executive director of the Australian Heritage
Commission
In
(AHC).
2000,
a g e m e n t as a n o w n e r a n d m a n a g e r o f sites.
1 2
T h e p u r p o s e o f t h e a c t is to p l a c e r e s p o n s i b i l i t y
o n c o m m o n w e a l t h ministers a n d authorities to take into
the T a s m a n i a n premier announced that
P A H S M A w o u l d receive
E s t a t e . T h e A H C is n o t d i r e c t l y i n v o l v e d i n h e r i t a g e m a n
A$IO
million in funding for con
s e r v a t i o n o v e r t h e e n s u i n g five y e a r s . A c o n d i t i o n o f t h e
f u n d i n g w a s that P A H S M A w o u l d s u b m i t an e w c o n s e r v a
tion p l a n to the A H C . T h e p r e m i e r also a n n o u n c e d that
state a n d c o m m o n w e a l t h f u n d i n g w o u l d be p r o v i d e d
for the creation of " T h e C o n v i c t Trail," w h i c h w o u l d
r e c o n n e c t the historic site at P o r t A r t h u r w i t h the c o n v i c t
c o n s i d e r a t i o n N a t i o n a l E s t a t e v a l u e s (as defined b y the

A H C ) and professional recommendations concerning the
potential effects o f p r o p o s e d actions.
1 3
It is g e n e r a l l y n o t
intended to give the A H C p a r a m o u n t protective authority

over National Estate places.
T h e act defines the N a t i o n a l Estate as follows:
" T h e National Estate consists of those places, being
com
outstations throughout the rest of the T a s m a n Peninsula,
ponents of the natural environment of Australiaor the
including those at E a g l e h a w k N e c k , Cascades, I m p r e s s i o n
cultural e n v i r o n m e n t of Australia,that have aesthetic, his
Bay, Saltwater River, the C o a l Mines, a n d N o r f o l k Bay.
toric, scientific or social significance or other special value
P A H S M A , the T a s m a n Municipal Council, and local
for future generations as w e l l as for the present
b u s i n e s s e s f o r m e d ap a r t n e r s h i p k n o w n as P o r t A r t h u r
community."
R e g i o n M a r k e t i n g L t d . ( P A R M ) to m a r k e t the P o r t A r t h u r
r e g i o n as atourist destination. After m u c h debate, a
m e m o r i a l garden also w a s created in the spring of
2000
at t h e site o f t h e f o r m e r B r o a d A r r o w C a f e , w h i c h is n o w
in ruins.
122
1 4
T h i s register acts as an a t i o n a l list o f p l a c e s t h a t

r e a c h adefined threshold o f significance at a national,
regional, o r local level, against w h i c h p r o p o s e d
1 1
tially h a r m f u l impacts.
SITE
c o m m o n
wealth actions a n d decisions can be checked for poten
AUSTRALIA ICOMOS
clearly o n the latter. N P W S w a s the m a n a g i n g a g e n c y for
T h e Australiannational committee of the International

C o u n c i l o n M o n u m e n t s a n d Sites (Australia I C O M O S ) ,
P o r t A r t h u r H i s t o r i c S i t e f r o m 1970 t o 1987.
16
I n 1995, t h e T a s m a n i a n P a r l i a m e n t p a s s e d t h e
o r g a n i z e d i n 1976, p r o m o t e s g o o d p r a c t i c e i n t h e c o n s e r
state's first c o m p r e h e n s i v e c u l t u r a l heritage legislation,
vation of culturalheritage places throughout the nation.
t h e Historic Cultural Heritage Act.
It is a n o n g o v e r n m e n t a l o r g a n i z a t i o n a n d is affiliated w i t h
sions for identification, assessment, protection, a n d con
}7
This law contains provi
the U n i t e d Nations Educational, Scientific a n d Cultural
servation o f places d e e m e d to have "historic cultural her
O r g a n i z a t i o n ( U N E S C O ) . Its m e m b e r s are professionals
itage" significance. T h e act also provides for the creation
f r o m avariety o f fields i n v o l v e d i n the practice o f heritage
o f t h e T a s m a n i a n H e r i t a g e C o u n c i l ( T H C ) , w h i c h is
conservation.
responsible for advising the minister o n issues concerning
I n 1979, A u s t r a l i a I C O M O S a d o p t e d t h e
ICOMOS
Charter for the Conservation
of Places of
Australia
Cultural
T a s m a n i a ' s historic cultural heritage a n d o n m e a s u r e s to

conserve that heritage for present a n d future generations.
Significance ( T h e B u r r a C h a r t e r ) . T h e B u r r a C h a r t e r ,
T h e T H C also w o r k s w i t h i n the m u n i c i p a l land-use plan
w h i c h w a s r e v i s e d i n 1988 a n d 1999, h a s p r o v i d e d g u i d i n g
n i n g s y s t e m to provide for the p r o p e r protection o f Tas
principles for cultural heritage conservation practice in
m a n i a ' s h i s t o r i c c u l t u r a l h e r i t a g e (it h a s s t a t u t o r y r e v i e w
Australia.
over projects involving properties o n the T a s m a n i a n
1 5
T h e Burra Charter consists of principles a n d
procedures that ensure the conservation of aplace's cul
H e r i t a g e Register), assists i n "the p r o m o t i o n o f t o u r i s m
tural significance. It sets o u t alogical process for articulat
in respect o f places o f historic cultural heritage signi
ing the cultural significance of aplace a n d then deciding
ficance," a n d maintains proper r e c o r d s a n d encourages
o n conservation policies a n d m e a s u r e s to protect that
others to m a i n t a i n p r o p e r r e c o r d s o f places of historic
significance. T h e process emphasizes consultation w i t h a
cultural heritage significance.
r a n g e o f stakeholders, as w e l l as t r a n s p a r e n c y a n d clear
T h e 1995 l a w a l s o p r o v i d e d f o r t h e c r e a t i o n o f t h e
d o c u m e n t a t i o n w i t h r e g a r d to u n d e r s t a n d i n g a n d protect
T a s m a n i a n Heritage Register, kept b y the T H C .T h e crite
ing significance. T h e charter's principles have b e e n widely
ria for b e i n g listed o n the register are b a s e d o n those u s e d
and voluntarily accepted and followed by heritage
for the Register of the National Estate. U n d e r the
agen
Historic
cies a n d p r a c t i t i o n e r s t h r o u g h o u t t h e n a t i o n , a n d it h a s
Cultural Heritage Act, t h e m i n i s t e r m a y d e c l a r e a s i t e t o b e
b e e n perhaps the m o s t influential d o c u m e n t in m o v i n g
a h e r i t a g e a r e a i f it is d e e m e d to c o n t a i n a p l a c e o f h i s t o r i c
cultural heritage practice in Australiatoward a m o r e
cultural significance. W o r k s impacting aregistered place
explicitly v a l u e s - b a s e d a p p r o a c h . A s s u c h , it h a s b e c o m e
m u s t be a p p r o v e d b y the state Heritage C o u n c i l . T h e
a de facto policy.
c o u n c i l has the authority to set standards for a p p r o v e d

w o r k s a n d to require professional supervision of the
TASMANIAN HERITAGE LEGISLATION,
w o r k . T h e act also provides for Heritage Agreements,
POLICY, AND ADMINISTRATION

State-level factors are perhaps the m o s t important policy
contexts shaping the m a n a g e m e n t of Port Arthur. T h e
first l a w i n T a s m a n i a to a d d r e s s t h e p r o t e c t i o n o f h e r i t a g e
w a s t h e Scenery Preservation Act o f 1915. T h i s l e g i s l a t i o n
established the S c e n e r y P r e s e r v a t i o n B o a r d , the first p u b
w h i c h i n c l u d e provisions for m o n e t a r y a n d technical assis

tance to the o w n e r of the registered place. T h e council
m a y a p p r o v e d a m a g i n g w o r k s o n l y i f it is satisfied t h a t
there are n o p r u d e n t or feasible alternatives.
1 8
LOCAL COUNCILS
lic a u t h o r i t y established i n the w h o l e o f A u s t r a l i a for the
In the state o f T a s m a n i a , l a n d use a n d d e v e l o p m e n t
m a n a g e m e n t of parks and reserves. Port Arthur w a s
are regulated b y planning schemes, w h i c h are legally bind
a m o n g t h e l a n d s t h e S P B h e l d a n d m a n a g e d . I n 1970, t h e
ing statutory documents. Local councils are responsible
Scenery Preservation Act w a s r e p e a l e d t h r o u g h a d o p t i o n
for preparing a n d administering these planning meas
of
t h e National Parks and Wildlife Act. T h i s a c t p r o v i d e d t h a t
ures, w h i c h include provisions governing land use a n d
l a n d m a y b e d e c l a r e d a c o n s e r v a t i o n a r e a to p r e s e r v e fea
development.
tures o f historical, archaeological, or scientific interest,
1 9
T h e Municipality
of Tasman Planning
Scheme
or to preserve or protect a n y A b o r i g i n a l relics o n that
(1979), a d m i n i s t e r e d b y t h e T a s m a n M u n i c i p a l C o u n c i l ,
land. T h e act also created the National P a r k s a n d Wildlife
governs use and development of land o n the T a s m a n
Service (of T a s m a n i a ) to m a n a g e b o t h cultural a n d natu
Peninsula. A l l lands w i t h i n P o r t A r t h u r Historic Site are
ral heritage within T a s m a n i a , although emphasis
classified as aN a t i o n a l P a r k / S t a t e R e s e r v e reservation.
was
123
T h e a p p r o a c h to t h e site, as w e l l as its v i e w s h e d , is a l s o
regulated b y ac o m p l e x system o f zoning.
U s i n g its b e s t e n d e a v o r s to s e c u r e f i n a n c i a l assis
tance by w a y of grants, sponsorship, and other means,
2 0
for t h e c a r r y i n g o u t o f its f u n c t i o n s ; a n d
W h e n the T a s m a n Municipal C o u n c i l receives
C o n d u c t i n g its affairs w i t h av i e w to
p l a n n i n g a p p l i c a t i o n s r e g a r d i n g h i s t o r i c areas, it refers
becom
t h e m to the D e v e l o p m e n t A d v i s o r y C o m m i t t e e for His
i n g aviable c o m m e r c i a l enterprise. ( A f u r t h e r act o f
t o r i c A r e a s . T h i s c o m m i t t e e is c o m p o s e d o f r e p r e s e n t a
p a r l i a m e n t i n 1989 a m e n d e d t h i s r e q u i r e m e n t t o r e a d :
tives
from
from
the T a s m a n i a n Department of Tourism, Parks,
the council,
from
the local community,
" C o n d u c t i n g its affairs w i t h av i e w o f b e c o m i n g
and
commer
cially viable." )
2 2
I n t h e w a k e o f t h e 1996 P o r t A r t h u r m a s s a c r e ,
Heritage and the Arts. F o r projects and reviews o n the
the m a n a g e m e n t of P A H S M A c a m e u n d e r close scrutiny
Port Arthur reserve, the T a s m a n Municipal C o u n c i l

focuses o n straightforward infrastructuralmatters, s u c h
a n d w a s f o u n d to b e in serious n e e d o f reorganization.
as s e w e r a n d w a t e r provision, deferring to P A H S M A
A c c o r d i n g to the T a s m a n i a n State government's
report
T H C reviews o f P A H S M A s activities) o n m o s t heritage-
of the Doyle Inquiry,
self-
specific matters.
sufficient m a n d a t e w a s at o d d s w i t h the c o n s e r v a t i o n val
(and
2 1
PAHSMA's economically
u e s a n d g o a l s r e c o g n i z e d ( i n t h e 1985 p l a n a n d t h e r e a f t e r )
PORT ARTHUR HISTORIC SITE
as t h e f o u n d a t i o n o f t h e site's m a n a g e m e n t . P A H S M A is
MANAGEMENT AUTHORITY
I n 1987, t h e T a s m a n i a n P a r l i a m e n t p a s s e d t h e Port Arthur
Historic Site Management Authority Act e s t a b l i s h i n g
P A H S M A , w h i c h a s s u m e d m a n a g e m e n t o f the site
from
the T a s m a n i a n D e p a r t m e n t of Lands, Parks and Wildlife.

S i n c e 1995, P A H S M A h a s b e e n a G B E o p e r a t i n g i n p a r t
u n d e r t h e p r o v i s i o n s o f t h e Government Business
Act (1995). A s e m i - i n d e p e n d e n t g o v e r n m e n t
2 3
Enterprises
authority
w i t h a n annual budget provided b y the T a s m a n i a n State

government, P A H S M A nevertheless operates under the
auspices o f a n a p p o i n t e d b o a r d r a t h e r t h a n the state. T h e
P o r t A r t h u r site f a c e d p e r p e t u a l f u n d i n g shortfalls, a n d
through P A H S M A the T a s m a n i a n government hoped
to
c r e a t e a n e n t i t y c a p a b l e o f i n d e p e n d e n t l y g e n e r a t i n g its
o w n r e v e n u e . O n e o f the first steps w a s to start c h a r g i n g
a d m i s s i o n fees to t h e site.
on
the b o a r d as w e l l as state b u d g e t oversight a n d control.

T h e Port Arthur Historic Site Management Authority Act
defines the functions o f P A H S M A as follows:
E n s u r i n gthe preservation and maintenance
of
the H i s t o r i c Site as a n e x a m p l e o f am a j o r c o n v i c t settle

m e n t a n d penal institution of the nineteenth century;
C o o r d i n a t i n g archaeological activities o n the
Historic Site;
P r o m o t i n g an understanding of the historical
a n d a r c h a e o l o g i c a l i m p o r t a n c e o f the H i s t o r i c Site;
Consistent with the m a n a g e m e n t plan, promot
i n g the H i s t o r i c Site as atourist destination;
P r o v i d i n g a d e q u a t e facilities for visitors' use;
c o n s e r v a t i o n activities; h o w e v e r , its t o u r i s m o p e r a t i o n
endeavors to generate asustainable s t r e a m o f
income
w i t h i n its b r o a d e r c o n s e r v a t i o n , e c o n o m i c , a n d c o m m u
nity objectives.
I n 1997, P A H S M A c o n v e n e d t h e P o r t A r t h u r H e r
itage Advisory Panel ( H A P ) , consisting of heritage
experts. Its c h a i r w a s as e n i o r C a n b e r r a - b a s e d heritage
consultant. T h e chair reported directly to the
P A H S M A
Board. H A P ' s role w a s to advise the b o a r d o n matters

regarding heritage at P o r t Arthur. T h e p a n e l t o o k a handso n a p p r o a c h at the outset, initiating a n d drafting the brief
for t h e site's c u r r e n t c o n s e r v a t i o n p l a n , w h i c h w a s
com
p l e t e d i n 2000. A s t h e P A H S M A B o a r d a c q u i r e d m e m b e r s
with greater heritage expertise a n d hired m o r e
profession
a l l y t r a i n e d h e r i t a g e c o n s e r v a t i o n i n d i v i d u a l s o n its staff,
T h e P A H S M A B o a r d reports directly to the

T a s m a n i a n p r e m i e r , a n d t h e r e is state r e p r e s e n t a t i o n
n o t l i k e l y to g e n e r a t e sufficient i n c o m e to f u l l y f u n d its
the panel has stepped back and focused primarily on

r e v i e w i n g s e c o n d a r y p l a n s a n d p r o v i d i n g ab r o a d e r l e v e l
o f a d v i c e to t h e c o n s e r v a t i o n staff.
2 4
P o r t A r t h u r Historic Site Facilities

a n d Services
O n e o f the m o s t s t r i k i n g aspects o f t h e P o r t A r t h u r site
is t h e b e a u t y o f t h e s u r r o u n d i n g l a n d s c a p e a n d its c o n
trast to the h o r r o r o f the events a n d penal-industrial sys
tem of nineteenth-century convictism. B y some
the beautiful landscape w o r k s against the
accounts,
conservation
a n d interpretation o f the m a i n messages a n d related his

toric a n d s o c i a l v a l u e s o f t h e site. H o w e v e r , this q u a l i t y
o f the site w a s n o t e d e a r l y o n i n d e e d b y the c o n v i c t s
themselvesand thus could be considered one of the
i m p o r t a n t historic e l e m e n t s i n the site's past. F o r s o m e
124
PORT A R T H U R H I S T O R I C SITE
visitors, t h e serenity o f the l a n d s c a p e m a k e s itdifficult t o

imagine the brutality o fthe convict period. F o r others,
that s a m e s e r e n i t y a c t u a l l y h e l p s t h e m reflect o n t h e site's
past. Buildings s u c h a sthe penitentiary a n d the Separate
P r i s o n w h e r e the convict experience is immediately
felthave the m o s t potential for conveying the historic
experience.
MAJOR BUILDINGS AT PORT A R T H U R
The
25
Asylum
T h e a s y l u m (1868) h o u s e d t h e m e n t a l l y i l l , o l d e r c o n v i c t s ,
and ex-convictssome transported from locations
other
t h a n P o r t A r t h u r . F r o m 1895 t o 1973 i t w a s h o m e t o t h e
C a r n a r v o n T o w n B o a r d (later k n o w n a sthe
Tasman
M u n i c i p a l Council). T o d a y ith o u s e s as m a l l m u s e u m
a n d a cafeteria.
Key:
Asylum
2. Church
3- Civil Officers' Row
4- Commandant's House
5- Hospital
6. Military Compound
7- Paupers' Mess
8. Penitentiary
9- Point Puer
10. Separate Prison
n. Smith O'Brien's Cottage
12. Visitor Center
13. Broad Arrow Cafe
14. Administrative Offices
15. Jetty
16. Overlook
17- Motel
I.
Figure 3.7. Map of the current property boundaries of the Port Arthur
Historic Site and the central visitors' area.
Figure 3.8. Map of the central visitors' area and its major structures
and features. It should be noted that the motel (17) sits on a small, pri
vately owned parcel of land adjoining the site.
125
The
Church
T h e c h u r c h , c o n s t r u c t e d i n 1836-37, w a s g u t t e d b y a f i r e
i n 1884 t h a t l e f t o n l y i t s w a l l s s t a n d i n g . T h e r u i n s o f t h e
church are perhaps the most recognizable symbol o f Port
Arthur
today
Civil Officers
Row
T h e structures r e m a i n i n g along this r o w h o u s e d civilian

officials a tP o r t A r t h u r . T h e s e i n c l u d e the
Accountant's
H o u s e (1842); t h e J u n i o r M e d i c a l O f f i c e r ' s H o u s e (1848);

t h e P a r s o n a g e (1842-43), w h i c h h o u s e d t h e A n g l i c a n p a r
s o n ; a n d t h e M a g i s t r a t e ' s a n d S u r g e o n ' s H o u s e s (1847).
The Commandant's
House
T h e C o m m a n d a n t ' s H o u s e (1833) w a s h o m e t o t h e
h i g h e s t - r a n k i n g official a tP o r t A r t h u r . It w a s
Figure 3.9. The asylum. Photo: Marta de la Torre
enlarged
s e v e r a l t i m e s , e x t e n d i n g u p t h e hill. I ts e r v e d a s t h e
Carnarvon Hotel
from
1885 t o a r o u n d 1904, a n d t h e n a s a
g u e s t h o u s e u n t i l t h e 1930s.
The
Hospital
T h e hospital, w h i c h h o u s e d u pt o eighty patients,
was
o p e n e d i n 1842. I t s e r v e d c o n v i c t s a n d s o l d i e r s i n s e p a r a t e
wards. T h e structure w a s severely d a m a g e d b y bushfires
i n t h e 1890s, l e a v i n g o n l y t h e r u i n e d f a c a d e a n d
wing standing
northwest
today.
The Military
Compound
Soldiers lived, ate, a n d e n g a g e d i nr e c r e a t i o n a tthe mili

tary c o m p o u n d . It i n c l u d e d ap a r a d e g r o u n d for military
exercises. T h e c o m p o u n d also h o u s e d civilian officers
military families. T h e soldiers' barracks w e r e
and
demolished
after the settlement w a s closed, a n d other buildings i n the

p r e c i n c t w e r e l o s t i n b u s h f i r e s i n t h e 1890s. O n e o f t h e
Figure 3.10. The ruins of the hospital lie behind those of the Paupers'
Mess. Photo: Marta de la Torre
d o m i n a n t s t r u c t u r e s t o d a y i s t h e g u a r d t o w e r (1835). O t h e r
e x t a n t s t r u c t u r e s a r e T o w e r C o t t a g e (1854), w h i c h
housed
m a r r i e d officers a n d their families, a sw e l l a ss o m e w a l l

sections, t w o small turrets, a n d s o m e
Paupers'
foundations.
Mess
Ex-convicts w h o w e r e t o oold o ri n f i r m t o w o r k
gathered
a t t h e P a u p e r s ' M e s s , b u i l t i n 1864. O n l y t h e w a l l s o f t h e
building remain
The
today
Penitentiary
This substantial four-story structure w a s built
between
1842 a n d 1844 a n d o r i g i n a l l y s e r v e d a s a g r a n a r y a n d f l o u r
m i l l f o r a b o u t a d e c a d e . I n 1857, i t w a s c o n v e r t e d t o a p e n i
tentiary and held prisoners until the closure o fthe Port
A r t h u r c o n v i c t s e t t l e m e n t . I t h o u s e d 136 c o n v i c t s o n i t s
f i r s t t w o f l o o r s i n s e p a r a t e c e l l s a n d 348 i n d o r m i t o r y - s t y l e
accommodations
o n the f o u r t h floor. T h e third floor
h o u s e d alibrary, mess, a n d C a t h o l i c chapel.
126
Sometime
Figure 3.11. The exercise yards of the Separate Prison. The exercise
yards lie in ruin today. Conservation and interpretation plans call for
partial reconstruction of these yards. Photo: Marta de la Torre
a f t e r 1877, t h e s t r u c t u r e w a s r a v a g e d b y fire a n d l o o t e d .
ated in averdant landscape occupying the basin surround
T o d a y s e v e r a l o f its m a i n w a l l s e c t i o n s h a v e b e e n stabi
ing the h a r b o r a n d defined b y small ridges. Visitors navi
l i z e d to p r e v e n t c o l l a p s e , a n d it is v i s u a l l y t h e m o s t
domi
nant structure in the M a s o n C o v e area.

Point
gate t h r o u g h this area o n p a v e d roads a n d surfaced w a l k

w a y s . U s e o f t h e r o a d s w i t h i n M a s o n C o v e is r e s t r i c t e d to
P A H S M A v e h i c l e s . O n e e x c e p t i o n is v e h i c l e a c c e s s to
Puer
O n l y scattered ruins r e m a i n o f the f o r m e r boys' p r i s o n at

P o i n t P u e r (1834), l o c a t e d a c r o s s t h e h a r b o r
from
the site to
Mason
fish.
Recently, small electric vehicles have b e e n
C o v e . Point P u e r w a s created to separate b o y s ages eigh
i n t r o d u c e d to enable visitors w i t h m o b i l i t y difficulties
teen and under from older prisoners. T h e boys' prison
a c c e s s m o s t a r e a s o f t h e site.
I n t h e n o r t h w e s t p a r t o f t h e site, s e c l u d e d
c e a s e d o p e r a t i o n s i n 1849.
The Separate
t h e t o u r i s t a r e a s o n a f o r e s t e d hilltop, is t h e
Prison
infrastructure, s u c h as sewers, s t o r m drains, w a t e r supply,
Castle, w h e r e sensory deprivation w a s u s e d to b r e a k
electricity supply, a n d telecommunications,
comprised
t w o w i n g s o f parallel r o w s o f cells, w h e r e p r i s o n e r s w e r e
isolated for twenty-three hours per day a n d p e r f o r m e d
Smith O'Brien's
is c o n c e a l e d .
E n t r y fees are listed below. T o u r s to the Isle o f the

D e a d , as w e l l as the e v e n i n g g h o s t tours, are ticketed sepa
rately. T i c k e t s m a y b e p u r c h a s e d at the Visitor C e n t e r ,
o c c u p i e d i n 1849.
b y p h o n e o r fax, o r at the P o r t A r t h u r H i s t o r i c Site W e b
Cottage
site.
T h i s c o t t a g e , b u i l t to a p p r o x i m a t e l y its p r e s e n t
administrative
facilities, a n d t h e w o r k s y a r d . M o s t o f the site's s e r v i c e
typical o f an u m b e r o f other prisons, s u c h as L i n c o l n
first
from
Collection a n d Archaeological Store, nursery a n d forestry
w a s m o d e l e d after L o n d o n ' s Pentonville P r i s o n a n d w a s
tasks s u c h as s h o e m a k i n g . It w a s
to
c o m p l e x . It includes m a n a g e m e n t offices, the Radcliffe
T h e Separate Prison, originally called the M o d e l Prison,
inmates' resistance to reform. T h e c o m p l e x
the
p u b l i c jetty, w h e r e locals are p e r m i t t e d to drive t h r o u g h
configura
2 6
G r o u p a n d school-group b o o k i n g s are also available.
S c h o o l - g r o u p tours last o n e to t w o hours. I n addition to
t i o n i n 1846, w a s n a m e d f o r t h e I r i s h p o l i t i c a l p r i s o n e r
the standard tour, students get the c h a n c e to dress u p in
h e l d t h e r e i n 1850. I t a l s o w a s o n c e a s t a b l e a n d t h e m i l i
nineteenth-century-style
tary hospital.
a p h o r e , o b s e r v e the site's historic architecture, a n d l e a r n
clothing, learn h o w to use a s e m
about early building materials and methods.

Today, m o s t visitors to the site arrive b y c a r o r b u s
via the A r t h u r H i g h w a y a n d p a r k at the m a i n p a r k i n g area
in front of the Visitor Center, where they m a y purchase an
entry ticket valid for t w o days. T h e ticket includes
access
Entry ticket fees (valid for

A$ 22.00
2 days):
27
Adult
17.50 P e n s i o n e r , s e n i o r , f u l l - t i m e s t u d e n t
to the Interpretation G a l l e r y in the Visitor Center; entry
10.00
to the Port A r t h u r M u s e u m located in the f o r m e r a s y l u m
48.00 F a m i l y (2 a d u l t s a n d u p t o 6 c h i l d r e n )
building, w h i c h has a s m a l l collection o f convict artifacts;

a d m i t t a n c e t o t h e s i t e ' s m o r e t h a n 40 h e c t a r e s (100 a c r e s )
of landscaped grounds and gardens, including m o r e
than
thirty historic buildings, ruins, and restored period homes;

and aguided introductory historical walking tour and har
b o r cruise. T h e t w e n t y - m i n u t e c r u i s e sails past the
dock
yards, the site o f the P o i n t P u e r boys' prison, a n d the Isle

of the Dead. Visitors' options include athirty-minute
to the Isle o f the D e a d a n d the n i n e t y - m i n u t e
tour
Historic
C h i l d (4 t o 17 y e a r s )
Ghost tour fees:

A$ 14.00
Adult
8.60
Child
36.30
Family
Isle of the Dead tour fees:

a s 6.60
Adult
5.50
Child
19.50
Family
G h o s t T o u r . T h e latter consists o f alantern-lit w a l k at

d u s k a r o u n d the site as t o u r g u i d e s tell o f
T h e P o r t A r t h u r site is o p e n
sightings,
9 A . M . t o 5 P.M.
apparitions, a n d strange o c c u r r e n c e s r e p o r t e d at P o r t
Arthur f r o m the convict period until the
V i s i t o r C e n t e r h o u r s a r e 8:30 A . M . u n t i l t h e l a s t g h o s t t o u r
present.
V i s i t o r a c t i v i t y is c o n c e n t r a t e d i n t h e M a s o n
Cove
8:30 A . M . u n t i l d u s k .
at night. Services at the Visitor C e n t e r include a d e s k o f

the T a s m a n i a n Visitor Information Network,
area, w h i c h w a s the center of development of the penal

settlement a n d later the t o w n of C a r n a r v o n . A n u m b e r
from
from
T h e grounds and ruins are o p e n
of
historic buildings, ruins, gardens, a n d m e m o r i a l s are situ
operated
b y P o r t A r t h u r R e g i o n M a r k e t i n g L t d . Staff at the
desk
p r o v i d e i n f o r m a t i o n o n a c c o m m o d a t i o n s , activities, a n d
127
other services available in the region, including informa
Hobart to Port Arthur Cruise, including coach return:*
tion o n other convict-related heritage reserves in the area.
A$ 120.00
T h e y also assist visitors w i t h b o o k i n g reservations b o t h
99.00
inside and outside the region. Food, refreshments, and
the Port Cafe in the Visitor Center, and the M u s e u m Cafe

also h o u s e s agift s h o p that sells b o o k s , videos, s o u v e n i r s ,
Pensioner
85.00 C h i l d ( a g e s 4 t o 17)
c a t e r i n g facilities at the site i n c l u d e F e l o n s R e s t a u r a n t a n d

located in the former asylum building. T h e Visitor Center
Adult
68.00 ( a d d i t i o n a l c h i l d )
Tasman Island Wilderness
A$ 49.00
a n d T a s m a n i a n arts a n d crafts. S o m e items m a y b e p u r

c h a s e d o n l i n e at P o r t A r t h u r ' s W e b site.
I n t h e V i s i t o r C e n t e r , a m o d e l o f t h e site as it w a s
Adult
43.00
Pensioner
35.00
Child
i n t h e 1870s i s u s e d t o o r i e n t v i s i t o r s . T h e p l a c e m e n t o f t h e
30.00 ( a d d i t i o n a l c h i l d )
m o d e l allows visitors to g a z e t h r o u g h aglass w a l l over

l o o k i n g M a s o n C o v e a n d t h e h e a r t o f t h e site. O n e o f t h e
Seaplane flights:
m a i n activities i n t h e I n t e r p r e t a t i o n G a l l e r y is t h e " L o t
A$ 80 / n o /160
Adult
40/66/85
Child
tery of Life," ag a m e in w h i c h visitors are given a playing

card containing the identity o f af o r m e r prisoner at the
Cruise:
200 /280 /395 F a m i l y (2 a d u l t s a n d u p t o 2 c h i l d r e n )
penal settlement. A s they m o v e through the Interpreta

During the period covered by the
t i o n G a l l e r y , t h e y t r a c e t h e p a t h o f t h a t c o n v i c t from t h e
2001PAHSMA
Annual Report (1 J u l y 2000-30 J u n e 2001), t h e n u m b e r o f
U n i t e d K i n g d o m to T a s m a n i a .
P o r t A r t h u r m a i n t a i n s m e e t i n g facilities that
d a y t i m e e n t r i e s t o t h e P o r t A r t h u r s i t e w a s 203,600, a n d
a c c o m m o d a t e g r o u p s f r o m six to thirty-five. I n addition,
t h e H i s t o r i c G h o s t T o u r t o o k i n m o r e t h a n 46,000 v i s i
the site c a n h o s t c o n f e r e n c e s b y special a r r a n g e m e n t that
tors.
can include specialized tours, sunset harbor cruises, con
months. M o s t visitors c o m e
vict role-plays, a n d catering. Several structures in M a s o n
rather than
C o v e are u s e d to h o u s e
staff.
Facilities at the M a s o n C o v e h a r b o r area include

a b o a t r a m p a n d a p u b l i c j e t t y c o m p l e t e d i n M a r c h 2002.
T h e h a r b o r is q u i t e p o p u l a r f o r r e c r e a t i o n a l activities,
s u c h as s c u b a diving a n d boating.
2 8
Aprivate company,
w h i c h operates the Isle o f the D e a d tour, also offers

cruises to Port A r t h u r o n acatamaran.
2 9
O n e such excur
sion, the H o b a r t to P o r t A r t h u r C r u i s e , follows the
same
route that convicts traveled, and o n the w a y allows pas

sengers to catch glimpses o f m a r i n e wildlife a n d observe
dramatic coastlines, including those of S t o r m Bay, C a p e
R a o u l , a n d T a s m a n I s l a n d . A s e c o n d e x c u r s i o n is t h e T a s m a n IslandWilderness Cruise,w h i c h departs
from
Port
A r t h u r to T a s m a n Island. A n o t h e r private o p e r a t o r offers

s e a p l a n e flights. T h e F l i g h t to F r e e d o m , offered i n three
different lengths, gives p a s s e n g e r s aerial v i e w s o f the site
a n d t h e r e g i o n ' s t o w e r i n g cliffs, b l o w h o l e s , c a v e s , a n d g e o
logic formations.
128
3 1
V i s i t a t i o n is c o n s i d e r a b l y h i g h e r i n t h e
from
from
s u m m e r
other states in Australia,
within Tasmania.
3 2
Understanding and Protecting the Values of the Site
Port Arthur has been recognized, in every w a y imagina
the romantic aspect of the building ruins, the
ble, as h a v i n g ag r e a t d e a l o f v a l u e as ah e r i t a g e p l a c e . T h i s
English landscaping, and the remoteness of the T a s m a n
gardened
section identifies the various assessments a n d statements
Peninsula. Aesthetic values have remained a m o n g
of value
most clearly articulated values throughout the
3 3
m a d e for the P o r t A r t h u r site i n c o n s e r v a t i o n
the
manage
p l a n n i n g a n d policy d o c u m e n t s . Secondarily, this section
m e n t h i s t o r y o f t h e p o s t - p e n a l c o l o n y site.
Developing
identifies v a l u e s o f the site that are i m p l i e d i n policies, b u t
simultaneously w a s the realization that the Port Arthur
not explicitly assessed a n d described (for the m o s t part,
s t o r y (as told a n d as s y m b o l i z e d a n d r e p r e s e n t e d i n s o m e
these implied values are the economic values generally
o f its r e m a i n i n g s t r u c t u r e s ) h a d v a l u e as a n
excluded by the Burr a Charter values framework).
r e s o u r c e : t od r a w tourists. F r o m the last t h i r d o f the n i n e
economic
t e e n t h c e n t u r y t ot h e p r e s e n t , m a n y p r o j e c t s h a v e
been
Values Associated w i t h
u n d e r t a k e n t od e v e l o p the T a s m a n P e n i n s u l a ' s t o u r i s m
P o r t A r t h u r Historic Site
e c o n o m y , often centered o n P o r t A r t h u r as the m a i n
F o r f o r t y - s e v e n y e a r s P o r t A r t h u r w a s ac o n v i c t site, b u t
it h a s b e e n a h i s t o r i c site f o r m o r e t h a n a h u n d r e d y e a r s .
T h u s , s o m e a r t i c u l a t i o n o f t h e site's v a l u e s is t r a c e a b l e
b a c k t o t h e 1870s. U n t i l t h e c o n t e m p o r a r y e r a o f h e r i t a g e
p r o f e s s i o n a l i z a t i o n ( s t a r t i n g i n t h e 1970s), m o s t a r t i c u l a
tion o f heritage values w a s implicit a n d indirect, m o r e dis
cernible i n actions a n d policies t a k e n o n the site t h a n i n
deliberate pronouncements. S o m e of the major, earlier
instances of value identification are outlined in the earlier
s e c t i o n o n P o r t A r t h u r ' s h i s t o r y as a h e r i t a g e site. I n this
s e c t i o n , e m p h a s i s is p l a c e d o n t h e m o s t r e c e n t official
statements of the value of Port Arthur.
attraction.
3 4
A t t e m p t s t ocultivate the site's e c o n o m i c val
ues in effect k e p t alive the historic, aesthetic, a n d social

v a l u e s o f the site ( a n d also c h a n g e d t h e m i n aw a y ) , w h i c h
i n t h e 1970s b e c a m e t h e o b j e c t o f c o n c e r t e d s i t e m a n a g e
m e n t a n d c o n s e r v a t i o n e f f o r t s . O n l y s i n c e t h e 1940s h a s
conservation of the historic, symbolic values of the
site
w h a t are these days grouped under the rubric of cultural

s i g n i f i c a n c e b e e n t h e f o c u s o fsite
development.
Historic values relating to convictism w e r e articu

lated selectively, until m o r e - r i g o r o u s , professional
efforts
w e r e m a d e t o d o c u m e n t t h e m i n t h e 1979-86 P o r t A r t h u r
Conservation and Development Project (PACDP). Cer
tain historic values w e r e explicitly recognized in the early
HISTORICAL ARTICULATION OF VALUES
twentieth century, in particular those that inspired popu
I m m e d i a t e l y f o l l o w i n g t h e c o n v i c t p e r i o d , the site's v a l u e s
lar narratives s u c h as the novel a n d s u b s e q u e n t
w e r e seen t obe b o t h utilitarian (the establishment o fa
For the Term of His Natural Life, a s w e l l a s s t o r i e s t o l d b y
n e w township a n d village, aproductive rural landscape
local tour guides. However, these values lacked a contex
rising
tual understanding of the role o fconvictism in T a s m a n i a n
from
the remnants of the convict landscape) and
social (symbolic). T h e s e social values w e r e contradictory:
film
a n d A u s t r a l i a n history a n d identity, a n d they did n o t have
negative, in feelings o fs h a m e about the convict period,
the base o fscholarly research underlying the historic
l e a d i n g to efforts t ot e a r d o w n , r e u s e , o r o t h e r w i s e
values recognized today. A t the time, historic values w e r e
erase
traces f r o m the convict era; a n d positive, in seeing the
selected o n the basis of w h a t resonated w i t h popular
economic potential of the convict resources, leading t o
c u l t u r e a n d c o n s u m e r i s m (i.e., f a s c i n a t i o n w i t h t h e h o r r o r
the first efforts t o p r o m o t e t o u r i s m on-site.

Aesthetic values, too, w e r e clearly perceived,
o f the penal system a n d stories o fcriminals) a n d w h a t w a s

m a r k e t a b l e . N e v e r t h e l e s s , P o r t A r t h u r t o o k its p l a c e i n t h e
m o t i v a t i n g visits f r o m outsiders e v e n before the p e n a l
popular national m e m o r y through the assertion o f such
c o l o n y w a s s h u t d o w n i n 1877. V i s i t o r s w e r e d r a w n t o
consumer-oriented values.
129
CONTEMPORARY ARTICULATION OF
a n d r e m o v i n g buildings associated w i t h the post-
VALUES IN HERITAGE PLANS AND
convict C a r n a r v o n era. Little o fthis p l a n w a s imple
O T H E R OFFICIAL DOCUMENTS
m e n t e d , t h o u g h it m a r k e d o n e e n d o f t h e
A wide range of values has been associated with Port
conservation spectrum of management
Arthur, both historically a n d in contemporary practice.
developmentplanning.
P A C D P r e p r e s e n t e d am a j o r shift i n attitude
In the hundred-plus years that Port Arthur has been a
t o w a r d site v a l u e s as w e l l as a shift i n the
h e r i t a g e site, n e g a t i v e v a l u e s as w e l l as positive v a l u e s
philosophy that drove the treatment o f values a n d fabric.
h a v e b e e n v e r y m u c h i n e v i d e n c e a n d h a v e s h a p e d site
Strongly influenced by national heritage organizations,
m a n a g e m e n t quite clearly Conflicts between
the A H C , a n d Australia I C O M O S , this concentrated
positive
a n d n e g a t i v e v a l u e s , o r a m o n g efforts t od e v e l o p
dif
conservation
effort
of heritage professionals f r o m across Australia resulted in
f e r e n t p o s i t i v e v a l u e s , h a v e b e e n r e c o g n i z e d i n t h e 2000
t h e r e c o g n i t i o n a n d m a n a g e m e n t o fab r o a d e r r a n g e o f
C o n s e r v a t i o n P l a n a n d other policy, planning, a n d
h e r i t a g e v a l u e s t h a n s o l e l y t h o s e o fc o n v i c t i s m . T h e c o n
legislative
siderable on-site presence o f P A C D P p e r s o n n e l over sev
documents.
O v e r time, a n d especially in the past several

decades, the values articulated in Port Arthur's
manage
m e n t p l a n s h a v e f l u c t u a t e d i n r e s p o n s e t oe x t e r n a l c o n
eral years built astrong cadre of professionals w h o ,
today,
c o n t i n u e t oh o l d a s t a k e i n t h e c o n s e r v a t i o n o f P o r t
A r t h u r f r o m their far-flung positions. T h e project relied
ditions, particularlythe a m o u n t o f public funding pro
o n substantial government funding, w h i c h allowed
vided b y different g o v e r n m e n t sources. W h e n
on conservation, not development. N o sustained empha
funding
focus
h a s b e e n i n a b u n d a n c e ( a s i t w a s f o r P A C D P f r o m 1979
sis w a s t h e r e f o r e p a i d t ot h e f u t u r e r o l e a n d c u l t i v a t i o n
t o 1986), p l a n s a n d m a n a g e m e n t f o c u s e d m o r e e x c l u
of commercial values.
sively o n cultural significance values. W h e n public fund
of T a s m a n i a n State funds ended, there w e r e
ing has b e e n cut b a c k substantially, emphasis
resources, strategies, or expertise available t o sustain
t o w a r d e c o n o m i c values, as m a n a g e m e n t
shifted
necessarily
3 6
W h e n the temporary infusion

few
t h e site a n d its c o n s e r v a t i o n .
t u r n e d its f o c u s o n g e n e r a t i n g r e v e n u e f r o m t h e site
T h r o u g h t h e d e v e l o p m e n t o fa s t a t e m e n t
of
t h r o u g h t o u r i s m a n d associated c o m m e r c i a l activity.
significance, P A C D P focused m o r e explicitly o n values.
T h i s s i t u a t i o n o c c u r r e d i n t h e e a r l y 1990s, w h e n a s u r p l u s -
T h e p r o j e c t also b r o u g h t a b o u t ashift i n v i e w p o i n t ,
generating expectation was imposed on P A H S M A ,
advocating strongly that both the convict and C a r n a r v o n
which
r e s p o n d e d w i t h greater focus o n e a r n i n g r e v e n u e at the
p e r i o d s w e r e i m p o r t a n t a s p e c t s o fP o r t A r t h u r ' s
expense o f conservation.
heritage significance. I n f o r m a l changes e m b o d i e d in this
I n t h e l a s t f e w d e c a d e s , t h e a r t i c u l a t i o n o fsite v a l
new, heritage-professional approach were codified in a
ues has b e c o m e a n explicit goal o f heritage professionals,
1982 d r a f t m a n a g e m e n t p l a n , w h i c h i n t u r n w a s
managers, and policy makers.
b a s i s f o r t h e o f f i c i a l 1985 P o r t A r t h u r H i s t o r i c S i t e M a n
3 5
An u m b e r of plans have
b e e n f o r m u l a t e d ( d e s c r i b e d b e l o w ) , a n d it is i m p o r t a n t
agement
to realize the external forces shaping these plans. I n e a c h

case, plans for P o r t A r t h u r w e r e formulated not
only
the
Plan.
T h e B u r r a Charter w a s the p r i m a r y guide for
t h e 1985 p l a n , b u t t h e r e w a s n o e x p l i c i t a r t i c u l a t i o n o f
according to the best practices o f the conservation field
"values" or a n explicit process o f investigating different
at t h e t i m e , b u t also t os e c u r e f u n d i n g for t h e site's c o n s e r
v a l u e s . " T h e c u l t u r a l s i g n i f i c a n c e o fP o r t A r t h u r is r e a d i l y
v a t i o n f r o m ap a r t i c u l a r g o v e r n m e n t s o u r c e . T h e a b i d i n g
apparent."
p u r p o s e o fs e c u r i n g f u n d i n g t h r o u g h p o l i t i c a l c h a n n e l s
p o i n t s t a t e m e n t o fc u l t u r a l s i g n i f i c a n c e :
has s h a p e d the goals, methods, a n d o u t c o m e s o f the
i.
various plans.
Management
Plan, formulated by the T a s m a n i a n N P W S , w a s
ii.
the
T h e site's v a l u e as p h y s i c a l r e m a i n s o f p e n a l
fairly aggressive restoration a n d for the
concentration
a r o u n d M a s o n C o v e . T h i s has b e e n referred to as the

Williamsburg approach, focusing o n the convict period
SITE
develop
m e n t of Tasmania and the nation

iii.
T h e townscape /landscape values [referringt o
iv
T h e "buildings a n d structures are important a n d
of development (including infrastructure and residences

for site staff i n historic b u i l d i n g s ) o n the historic c o r e
T h e site's associations w i t h t h e A u s t r a l i a n c o n v i c t
system, and the role of the system in the
first m o d e r n p r o f e s s i o n a l p l a n for t h e site. It c a l l e d for
T h e p l a n n e r s codified the site v a l u e s i n a four-
settlement and o f Carnarvon
T h e 1975 D r a f t P o r t A r t h u r S i t e
130
3 7
aesthetic values]
scarce examples of their type."
3 8
T h e " e c o n o m i c i m p o r t a n c e o f t o u r i s m " t ot h e
state
s p e a k i n g to t h e site's e c o n o m i c v a l u e w a s n o t e d
i n 2000. T h e 2000 C o n s e r v a t i o n P l a n k e p t i n m o t i o n
s w i n g i n g p e n d u l u m o f values, b r i n g i n g site
on
p a g e i o f the p l a n as acontext o f the study, b u t n o t as
back
o n e o f t h e v a l u e s o r v a r i a b l e s p e r se.
p l a n n e r s v i e w as aclear prioritization o f heritage values.
" T h e principal direction of m a n a g e m e n t for the
from
the
management
the revenue-centered m o d e l toward w h a t the
In practice, o f course, conservation activities m u s t be bal
Port A r t h u r Historic Site will be towards conservation o f
a n c e d w i t h the revenue-generating t o u r i s m activities o n
the fabric o f the settlement to enable the historic realities
t h e site, a n d this i m p o r t a n t c h a l l e n g e defines m a n y o f t h e
of the Site to b e accurately a n d continuously
site m a n a g e m e n t issues d i s c u s s e d b e l o w . I n fact, several
at m a n y levels, w h i l e p r o v i d i n g visitor a n d
requirements with minimal impact."
3 9
understood
management
plans for Port A r t h u r formally recognized the n e e d t o

w o r k o n b o t h conservation a n d tourism, b u t different
Based on these
value priorities, arresting physical decay o f the historic
levels a n d sources o f f u n d i n g contributed to the
fabric w a s the p a r a m o u n t goal. Reconstruction, advo
between management regimes focused on
swings
conservation
c a t e d s t r o n g l y i n t h e 1975 s c h e m e , w a s t o b e u n d e r t a k e n
and those focused o n tourism. Currently, the
o n l y w h e n it w a s t h e s o l e m e a n s o f a r r e s t i n g d e c a y .
m e n t o f P o r t A r t h u r s e e m s to have achieved afairly bal
T h e 1985 p l a n r e p r e s e n t e d a n i m p o r t a n t s h i f t i n
philosophy to value the post-convict-era historical layers
a n d f a b r i c , c a p t u r i n g , a s B r i a n E g l o f f p u t s it, " t h e t r a n s f o r
manage
a n c e d position, o n e that gives conservation aclear, b u t

n o t exclusive, priority over c o m m e r c i a l activities.
T h e c u r r e n t r e g i m e o f v a l u e articulation a n d site
mation of aconvict landscape into an Australian town
m a n a g e m e n t is t h e s u b j e c t o f t h e s e c t i o n s t h a t follow,
ship."
w h i c h f o c u s o n t h e 2000 C o n s e r v a t i o n P l a n .
4 0
T h i s a v o w e d l y p r o - c o n s e r v a t i o n s t a t e m e n t o f site
values (not to m e n t i o n the clear "value the layers" conser

vation philosophy) s w u n g the p e n d u l u m toward conser
vation o f heritage values a n d has since b e e n v i e w e d as
a b e n c h m a r k . It p r o v e d difficult to execute this level o f
c o n s e r v a t i o n activity, h o w e v e r , w i t h o u t the
extended
OFFICIAL STATEMENT OF SIGNIFICANCE

A t present, the v a l u e s o f the P o r t A r t h u r site are refer
enced in the T a s m a n i a n Heritage Register's
statement
of significance:
c o m m i t m e n t of T a s m a n i a n State funds o n w h i c h the
Port Arthur Historic Site is of great historic cultural heritage
plan was premised.
value to Tasmania and Australia for its ability to demon
A f t e r 1987, s t a t e f u n d i n g f o r P A C D P c e a s e d , a n d
strate the convict periodfrom1830 to 1877 and its ability to
the creation of P A H S M A w a s naturally accompanied by a
demonstrate the subsequent developments of the site, par
swing of the p e n d u l u m back toward economic values and
ticularly as a tourist attraction and the attempts to downplay
generating revenue t h r o u g h tourism. Site
the site's convict history. Port Arthur Historic Site is one of
management
t u r n e d its a t t e n t i o n o n c e a g a i n t o w a r d o b t a i n i n g r e v e n u e
only three convict settlements in Tasmania. It is a rare and
and away
endangered place. Port Arthur Historic Site has considerable
from
research and physical conservation of her
itage resources. " G i v e n the significant economic, social,
potential for scientific and social research to contribute to
a n d political i m p a c t s following the events at P o r t A r t h u r
the understanding of Tasmania's history. Port Arthur is a
i n A p r i l 1996, t h e A u t h o r i t y h a s r e c o g n i s e d t h e n e e d t o
prime example of the British colonial penal system, the evo
b r i n g f o r w a r d plans c o n c e r n i n g visitor facilities a n d serv
lution of that system during the 19th century, and the effects
ices w i t h i n the Site," including asound-and-light show, a
of that system in shaping Australian society. The site has the
n e w Visitor Center, a n access road, a n d p a r k i n g areas.
ability to demonstrate a high degree of technical and cre
4 1
This change in m a n a g e m e n t strategy and prioritization
ative achievement for the time, including industrial enter
o f values w a s not a c c o m p a n i e d b y an e w articulation of
prises such as shipbuilding, saw milling and brick making.
v a l u e s . T h e 1996 a m e n d m e n t s t o t h e 1985 m a n a g e m e n t
Port Arthur Historic Site, as the most famous convict site in
plan (done by P A H S M A ) codified these changes
Australia, has a strong and special meaning for the Tasma
(many
o f w h i c h c a m e b e f o r e t h e w r i t i n g o f t h e 1996 a m e n d
nian as well as the Australian community as a place of sec
ments) but contained n o statement (or restatement)
ondary punishment in the convict system. The place also has

a special meaning to Tasmanians for its association with the
o f site values.
T h e shifts i n v a l u e s resulting
from
the
changes
1996 mass killing by Martin Bryant. The site has particular
i n m a n a g e m e n t b e t w e e n 1970 a n d 2000 s e t a n i m p o r t a n t
associations with Governor Arthur and political prisoner
context for understanding the new, explicit articulation
Smith O'Brien
of values in the conservation planning process
4 2
completed
131
A s a s t a t e m e n t o f t h e site's v a l u e s , the p r e c e d i n g q u o t e
(vis-a-vis p e n a l history a n d c h a n g e s in c o n f i n e m e n t
t o u c h e s o n all four B u r r a C h a r t e r categories a n d speaks
ophy) a n d the different parts o f the penal s y s t e m spread
strongly to the values attributed to the different historic
across the T a s m a n Peninsula (the probation stations).
layers of the post-European-contact Port Arthur land

scape:
from
T h e combination of the picturesque landscape
the founding o f the convict period to the
and the paradoxical representation of convict history in
1996 t r a g e d y , i n c l u d i n g t h e c o n t i n u a l r e i n t e r p r e t a t i o n
o f the site's h i s t o r y i n t h e d e c a d e s b e t w e e n t h e
of the convict era and the beginning of the
philos
this s e t t i n g is specifically c a l l e d o u t as a v a l u e .
end
P A is " a c o m p l e x l a y e r e d c u l t u r a l l a n d s c a p e . "
modern
O n a n i n t e r n a t i o n a l scale, P A is a n i m p o r t a n t p a r t
c o n s e r v a t i o n e r a i n t h e 1970s. T h i s s t a t e m e n t p a v e s t h e
of the British penal/colonization/forced-labor
system
w a y for assessing the v a l u e s o f the site b y v a l u e - t y p e o r
(this relates to the W o r l d H e r i t a g e n o m i n a t i o n ;
see
b y historical layer.
below).
THE
2000 CONSERVATION P L A N
P A is a n e a r l y a n d l e a d i n g e x a m p l e o f a h e r i t a g e -
43
based tourist destination.
T h e v a l u e s o f the P o r t A r t h u r site h a v e b e e n articulated

m o s t e x h a u s t i v e l y i n t h e 2000 C o n s e r v a t i o n P l a n , o n e
of
two main management documents formulated by

T h e Conservation Plan's detailed a n d rigorous b r e a k d o w n
o f the site's v a l u e s w a s g e n e r a t e d a c c o r d i n g to r e s e a r c h
a n d the m u l t i p l e significance criteria applicable to the site
from
the
AHC).
Broadly, the values are articulated a c c o r d i n g to the
Burra
C h a r t e r categories o f aesthetic, historic, scientific, a n d

social value, w i t h equivalent categories added for Aborigi
nal and W o r l d Heritage values. T h e values are s u m m a
rized below.
4 5
A s part of the penal system, P A w a s also a n indus

trial c o m p l e x .
T h e A p r i l 1996 t r a g e d y a d d e d " a n a d d i t i o n a l l a y e r
o f t r a g i c s i g n i f i c a n c e " t ot h e site; it is n o w a s s o c i a t e d w i t h
national gun laws.
P A is e v i d e n c e o f t h e p r o b a t i o n s y s t e m , a n d l a t e r
as awelfare institution (lunatics, the poor, etc.).
A f t e r 1877 ( e s p e c i a l l y t h e p o s t - 1 8 9 4 r e n a m i n g ) ,
Aesthetic Values:
ing buildings and landscape.
H a r b o r location and water-boundedness of the
l a n d s c a p e is p a r t o f t h e v a l u e d a e s t h e t i c (also t r u e o f
other places o f s e c o n d a r y p u n i s h m e n t ) , so this aspect o f
aesthetic value relates closely to historic (convict) values.
Visual " l a n d m a r k qualities" as represented b y the
church ruins, the penitentiary ruins, and the views t o
Point P u e r a n d Isle o f the D e a d .
Individualbuildings and elements of the English/
b u s h landscaping each convey particularaesthetic values
(for example, G e o r g i a n colonial style o f the R o y a l E n g i
neers, use of local materials, or lack of craftsmanship in
a building's convict labor).
Tasmanian local c o m m u n i t y or small township.

Scientific Values:
Above- and below-ground historical and
maritime resources have "exceptional research potential"
to yield insight into the convict experience; this extends
to t h e c u l t u r a l l a n d s c a p e itself, i n d i v i d u a l s t r u c t u r e s , a n d
archival collections.
A b o r i g i n a l sites are separately a c k n o w l e d g e d as
having research value.
N a t u r a l r e s o u r c e s o f the site "are also a n i m p o r
tant scientific research resource."
T h e s e scientific v a l u e s refer to P A site a n d the
outliers (e.g., P o i n t P u e r ) .
T h e combination of "oral tradition [including
family links], d o c u m e n t a r y evidence,
Historic Values:
P o r t A r t h u r ( P A ) is ap r e m i e r c o n v i c t site r e l a t i n g
to the nation's convict history; this takes precedent
over
other historic values.

D r a w i n g directly o n this, several subvalues are
identified, s u c h as the historic value o f the Separate P r i s o n
PA's settlement w a s a n important event in the

history of Tasmania.
P o r t A r t h u r / C a r n a r v o n h a s historic v a l u e as a typical
Abeautiful and picturesque landscape, combin
132
conservation philosophy and practice (both in manage

ment and in conservation/restoration work).
P A H S M A , the other being the annual Corporate Plan.
(from T a s m a n i a n State legislation a n d
P A illustrates c h a n g i n g approaches to heritage
SITE
collections,
structures, e n g i n e e r i n g relics, archaeological features

a n d landscape at P o r t A r t h u r h a v e u n p a r a l l e l e d potential
for c o m m u n i t y
education."
Scientific, educational, a n d other values
Social Values:
P A is a s y m b o l o f t h e c o n v i c t p a s t o f A u s t r a l i a .
ings for the non-Aboriginal
(mean
community)
- (Potential) scientific value
P A is a s y m b o l o f T a s m a n i a ' s r o l e i n A u s t r a l i a n
- A s historic value, Aboriginal values help
demon
P A is a f o u n d a t i o n f o r T a s m a n i a n s ' self-identity.
strate that the significance of P A goes b e y o n d the
convict
P A is a m a r k e r o f f a m i l y h i s t o r y f o r s o m e ( e s p e
era.
history.
cially those cultivating links to convictism) a n d o f A n g l o World Heritage Values:
Celtic heritage for alarger group.

" P A is a significant l o c a l l a n d m a r k " a n d s t a n d s
as a n i m a g e o f the T a s m a n P e n i n s u l a a r e a as a w h o l e .
" T h e A r c a d i a n qualities of the Port A r t h u r land
scape are o f significance to generations o f T a s m a n i a n s
a n d other visitors."
4 6
P A is o n e o f e i g h t sites i n c l u d e d i n t h e
thematic
n o m i n a t i o n that has b e e n drafted (but not forwarded) for

Australian C o n v i c t Sites.
4 7
T h e values identified to support the W o r l d H e r

itage C o n v e n t i o n criteria are in accord w i t h the other val
P A "holds an important place in the history of
ues identified above, though they focus mostly o n historic

values a n d ignore values a n d significance for the local
m o d e r n heritage conservation in Australia."

T h e 1996 t r a g e d y h a s m a d e P A a p o i g n a n t p o l i t i
cal s y m b o l at a national level [ a n d ap o i g n a n t m a r k e r o f
communities, areal source of complexity and challenge in

managing PA.
grief for those locally a n d those directly associated w i t h

the tragedy].
The Burra Charter methodology was
P A is o f c o n t e m p o r a r y s o c i a l s i g n i f i c a n c e
to
Tasmanian Aboriginal people.
to articulate, research, a n d assess these values, a n d they

are the result of adeliberate process of
investigation,
research, consultation, a n d synthesis. T h e value
P A represents the identity of the T a s m a n

P e n i n s u l a c o m m u n i t y ; this s t r o n g a s s o c i a t i o n is p o s i t i v e
employed
categories
necessarily overlap (e.g., s o m e historic v a l u e s also a p p e a r
(a r e a s o n to r e c o g n i z e a n d c e l e b r a t e c o m m u n i t y life)
u n d e r A b o r i g i n a l values a n d W o r l d H e r i t a g e values), as
and negative (signaling the estrangement that has b e e n
it is i m p o s s i b l e to f u l l y s e p a r a t e o n e k i n d o f site v a l u e
felt
from
the site itself).
f r o m all others. S e e i n g the C o n s e r v a t i o n P l a n as the p r o d
T h e s t r o n g c o m m u n i t y a t t a c h m e n t to P A is t o d a y
u c t o f B u r r a C h a r t e r m e t h o d o l o g y is i m p o r t a n t f o r
"underscored" b y the e c o n o m i c i m p o r t a n c e o f the his
understanding the particular concept of "social values"
toric site for the p e n i n s u l a .
u s e d (to e n c o m p a s s all the different senses o f place attach
P A is a p l a c e o f e n j o y m e n t , r e f l e c t i o n , a n d c a t h a r
sis w i t h r e g a r d to c o n v i c t i s m .
ment, historical and contemporary) and the absence
of
"economic values," w h i c h are largely excluded f r o m con

siderations of cultural significance.
4 8
In keeping with
Aboriginal Values:
B u r r a m e t h o d o l o g y , t h e a r t i c u l a t i o n o f site v a l u e s is c e n
Associational values
tered o n the four p r i m a r y types: historic, aesthetic, social,
- General associational value with Aboriginals due
a n d scientific.
to their o c c u p a t i o n o f the T a s m a n Peninsula.
V a l u e a r t i c u l a t i o n is a l s o o r g a n i z e d a c c o r d i n g
- T h e v a l u e o f s o m e A b o r i g i n a l sites o n the p e n i n
s u l a , t h o u g h it is n o w a h i g h l y m o d i f i e d
landscape.
to stakeholder c o m m u n i t i e s : the m a i n l a n d Australian

community, the T a s m a n i a n community,
- N e g a t i v e value, to A b o r i g i n a l s , o w i n g to their dis

location f r o m this place.
the
Tasmanian Aboriginal community, the local T a s m a n

Peninsula community, the tragedy community,
- W e a k associational values in the post-European

era.
and
the heritage c o m m u n i t y . T h i s effort to l o o k at values

f r o m multiple perspectives maximizes the articulation
S o c i a l v a l u e s ( m e a n i n g s felt b y t h e
Aboriginal
contemporary
community)
Based o n the values articulated in the
- Existence of traditional Aboriginal resources

( t h o u g h t h e r e a p p a r e n t l y is little p h y s i c a l e v i d e n c e
o f the site's values.
of
such).
Conservation Plan, Port Arthur's current statement

of significancePAHSMA'sbenchmark policy statement
o n cultural v a l u e s r e a d s as
follows:
4 9
- T h e Aboriginality of the area has been crushed

by the post-invasion convict era.
133
STATEMENT OF SIGNIFICANCE
The B r o a d A r r o w Cafe
Port Arthur Historic Site is an outstanding convict place
a n d the 1996 Tragedy
an important foundation for Australia's sense of identity.

Port Arthur is significant in a World context because it
exemplifies a worldwide process of colonial settlement
using labour provided by forced migration. The place sym
bolises an expansionist period of European history and
British strategic objectives. It displays key aspects of penal
philosophy and the social structure that produced it.
In conjunction with other Australian Convict places, Port
Arthur demonstrates aspects of the British penal system,
in particular, concepts of religious instruction, secondary
punishment and segregation as adopted in Australia. It is a
focal point for understanding the convict history and con
I n A p r i l 1996, a g u n m a n e n t e r e d t h e B r o a d
A r r o w Cafe in Port Arthur and opened
killing twenty people. After
firing
fire,
more
shots
outdoors in the parking area, he got into his

car a n d continued his killing spree. T h e tragic
event a d d e d another layer to the dark history
o f P o r t A r t h u r a n d p r e s e n t e d an u m b e r o f
c h a l l e n g e s for site m a n a g e r s .
vict-period operation of the Tasman Peninsula. The place

also represents changing community attitudes to the notion
of convict heritage.
At Port Arthur, a sense of scenic beauty is heightened by the
paradox of a grim past. Topography and layers of history
reflected in indigenous and introduced plantings and an
array of structures combine in an evocative and picturesque
cultural landscape. The Arcadian qualities of this landscape
contrast with its historical role as an industrial penal site.
The form and location of built elements display deliberate
design and arrangement, reflecting the initial order and
hierarchy of Port Arthur's civil, military and penal settle
ment and subsequent post-convict history. The place retains
F r o m the perspective of several distinct stake

holder groups, the heart-wrenching events
associated with the Port Arthur massacre have
h a d am a r k e d effect o n t h e v a l u e s o f t h e site.
In the words of one interviewee, the
tragedy
h a s " d r a w n al i n e " i n t h e h i s t o r y o f t h e site,

between what c a m e before and what
afterward.
comes
T h e incident has m a d e Port Arthur
a high degree of integrity and authenticity.
both apoignant c o n t e m p o r a r y political s y m b o l
Port Arthur is an important element in Australian identity,
a n d as y m b o l o f g r i e f for locals a n d o t h e r s
invoking intense and, at times, conflicting feelings.

The place has traditionally been an important centre of
economic activity and work in the Tasman Peninsula and
Tasmaniainitially as a convict workplace, later a town and
premier tourist destination.
directly associated w i t h the tragedy.

T h e shooting i m p a c t e d not only the cafe a n d
its staff ( s o m e o f w h o m w e r e a m o n g t h e v i c
For the Tasman Peninsula community, Port Arthur has

strong and enduring associations and meanings as a land
t i m s ) b u t also the entire site b y r e c a s t i n g t h e
mark and as the symbolic centre of the community.
image of Port Arthur in the public mind.
Port Arthur's physical evidence, both above and below
O p i n i o n s differ as to h o w the values
ground, has exceptional scientific research potential arising

from the extensive resource itself, the integrity of archaeo
logical deposits and the ability of material culture to provide
valuable insight into the convict experience. In combination,
the oral tradition, documentary evidence, collections,
structures, archaeological features and landscape at Port
Arthur have great potential for research and community
education. Port Arthur is a landmark place in the history and
associated
w i t h t h e 1996 t r a g e d y r e l a t e t o t h e c o r e c u l t u r a l
values of Port A r t h u r (those related to convic
t i s m ) . A l t h o u g h t h e t r a g e d y is m e n t i o n e d i n
the Conservation Plan s statement
o f s i g n i f i c a n c e , t h e p l a n sm a i n f o c u s is o n
convictism. T h e c r i m e at the B r o a d A r r o w
study w a s p r a i s e d as a successful effort to d o c u
a d d e d a n ironic n o t e to the cultural values that
m e n t and address stakeholders' values.
were already driving the convictism theme.
For
s o m e visitors, the shooting o v e r s h a d o w e d
con
v i c t i s m a n d its i n d u s t r i a l , p e n a l , a n d l a n d s c a p e
s t o r i e s . T h e 1996 t r a g e d y i s t h u s
deliberately
T h e social-value study discerned national val

ues, s o m e of w h i c h , though, w e r e
expressed
u n i q u e l y b y local c o m m u n i t i e s (e.g., the

m o u r n i n g of those directly affected b y the
not p r o m o t e d to visitors.
event). T h e s e local a n d national values,
Different groups held different opinions

h o w the cafe site s h o u l d b e h a n d l e d .
about
how
ever, w e r e conflicted as m u c h as t h e y w e r e
related. T h e negative site values h e l d b y t h o s e
Some
w a n t e d all evidence o f the event destroyed.
in m o u r n i n g sensibly led to the partial destruc
Indeed, the cafe w a s partially d e m o l i s h e d as a n
tion o f site f a b r i c a n a t t e m p t to r e m o v e
act o f m o u r n i n g . O t h e r s s o u g h t to m a r k the
of the horrible events. T h o s e focused o n a
site: m e m o r i a l s a p p e a r e d s o o n a f t e r w a r d . T h e
m o r e l o n g - t e r m a n d m o r e positive v i e w o f site
different social values o f the cafe, c o r r e s p o n d
v a l u e s (e.g., that the P o r t A r t h u r t r a g e d y repre
ing to different c o m m u n i t i e s
sented aturning point in g u n control laws, or
/stakeholder
that the Port Arthur tragedy represented an
groups, w e r e a source o f real conflict.

Site m a n a g e r s tried to ensure that the range
values w a s fully researched a n d that n o
traces
of
group's
additional layer o f history) w i s h e d to preserve

the r e m a i n s as aw a y o f preserving the
positive
social value.
values w e r e excluded. I n deciding w h a t ulti

m a t e l y w o u l d h a p p e n to the physical r e m a i n s
In the context o f this case study, a n u m b e r
o f t h e cafe site, a c a r e f u l s t u d y o f t h e s o c i a l
o f conflicts over values a n d fabric c a n be
v a l u e s associated w i t h the t r a g e d y a n d the site
identified:
was undertaken. T h e study followed a
Different stakeholders, s o m e representing local
m e t h o d o l o g y developed specifically for under
constituencies (relatives o f victims, local resi
standing the different social values ascribed to
dents, P o r t A r t h u r staff) a n d others
h e r i t a g e sites, a n d w h i c h d e p e n d e d o n
ing m o r e national (nonlocal)
identify
ing a n d interviewing the b r o a d range of stake

holder groups. T h e study's findings illuminated
represent
constituencies,
c o n s t r u e d the values o f the cafe
differently.
F i n d i n g v a l u e i n ab u i l d i n g (or, a s c r i b i n g v a l u e s
w h a t course o f action to take. B y using a delib
to fabric) does not always lead to apolicy o f
erate and detailed process of consultation
conservation. I n s o m e instances, negative
deal w i t h an emotionally charged situation,
to
the
values suggest destruction or neglect of the
135
fabric as the preferred c o u r s e o f action.
the building w a s p r e s e r v e d in astate
Divergent values held b y different groups
and
of
stripped-down ruins, cleared of any physical
individuals pointed to different w a y s to handle
evidence of the shooting, yet clearly m a r k i n g
the fabric o f the cafe: negative social values led
t h e a c t u a l site as aliteral m e m o r i a l .
to adesire to destroy the physical remains; posi

tive social v a l u e s (e.g., t h e institution o f
national g u n control legislation) suggested con
s e r v i n g t h e p h y s i c a l r e m a i n s o f t h e t r a g e d y site.
B y putting Port Arthur o n the front page

nationally a n d internationally, the
immediately heightened the
tragedy
contemporary
s o c i a l v a l u e s o f P o r t A r t h u r , a n d it l i k e l y
T h e resolution of these conflicting v a l u e s
b r o u g h t m o r e visitors too. I n a n
a painful process that involved an u m b e r of
s e n s e , t h e r e is a n o t h e r c o n n e c t i o n b e t w e e n
s t a k e h o l d e r g r o u p s a n d a site
t r a g e d y a n d site values: p o s t - t r a g e d y
management
team in transitionwas multifarious.
Some
economic
the
govern
m e n t funding led to the debate about the siting
p a r t s o f the site w e r e c o n s e r v e d i n a c c o r d w i t h
and f o r m of the Visitor Center, w h i c h in turn
e a c h set o f values. A n e w m e m o r i a l w a s
helped stimulate the design and commission
installed (a cross m a d e o f h u o n pine, initially
ing of the Conservation Plan and the
i n t e n d e d as at e m p o r a r y m a r k e r ) ; the
articulation of values and values-based plan
demoli
n e w
tion o f the cafe, b e g u n i m m e d i a t e l y after the
n i n g for t h e w h o l e site ( t h o u g h ar e v i s e d c o n
tragedy, w a s halted; a n d the remaining shell of
servation plan h a d already been in the works).

O v e r t i m e , it is l i k e l y p e r h a p s i n e v i t a b l e
that the values associated w i t h the cafe, a n d the
s t r e n g t h w i t h w h i c h t h e y a r e felt, w i l l c h a n g e . I n
the years since the stabilization o f the cafe ruins
a n d t h e c r e a t i o n o f m e m o r i a l s , site m a n a g e r s
h a v e p l a c e d a n interpretive m a r k e r at t h e site
a n d published am o d e s t b r o c h u r e in response
to
visitor inquiries. S u c h interpretation w o u l d have

s e e m e d i n a p p r o p r i a t e i n the i m m e d i a t e after
Port Arthur Memorial Garden. Demolition of the cafe was
started shortly after the 1996 tragedy but was halted by court
order. The structure remained in ruins until it was recon
structed as a memorial. The memorial, however, is not given
prominence in the interpretation schemes of Port Arthur
and serves primarily as a quiet testimony to the senseless
killing of staff and visitors. Photo: Marta de la Torre
136
m a t h of the tragedy, w h e n n o one w i s h e d to

d r a w a t t e n t i o n to t h e site. A s l o c a l m e m o r y
b e c o m e s less i m m e d i a t e a n d locals deal w i t h
their grief, the n a t i o n a l m e m o r y w i l l likely
b e c o m e predominant, and the Port Arthur

tragedy will likely take o n value
as a n o t h e r layer o f national significanceas
o p p o s e d to the extraordinary, conflicted, a n d
development of Australian heritage conservation philosophy

and practice.
Port Arthur and the Tasman Peninsula have contemporary
significance for Tasmanian Aboriginal people, arising from
the perceived intactness of the natural landscape and the
presence of pre-contact Aboriginal sites that connects the
particularly local values of the place that were
present-day Aboriginal community to the pre-contact past.
felt i m m e d i a t e l y after.
The events of 28 April 1996 make Port Arthur a symbol of

continuing tragedy, suffering and gun law reform for all
Australians.
Notes
Port Arthur is a nationally-significant symbol of Australia's

convict past, a highly revered icon that symbolically repre
1.
Scott 1997 is a powerful and detailed account of the tragedy

and its effects on local citizens and those associated with
Port Arthur.
2.
Jane Lennon and Associates 1998; Johnston 1992.
sents Tasmania's place in Australian history

T h e s t a t e m e n t o f significance t o u c h e s o n all cate
gories of value articulated in the planning process and
begins to prioritize t h e m simply b y ordering the brief nar
rative. It also s u c c e e d s i n i n t e r p r e t i n g site v a l u e s i n a n u m
ber o f ways: b y capturing the different cultural values
(aspects of cultural significance) identified in the B u r r a
process and suggesting the character of the Port Arthur
landscape as thickly layered w i t h historic values; b y intro
d u c i n g e c o n o m i c values into the mix; b y referring to vari
ous stakeholder communities that hold these values; and
by suggesting the regional nature of Port Arthur's
s i g n i f i c a n c e i t is t h e p e n i n s u l a r l a n d s c a p e , n o t j u s t t h e
M a s o n C o v e core, that holds significance.
A l o n g with the Conservation Plan, other docu
m e n t s l o o k at the values o f P o r t A r t h u r
from
perspectives
other than those involved in the overall, conservationfocused plans.

BROAD ARROW CAFE CONSERVATION STUDY
T h e Broad Arrow Cafe Conservation Study
5 0
was
com
missioned to research, articulate, a n d assess the heritage

v a l u e s a s s o c i a t e d w i t h t h e A p r i l 1996 t r a g e d y . T h i s s t u d y ,
w h i c h p r e c e d e d t h e 2000 C o n s e r v a t i o n P l a n c o n c e r n i n g
the entire P o r t A r t h u r H i s t o r i c Site, elicited the values o f
the cafe site a c c o r d i n g to established A u s t r a l i a n socialvalue methodology.
5 1
T h e following excerpts
of significance resulting
from
from
the statement
the B r o a d A r r o w Cafe
study speak to the values identified specifically for this

p a r t o f the P o r t A r t h u r site i n the w a k e o f the tragedy.
Further detail a n d discussion can be found in the a c c o m
p a n y i n g s i d e b a r ( s e e p . 134). M o s t s i g n i f i c a n t l y , t h e
found strong negative a n d positive social values
study
associated
w i t h the cafe.
137
The Cafe has nation-wide
social value because of its
connection with the tragedy.

For some communities
j u s t i f i e d o n e c o n o m i c g r o u n d s " t h a t is, o n t h e b a s i s o f
e c o n o m i c impacts that could be m e a s u r e d within the limits
this value is related to deceased
friends and relatives;

for others it is related to the nature of the tragedy,
evoking both negative and positive
o f the study. It also r e c o m m e n d e d that "a full scale heritage

valuation" b e c o m p l e t e d in w h i c h the full r a n g e o f eco
for others such as historians, writers and cultural
T h e s t u d y also f o u n d m i n o r o r negligible aesthetic a n d sci

entific values associated w i t h the Cafe. T h e historic values
w e r e s e e n t o b e s i g n i f i c a n t i n t w o s e n s e s . F i r s t , t h e 1996
t r a g e d y a d d e d a n o t h e r l a y e r to t h e h i s t o r y o f t h e site,
t h o u g h t h e r e l a t i o n s h i p b e t w e e n t h e 1996 t r a g e d y a n d t h e
t r a g i c a s p e c t s o f c o n v i c t i s m is t h e s u b j e c t o f s o m e u n c e r
tainty. S e c o n d , m a n y o b s e r v e r s believe the B r o a d A r r o w
C a f e as t r a g e d y site w i l l a c q u i r e g r e a t e r historic v a l u e i n
s u b s e q u e n t years i n association w i t h the shift i n n a t i o n a l
g u n laws a n d attitudes, a n d m a y even eclipse the locally
held negative social values that w e r e so strong in the
SUMMARY OF T H E VALUES ASSOCIATED

W I T H PORT ARTHUR
W h e t h e r o n e looks at the values that have b e e n articu
l a t e d for t h e P o r t A r t h u r site, o r at r e c e n t p l a n n i n g a n d
p o l i c y d o c u m e n t s , it is c l e a r t h a t b o t h c u l t u r a l a n d e c o
n o m i c values have been recognized and that both have
f o r m e d the basis for decision m a k i n g over time.
In keeping w i t h the B u r r a Charter model, cul
tural a n d e c o n o m i c values are treated differently a n d sepa
rately. C u l t u r a l v a l u e s h a v e b e e n a n a l y z e d a n d articulated
m o s t explicitly, a n d to o n e extent o r a n o t h e r h a v e
r e m a i n e d at the center o f all discussions o f P o r t Arthur's
tragedy's immediate aftermath.
v a l u e as aplace. E c o n o m i c values h a v e b e e n influential i n

shaping decisions and determining the m a n a g e m e n t
UNIVERSITY OF TASMANIA
for
t h e site, b u t t h e y h a v e b e e n a r t i c u l a t e d a n d a n a l y z e d m o r e
ECONOMIC IMPACT STUDY

P A H S M A
a n d c o m p l e t e d i n 1999 i s t h e m o s t d i r e c t a n d d e l i b e r a t e
analysis a n d s t a t e m e n t o f t h e site's e c o n o m i c
t h e h e r i t a g e site i n their o w n right, e m p l o y i n g t h e v a r i o u s

quantitative analytics "native" to the e c o n o m i c s field.
tourists, it is part of the ongoing history of the site.
T h e economic impact study commissioned by
n o m i c values c a n b e analyzed. Ultimately, the goal o f this

study w a s to articulate a n d analyze the e c o n o m i c values o f
responses;
values.
5 2
implicitly, as they are c o n s i d e r e d to b e derived values a n d

not inherent conservation values.
Cultural values center o n the remains of the con
T h e study included dollar estimates of the contributions
vict period, but over the past several decades
o f P o r t A r t h u r H i s t o r i c Site operations to the state econ
philosophy has shifted to e m p h a s i z e the value o f other
conservation
o m y and an exploration of h o w the heritage values of
historic periods of the sitethe C a r n a r v o n period, in
t h e site ( c o n s t r u e d m o r e b r o a d l y b u t still i n e c o n o m i s t s '
p a r t i c u l a r a n d set u p m a n a g e m e n t s c h e m e s i n w h i c h
terms) could be described and estimated. T h e
convict-period values are not p e r m i t t e d to obscure or
first
aspect
of the study s h o w e d that Port A r t h u r clearly has a positive

e c o n o m i c i m p a c t o n the state e c o n o m y , yielding positive
erase these other cultural values.

Economic values have long been part of Port
multiplier effects as g a u g e d t h r o u g h j o b creation,
A r t h u r ' s identification a n d m a n a g e m e n t as ah i s t o r i c site.
P A H S M A expenditures, and tourism outlays in connec
T h i s is m a d e a b u n d a n t l y c l e a r i n D a v i d Y o u n g ' s
t i o n w i t h visits to t h e site.
Crime Pay
A s p a r t o f the s e c o n d aspect o f the study, a dis
54
Making
and in the s u m m a r y history of Port Arthur
in the earlier part o f this case study, a n d r e m a i n s so today.
tinction w a s d r a w n b e t w e e n direct-use v a l u e s o f the site
T h e t o u r i s m d e v e l o p m e n t activities initiated over the
(the impacts o f w h i c h are fairly straightforward to m e a s
past hundred-plus years were never based o n a deliberate
u r e e c o n o m i c a l l y , as w a s d o n e i n the first p a r t o f the
assessment of e c o n o m i c values a n d potentials.
Never
study) a n d indirect "preservation values," s u c h as b e q u e s t
theless, these activities have b e e n formative factors in
v a l u e a n d existence value, w h i c h are m o r e difficult to
t h e m a n a g e m e n t o f t h e site as w e l l as i n s u b s e q u e n t
measure or estimate and are therefore only outlined in the
appraisals o f t h e site's v a l u e s , w h i c h n o w i n c l u d e t h e
document. T h e s e kinds of economic value are briefly
history o f these t o u r i s m activities.
described in the report but are not estimated or analyzed

in detail.
5 3
T h e report concludes that the "large increases in

c o n s e r v a t i o n e x p e n d i t u r e s o n t h e P o r t A r t h u r site c a n b e
138
5 5
T h e next section explores h o w the articulated

site v a l u e s h a v e b e e n i n c o r p o r a t e d into
management
p o l i c i e s f o r P o r t A r t h u r . It is f o l l o w e d b y a d i s c u s s i o n o f
t h e i m p l i c a t i o n s o f m a n a g e m e n t decisions o n site v a l u e s
the factors s t e m m i n g
and vice versa.
tory settings of P A H S M A , overwhelmingly constitute

formal management
strategies.
the
5 7
on
site that t h e s e o l d e r p l a n s are n o t r e l e v a n t to t h e p r e s e n t
Take V a l u e s i n t o C o n s i d e r a t i o n
F r o m t h e f o r e g o i n g , it is c l e a r t h a t P o r t A r t h u r h a s a g r e a t
depth and breadth of values a n d that the Conservation
Plan a n d other documents articulate values in support of
t h e w i d e l y a g r e e d - u p o n c u l t u r a l significance o f t h e site.
F u r t h e r , it is e v i d e n t , i m p l i c i t l y a n d explicitly, t h a t t h e
eco
n o m i c v a l u e s o f P o r t A r t h u r a r e a n i m p o r t a n t f a c t o r i n its
m a n a g e m e n t . I n exploring h o w these values are reflected
i n t h e c u r r e n t m a n a g e m e n t strategies for t h e site, s o m e
emerge:
First, cultural significance values are clearly artic

ulated and addressed in P A H S M A s Conservation Plan
a n d have b e c o m e the basis for c o n s e r v a t i o n policy at a
m a n a g e m e n t o f t h e site. T h e y w e r e o r i g i n a l l y r e q u i r e d for
statutory reasons a n d crafted to attract f u n d i n g as w e l l as
ensure conservation. Although they do not guide
day-to
d a y , s i t e - b y - s i t e d e c i s i o n s t o d a y , t h e 1985 p l a n i n p a r t i c u l a r
h a s s h a p e d t h e d e v e l o p m e n t o f site v a l u e s a n d the c u r r e n t
m a n a g e m e n t by adjusting the balance between
cultivating
cultural a n d e c o n o m i c values. T h e plan also helped

s h a p e d the m a n a g e m e n t o f v a l u e s t o d a y by, for instance,
valorizing Carnarvon-eraresources, ensuring conserva
tion of the remaining heritage resources, and preventing
d e v e l o p m e n t a n d overzealous r e c o n s t r u c t i o n at the
center
o f t h e site.
general level.
THE
Second, both culturaland economic
the institutional a n d regula
O u r interviews revealed the opinion of m a n y
H o w M a n a g e m e n t Policies a n d S t r a t e g i e s
patterns
from
1985 AND 1996 MANAGEMENT PLANS
T o g e t h e r , t h e 1985,1996, a n d 2000 p l a n s r e f l e c t t h e p e n d u
values
strongly shape the m a n a g e m e n t strategies a n d decisions
l u m swings m a n a g e m e n t has t a k e n in order to balance
r e g a r d i n g t h e site.
conservation a n d the a c c e s s / t o u r i s m activities r e q u i r e d to
T h i r d , i n a c c o r d a n c e w i t h t h e site's M i n i s t e r i a l
o p e r a t e the site (in o t h e r w o r d s , b a l a n c i n g the d u a l g o a l s
Charter and the Conservation Plan, conservation has
of conserving cultural significance a n d funding opera
priority over other activities a n d issues in the
tions). T h e m a i n factor in d e t e r m i n i n g w h i c h w a y
manage
the
p e n d u l u m swings has b e e n the availability of external
m e n t o f t h e site.
Fourth, economic values are assessed or analyzed
government
i n t h e c o u r s e o f d a y - t o - d a y m a n a g e m e n t o f t h e site,
funding.
T h e c o m p r e h e n s i v e 1985 M a n a g e m e n t P l a n w a s
w h e r e a s cultural values are assessed a n d a n a l y z e d as p a r t
written near the end of the seven-year P A C D P , w h i c h used
of the deliberate forward-planning scheme
A$9 m i l l i o n o f s t a t e a n d n a t i o n a l f u n d s t o c a r r y o u t a v a r i
represented
ety of conservation works. T h e plan w a s prepared in
in the Conservation Plan.

Fifth, the decisions o f P A H S M A s executive
and
b o a r d are the vehicle for integrating the various cultural
a c c o r d w i t h the B u r r a C h a r t e r a n d identified as m a n a g e
m e n t objectives conservation of fabric a n d cultural
and economic values. T h e board oversees the preparation
significance, as w e l l as t o u r i s m a n d ancillary c o m m e r c i a l
o f t h e C o r p o r a t e P l a n e a c h y e a r . It is af o r m a l
development. Cultural significance centered o n the con
document
endorsed b y the g o v e r n m e n t a n d the vehicle for carrying
vict s y s t e m as the basic vector o f E u r o p e a n settlement
o u t o n ay e a r l y basis C o n s e r v a t i o n P l a n a n d b o a r d policies
Tasmania. Different layers of history w e r e described and
in
a n d priorities r e l a t i n g to t h e site as w e l l as v a r i o u s g o v e r n
a c k n o w l e d g e d c o n v i c t , C a r n a r v o n , m o d e r n b u t as the
m e n t obligations. H o w e v e r , the b o a r d also m a k e s
p l a n stated, " [ T ] h e potential o f P o r t A r t h u r as a n a u t h e n
significant conservation a n d m a n a g e m e n t decisions
more
tic historic site" lies w i t h c o n v i c t i s m .
T h e cultural significance of Port Arthur w a s
informally, based o n the n e e d to integrate the various cul

tural a n d e c o n o m i c v a l u e s o n aday-to-day basis.
d e f i n e d i n t h e 1985 p l a n a s " r e a d i l y a p p a r e n t " :
5 6
T h i s s e c t i o n d e s c r i b e s h o w site v a l u e s are
reflected i n policies b y a n a l y z i n g t h e m a i n site
5 8
(i)
manage
5 9
because the site is a major physical demonstration of the

lives, customs, processes and functions of an early Australian
m e n t documents. S u c h an analysis seems appropriate
penal settlement, and its transformation into the township of
g i v e n that the overall m a n a g e m e n t o f the site h a s
Carnarvon, which is of particular interest and in danger of
been
organized by P A H S M A around the processes that have
being lost.
generated these plansprimarilythe Conservation Plan

and Corporate Plan. These two instruments, along with
139
(ii)
because of the inherent associations of the site with the Aus

tralian convict system, and the role this system played in the
The S e p a r a t e P r i s o n
economic, social and cultural development of the state of

Tasmania in particular, and the nation in general.
(iii)
T h e S e p a r a t e P r i s o n is o n e o f t h e m o s t
because of the townscape and landscape values of the Site,
valued
s t r u c t u r e s at P o r t A r t h u r . It is r e l a t i v e l y i n t a c t ,
and in particular the degree of unity of materials, form and
(iv)
scale, and the contribution of the setting in the landscape.
highly imageable, a n d directly related to
because many of the buildings and structures within the site
of the most dramatic chapters in the history of
are important and scarce examples of their type.
T a s m a n i a n convictism. T h e c o n s e r v a t i o n strat
M a n a g e m e n t p o l i c i e s i n t h e 1985 p l a n r e c o g n i z e
the n e e d to achieve ab a l a n c e b e t w e e n "the d u a l require
m e n t s o f the site w i t h r e s p e c t to c o n s e r v a t i o n a n d
ficance o f the c o n v i c t / p e n a l site "as a n historical d o c u
m e n t " is g i v e n p r i o r i t y , "[a]t t h e s a m e t i m e , t h e H i s t o r i c
Site is o n e o f t h e p r i n c i p a l t o u r i s t d e s t i n a t i o n s i n T a s m a
n i a , a n d as s u c h is o f v i t a l i m p o r t a n c e to t h e State's e c o n
o m y . It is i m p e r a t i v e t h e r e f o r e t h a t t h e e n j o y m e n t
and
interest o f visitors to the Site be aprincipal c o n c e r n o f

m a n a g e m e n t to be b a l a n c e d w i t h the n e e d to curate the
6 0
T h e policies i m p l e m e n t i n g this strategy,
however, continued in the direction of conservation and

did not result in strong revenue-generating measures. T h e
eleven policies almost entirely cover guidance of conser
v a t i o n , w i t h little a t t e n t i o n p a i d to t o u r i s m
e g y f o r t h e p r i s o n is o f g r e a t i n t e r e s t . A s o f this
writing, the recommendations currently being
tourism." A l t h o u g h the national a n d T a s m a n i a n signi
Historic site."
some
development
o r access. A l s o i n c l u d e d is a s t a t e m e n t a b o u t t h e e x c l u s i o n
considered include acombination of preserva

tion, repair, a n d reconstruction o f s o m e
ele
m e n t s , as w e l l as c o r r e c t i n g s o m e past r e c o n
structions. T h e plan provides aglimpse
into
h o w the general conservation policies of
the
Conservation Plan are being integrated and

applied to the details o f asingle b u i l d i n g
particularly, h o w significance a n d values are
related to specific fabric interventions.
o f c o m m u n i t y facilities f r o m t h e site, a p p a r e n t l y prioritiz

ing the conservation of the core convict/penal landscape,
T h e 1840s s h i f t i n i n c a r c e r a t i o n p h i l o s o p h y r e p
a n d t o u r i s t a c c e s s t o it, o v e r t h e s o c i a l v a l u e s e m b o d i e d i n
resented by the Separate Prisonseparation
c o m m u n i t y u s e o f t h e site, w h i c h h a d g r o w n o v e r t i m e .
a n d isolationis historically significant a n d
Safely focused o n conservation of cultural

significance given the steady stream of government
t h e 1985 p l a n w a s e s s e n t i a l l y a c o n t i n u a n c e o f t h e
funds,
P A C D P
years. A s P A C D P funds ceased a n d P o r t A r t h u r strived to

b e c o m e m o r e e c o n o m i c a l l y self-sufficient, that practice
gave w a y to years of reorientation t o w a r d e c o n o m i c
val
ues a n d efforts to generate revenue. T h i s m a r k e d a turn

ing point in h o w m a n a g e m e n t policies took values into
consideration.
T h e 1996 M a n a g e m e n t P l a n r e f l e c t e d t h i s s h i f t i n
values. N o t afull plan, b u t r a t h e r a n eighteen-page set o f
a m e n d m e n t s t o t h e 1985 M a n a g e m e n t P l a n , t h e 1996 p l a n
did not rearticulate values but revised and changed
some
o f t h e p o l i c i e s s e t i n 1985. " T h e A u t h o r i t y f i n a n c e p r o
g r a m is r e d u c i n g its d e p e n d e n c e o n g o v e r n m e n t a n d t h e
general limited availability o f funds f r o m that s o u r c e . . . .
the overall i m p a c t [ o f this shift] c a n b e m i t i g a t e d
through
140
resonates today. T h r o u g h the m a n y decades

2
of
P o r t A r t h u r ' s life as a t o u r i s t site, t h e S e p a r a t e

Prison has b e e n the m o s t visited. T h e building
has endured several substantial episodes of
construction, conservation, reconstruction,
destruction, and reuse. M u c h of the fabric of
t h e p r i s o n is i n s e r i o u s n e e d o f r e p a i r ; o v e r a l l
t h e b u i l d i n g is i n p o o r c o n d i t i o n a n d d o e s n o t
present an authentic or contemplative
ence for visitors.
experi
The original plan of the Separate Prison, showing individual

cells, exercise yards, and chapel. (Source: 2002 Conservation
Plan.) Reproduced with permission of the Archives Office of
Tasmania, PWD 266I822.
141
T h e p l a n n i n g p r o c e s s b e h i n d t h e 2000 C o n s e r
vation P l a n provides guidance for the
treatment of particular areas of
specific
conservation
S o m e walls that historically separated

yards will be
exercise
reconstructed.
T h e m a i n entrance, w h e r e convicts historically
activity t h r o u g h secondary plans a n d specific
entered the building, w a s incorrectly recon
conservation projects formalized in "individual
s t r u c t e d f r o m t h e 1930s t h r o u g h t h e 1950s ( t h e
element plans," master plans, a n d projects. T h e
o p e n i n g f a c e d n o r t h w h e r e a s it o r i g i n a l l y f a c e d
S e p a r a t e P r i s o n P r o j e c t R e p o r t , w h i c h is i n t h e
south) and will be reconstructed again.
d r a f t stage, is afull-scale c o n s e r v a t i o n p l a n f o r
S o m e cell interiors a n d doors will be recon
the building. T h e plan w a s undertaken by out
structed for the sake of interpretation
side consultants (Design 5Architects) a n d has
(no original doors are extant).
been reviewed by the Heritage Advisory Panel

a n d staff o f the C o n s e r v a t i o n D e p a r t m e n t .
of the Separate Prisonthe power of being in a
Prior to i m p l e m e n t a t i o n o f the project, the

plan and the proposed scope of w o r k must
T h e aesthetic impact a n d historical narratives
stark setting, representing anotorious t u r n in

be
approved by the T a s m a n i a n Heritage Council.
incarceration philosophyare
compelling.
Creating an "immersion" experience
through
T h e S e p a r a t e P r i s o n P r o j e c t R e p o r t is b e i n g
w h i c h this c a n b e c o n v e y e d to v i s i t o r s is t h e
d e v e l o p e d as aderivative o f the C o n s e r v a t i o n
driving force b e h i n d the decisions for selective
P l a n a n d fleshes o u t the overall site values a n d
r e c o n s t r u c t i o n s w h i c h , as the B u r r a C h a r t e r
significance statements articulated in the
a n d C o n s e r v a t i o n P l a n p o l i c i e s c l e a r l y state, is
Con
servation Plan. T h e Separate Prison Project
acceptable only under the m o s t stringent condi
Report includes documentation,
tions. F o r instance, the principles guiding
historical
research, and condition assessment of
specific decisions o n the p r i s o n sfabric state, "It
the
structure. Issues of interpretation a n d visitor
is e s s e n t i a l t o at l e a s t p a r t l y r e i n s t a t e t h e h i s t o r i
access are carefully integrated w i t h
cal 'opacity' o f the building, w h e r e b y a n out
decisions
o n the care o f fabric; the plan focuses o n m a k
sider could not see in, a n d a n i n m a t e could
ing an interpretable building, not merely
see b e y o n d his controlled space." M e a n w h i l e ,
on
however, the overall policies of the C o n s e r v a
conserving the fabric.

T h e planned treatment of s o m e major build
ing elements includes the
not
following:
tion P l a n set ac o n t e x t for these decisions:

" E v i d e n c e o f later (e.g., post-convict) u s e s o f
the building will be conserved and interpreted,
but will not be
142
emphasized."
T h e Separate Prison plan strikes a balance
s t r u c t e d t o o s p e c u l a t i v e l y i n t h e 1950s.
between conservation of cultural values and
N o w k n o w n to be inaccurate, r e m o v a l a n d
creating an interesting visitor attraction b y
reconstruction of these elements has been con
reconstructing s o m e lost building elements,
t e m p l a t e d b u t is n o t c u r r e n t l y p l a n n e d . T h e
removing s o m e layers of previous restoration,
benefit o f vivid interpretation s e e m s to be
a n d stabilizing other fabric elements. T h e deci
driving force behind these interventions. Deci
sions s e e m motivated b y aclear understanding
sions for r e c o n s t r u c t i n g e l e m e n t s fall w i t h i n
o f the central role this structure s h o u l d play in
the boundaries of sound conservation practice
t h e r e a l i z a t i o n a n d m a n a g e m e n t o f t h e site's
( r e c o n s t r u c t i n g o n l y w h e n t h e r e is e v i d e n c e
cultural significance values (particularly the
the original, a n d / o r w h e r e the existing recon
c o n v i c t i s m themes), as w e l l as the financial
s t r u c t i o n is i n a c c u r a t e o r m i s l e a d i n g ) a n d d o
imperative realized b y attracting visitors.
not sacrifice a n y fabric associated w i t h k e y
T h e proposals follow the
the
of
aspects of cultural significance.
recommendations
for restoration a n d r e c o n s t r u c t i o n set o u t i n
Clearly, the plan s specific decisions
the Conservation Plan. T w o types of building
building fabric are intended to directly shape
elements are slated for reconstruction:
the historic values represented by the building
some
elements of the building m a d e incomplete
over
about
a n d c o m m u n i c a t e d to visitors. T h e e l e m e n t s to
time are being restored (the exercise yards a n d
b e reconstructed are j u d g e d to be critical in
cell interiors); e l e m e n t s incorrectly recon
conveying the m a i n interpretive themes of
structed in the past will be demolished
convictism. A secondary concern
and
involves
reconstructed. I n b o t h cases, this w o r k will
retaining e n o u g h fabric to interpret the
enhance the interpretive value of the building
v a t i o n p r o c e s s itself, t h o u g h this is s e c o n d a r y
through "reinstatement of those functional
to e n h a n c i n g the core cultural significance val
a n d spatial relationships w h i c h have b e e n miss
ues. T h e p l a n also pays close attention to visi
ing since closure of the prison." All recon
tor access, paving the w a y for greater a n d equi
struction w o u l d be based on thorough research
table visitation to the building a n d thus greater
and documentation,
r e a l i z a t i o n o f its e c o n o m i c v a l u e w i t h i n t h e
a n d a l l o r i g i n a l (pre-1877)
material w o u l d be kept.
framework of
conser
conservation.
T h e interiors of the prison s chapel w i n g are

l a r g e l y a r e c o n s t r u c t i o n . T h e i n d i v i d u a l stalls,
pulpits, ceiling, a n d other elements w e r e recon
143
Notes
success i n h a v i n g P o r t A r t h u r perceived as the p r i m a r y

desirable destination i n the State a n d as a v a l u e - f o r - m o n e y
attraction. A higher level of visitor services, e n h a n c e d vis
1.
2.
As of this writing, the plan policies were not complete,

though research and documentation phases of the plan
are finished.
For a detailed description of the philosophy behind the
Separate Prison and convict life in this structure, see
page 119.
itor programs, expanded evening p r o g r a m s a n d a contin

u e d c o m m i t m e n t t o w a r d s c o n s e r v a t i o n w o r k s will assist
the Authority in achieving improved market share."
6 1
T o
i m p l e m e n t t h e s e p o l i c i e s , t h e 1996 p l a n a m e n d s t h e 1985
plan to "instigate a n i m m e d i a t e capital d e v e l o p m e n t pro
g r a m " for i m p r o v e d visitor facilities, i n c l u d i n g a V i s i t o r
3.
Port Arthur Historic Site Management Authority n.d.(c).
4.
Design 5Architects Pty. Ltd. 2001,116.
ment Experience."
5.
One of the difficulties encountered was the dearth of docu

mentation available on the major reconstruction and repair
projects carried out over the decades.
A p r i l 1996 t r a g e d y , t h a t e v e n t o n l y h e i g h t e n e d t h e n e e d t o
Center, vehicle access, a n d "a n e w visitor Night Entertain

6 2
E v e n t h o u g h it w a s s p u r r e d b y t h e
attract m o r e visitors a n d thus generate revenue.

THE
2000 CONSERVATION PLAN
AND ITS SECONDARY PLANS

T h e m o s t direct, exhaustive, a n d deliberate translation of
v a l u e s i n t o p o l i c y i s f o u n d i n t h e 2000 C o n s e r v a t i o n P l a n .
T h e s e policies follow a n d build o n the articulation of val
ues a n d statement of significance in the original Conser
vation Plan.
6 3
T h e y have b e e n successfully institutional
i z e d as the basis for site m a n a g e m e n t a n d as the focal

p o i n t for discussions o f all site values, the t r e a t m e n t o f all
site e l e m e n t s , a n d decisions r e g a r d i n g p r o g r a m s .
T h e written policies that f o r m the core of
the
Conservation P l a n t h e touchstone d o c u m e n t for m a n

aging the culturalvalues of the siteare
presented
below. A s noted m a n y times in print and in interviews, the

Conservation Plan has been wholly adopted by
P A H S M A s b o a r d a n d executive as the p r i m a r y policy to
guide m a n a g e m e n t decisions. P A H S M A has m a d e a sub
stantial i n v e s t m e n t i n t h e p l a n , a n d it i n t e n d s to p l a y a
l a r g e r o l e i n m a n a g e m e n t o f t h e site.
Philosophy
and
Principles
T h e plan outlines the philosophical approach a n d princi

ples that underlie policies. I n keeping w i t h B u r r a philoso
phy, retention a n d conservation o f cultural significance
are the overarching goal.
The outstanding heritage value of the place imposes an
overarching obligation for retention of cultural significance
of the place.
[TJhere is nothing more important or pressing about the
management of the Port Arthur Historic Site than the
obligation to conserve it. The existing site is the only one
that there will ever be. While it is important to recognise
that interpretation of the site and communication of infor
mation about the place to the wider community is an inte
gral element of conservation, primacy must be given to
144
caring for the place, rather than to tourism and provision
Conservation
Policy
of visitor services.
Based o n the foregoing philosophy a n d principles, and
This is not to say that the importance and legitimacy of
with guidance f r o m the Burra Charter, the General
visitation and supply of positive visitor experiences is not
s e r v a t i o n P o l i c y for P o r t A r t h u r H i s t o r i c Site is o u t l i n e d i n
importantit is. However, as a matter of overwhelming and
s e c t i o n 5.1, v o l u m e 1, o f t h e C o n s e r v a t i o n P l a n :
fundamental importance, the conservation requirements

must prevail.
Con
Port Arthur Historic Site is a place of outstanding heritage

significance, where excellence in heritage management is
the primary aim.
T h e following principles are identified as the f u n d a m e n t a l

philosophical basis for the P o r t A r t h u r Historic Site C o n
servation Policy.
The Port Arthur Historic Site Statement of Significance

provides the basis for natural and cultural resource manage
6 4
T h e primacy of conservation over other

m e n t objectives m u s t be
manage
recognized;
Retention of identified significance and conservation of the

Port Arthur Historic Site has primacy over all other manage
P o r t A r t h u r Historic Site m u s t be acenter o f

excellence in heritage
ment at the site.
ment objectives.
management;
Port Arthur Historic Site will be managed and conserved in
Essential conservation activities a n d w o r k s

s h o u l d n o t b e accepted as d e t e r m i n e d b y the c u r r e n t
accordance with the following principles and guidelines:
limits imposed b y funding generated through visitor
the Australia ICOMOS Charter for the Conservation of

Places of Cultural Significance (the Burra Charter and
numbers, or other similar financial constraints. If

s i t e - g e n e r a t e d r e s o u r c e s a r e i n a d e q u a t e , it is i m p e r a t i v e
associated guidelines);
the ICOMOS-IFLA International Committee for Historic
that, o n c e essential actions are k n o w n a n d resource
Gardens Charter;
implications quantified, sources of external resources
the ICAHM Charter for the Protection and Management
are obtained;
C o n s e r v a t i o n m u s t extend to the total resource,
of Archaeological Heritage;
the Australian Natural Heritage Charter and associated
tangible and intangible;
guidelines; and
Decision making must be based upon proper
the Draft Guidelines for the Protection, Management
understanding o f cultural significance;

A c a u t i o u s a p p r o a c h is r e q u i r e d w h e r e
and Use of Aboriginal and Torres Strait Islander Cultural
actions
m a y have adverse heritage impacts; abide by principles
Heritage Places.
of reversibility a n d the precautionary principle;
Conservation of the Port Arthur Historic Site
Conservation should be undertaken in accor

d a n c e w i t h well-accepted guidelines, s u c h as the
will adopt a total resource approach and will extend to
Burra
all areas and elements such as landscape, built structures,
Charter and other international declarations;
cultural deposits, artefacts, records, memories and associa
T h e social a n d environmental condition of Port

A r t h u r H i s t o r i c S i t e s h o u l d b e m o n i t o r e d , t om e a s u r e
the
tions along with uses and activities. Conservation will

be directed at biodiversity as well as social values and
effectiveness of conservation actions a n d provide essential
cultural heritage, consistent with a commitment to
d a t a f o r f u t u r e d e c i s i o n m a k i n g . T h i s r e l a t e s t ot h e v i s i t o r
ecological sensitivity.
experience a n d to impacts o n the local c o m m u n i t y ;
Conservation of the Port Arthur Historic Site will make use
Interested persons, organizations, and other
of the full array of available expertise and knowledge and
stakeholders should be involved in the conservation of

P A ; w i d e c o n s u l t a t i o n y i e l d s b e n e f i t s t ot h e
management
o f t h e site;
Visitation a n d interpretation are integral ele
m e n t s o f conservation. Provision o f apositive, i n f o r m a
t i v e a n d i n t e r a c t i v e e x p e r i e n c e f o r v i s i t o r s t ot h e h i s t o r i c
site, a n d t h o s e w h o w i s h t o l e a r n a b o u t it, r e m o t e
from
t h e p l a c e itself, m u s t c o n t i n u e to b e a f u n d a m e n t a l a i m .
will adopt a scientific approach to materials conservation.

Caution will be applied in making decisions, which may
damage the natural or cultural environment over time. The
precautionary principle will be adopted, where appropriate,
in relation to management actions with potential to result in
a loss of significance. If there is any threat of serious or irre
versible environmental damage, lack of full scientific cer
tainty will not be used as the reason for postponing measures
to prevent environmental degradation.
145
However, any actions which may result in a loss of cultural
for conservation a n d t o u r i s m experience). T h e policy
significance must be reversible.
that articulates this p r i o r i t y " R e t e n t i o n o f identified
The
significance a n d conservation of the Port Arthur Historic
Port Arthur Historic Site will be protectedfromphysical
damage by appropriate security and maintenance measures.

The
effectiveness of conservation management of the Port
Arthur Historic Site will be monitored.

Interpretation of the history and significance of the place is
fundamental to its conservation.
Site has p r i m a c y over all other m a n a g e m e n t
objectives"
sets ah i g h bar. It decrees that retention o f cultural

s i g n i f i c a n c e a l w a y s t a k e s p r e c e d e n c e o v e r o t h e r (i.e.,
tourism, access, utilitarian)policies a n d actions. (This
high standard w a s f o r m e d in response to the
Doyle
I n q u i r y a n d o t h e r r e a c t i o n a g a i n s t t h e pre-1996 m a n a g e
Port Arthur Historic Site will set national and international
m e n t g o a l i m p o s e d o n P A H S M A to m a k e the site eco
standards in best practice conservation.
n o m i c a l l y s e l f - s u s t a i n i n g . F u r t h e r m o r e , it is i n a c c o r d
Ultimate responsibility for decision making in relation to the
with the Burra Charter model.) This expectation
Port Arthur Historic Site is vested in the Port Arthur Historic
be unrealistic if seen only as ashort-term, day-to-day
Site Management Authority
g u i d e to decision m a k i n g . I n reality, s o m e s h o r t - t e r m deci
would
sions to invest resources in tourism/access infrastructure

I n a d d i t i o n , a s e p a r a t e s t a t e m e n t o f p o l i c y is
(and therefore not in direct conservation w o r k ) are actu
given for each o f the following areas: Landscape; Aborigi
ally m a d e in conjunction w i t h al o n g - t e r m
decision
nal Heritage; Archaeology; Built Elements; Collections
r e g a r d i n g t h e site's c o n s e r v a t i o n k e e p i n g i n m i n d that
(curatorial and archaeological); Records; Research; Finan
P A H S M A s long-term view and mandate includes ongoing
cial R e s o u r c e s for C o n s e r v a t i o n ; H u m a n R e s o u r c e s for
tourist access a n d c o m m e r c i a l activity T h e inclusion of
Conservation; Planning Processes; Use; Visitors; Interpre
b o t h a c c e s s a n d c o n s e r v a t i o n as g o a l s is w h a t m a k e s
tation; Associated C o m m u n i t i e s ; O t h e r Interested People;
overall conservation strategy sustainable in the long term.
T h e Peninsula; Future Development; Monitoring; and
the
T h e policies clearly set the b r o a d strategic c o u r s e

for P A H S M A s conservation w o r k , providing guidance
Land Holding.
T h e C o n s e r v a t i o n P l a n lays out a deliberate
s u c h issues as consulting w i t h stakeholder
on
communities,
a n d comprehensive a p p r o a c h to translating values a n d
relating the P o r t A r t h u r site to the w h o l e T a s m a n P e n i n
significance into strategies. T h e policies are inclusive a n d
sula, preventing the building o f n e w structures in the core
clear, a n d c o m p r e h e n s i v e i n r e g a r d to cultural values.
areas, a n d placing avalue o n monitoring. A s policies, they
T h i s is a s s o c i a t e d w i t h t h e v a l u e t y p e s c o n t r i b u t i n g to
remain quite general and address the direction and m a n
c u l t u r a l significance, t h e f u n c t i o n a l e l e m e n t s o f t h e site,
a g e m e n t o f c o n s e r v a t i o n activities; specific c o n s e r v a t i o n
a n d t h e d i s c i p l i n e s a n d p r o f e s s i o n s e n g a g e d i n its m a n a g e
a c t i o n s o n t h e site a n d its b u i l d i n g s a n d o t h e r e l e m e n t s a r e
addressed in the secondary a n d tertiary plans. Creation of
m e n t (landscape, archaeology).
A l l i n all, the p l a n establishes the p r i m a c y o f
s e c o n d a r y plans will take several years to complete. T h e
c u l t u r a l v a l u e s i n m a n a g i n g t h e site. It is a m a j o r a c h i e v e
C o n s e r v a t i o n P l a n is c l e a r l y d e s i g n e d to w o r k w i t h t h e
m e n t that P A H S M A has invested i n the entire plan, as
s e c o n d a r y p l a n s a n d is n o t i n t e n d e d to s t a n d o n its o w n
has the T a s m a n i a n State g o v e r n m e n t , w h i c h has allo
a guide to m a k i n g detailed decisions. T h e s e c o n d a r y plans
cated
c o m p l e m e n t the C o n s e r v a t i o n P l a n a n d treat landscape,
A$IO
m i l l i o n o v e r five y e a r s f o r i m p l e m e n t a t i o n
particular buildings, and archaeological resources in the
of the plan.
T h e policies of the C o n s e r v a t i o n P l a n f o r m a
s t r o n g b a s e for decision m a k i n g . Its o u t s t a n d i n g feature
is t h e s t r a t e g y o f g i v i n g s e e m i n g l y u n d i l u t e d p r i m a c y to
detail required.
Except in broad terms, the Conservation Plan
d o e s n o t prioritize the identified site values. T h e full r a n g e
conservation (over tourism a n d economic concerns),
o f v a l u e s is w e l l a r t i c u l a t e d , b u t h o w a n d w h e n o n e
especially in light of the institutional a r r a n g e m e n t of
p r e c e d e n c e o v e r a n o t h e r is n o t a d d r e s s e d . A g a i n , t h e s e
P A H S M A as aquasipublic c o r p o r a t i o n a n d the
as
commer
takes
decisions are left to the s e c o n d a r y plans. O p e r a t i o n a l l y ,
cial i m p e r a t i v e this r e q u i r e s ( e v e n i f t h e i m p e r a t i v e is n o
these problems are resolved by senior m a n a g e m e n t
l o n g e r , a f t e r 1995, f o r P A H S M A t o b e a p r o f i t a b l e e n t e r
the b o a r d , w h o assess the priorities set out i n e a c h second
prise; the G B E imperative calls for P A H S M A to lead the
ary plan a n d integrate t h e m into aw o r k a b l e yearly pro
region in attracting tourism a n d setting ahigh standard
g r a m o f c o n s e r v a t i o n activities.
146
and
Finally, the C o n s e r v a t i o n P l a n does not take eco

n o m i c values into consideration in any detailed w a y
other
interpretation of the "paradoxes" of the landscape (juxta

posing the ugliness of convictism with the beauty of the
than stating the policy that e c o n o m i c values take a b a c k
landscape) a n d o f the different interpretations o f Port
seat w h e n choosing b e t w e e n conservation a n d c o m
Arthur's past over time, as o p p o s e d to focusing o n
merce. Further, the plan policies keep separate concerns
straight chapter-and-verse o f convictism history. T h e plan
the
s u c h as archaeology, landscape, a n d built elements. T h e
also specifies interpretation o f "crime a n d p u n i s h m e n t "
m e c h a n i s m for m a k i n g a n d policing decisions according
at P o r t A r t h u r in t e r m s o f h o w society deals w i t h these
to these p o l i c i e s f o r m a n a g i n g the site h o l i s t i c a l l y i s
issues today.
the set o f relationships forged a m o n g the core
manage
m e n t t e a m m e m b e r s . T h e s e relationships are largely

informal a n d are an intentional result of the
conservation
planning process. B y w o r k i n g with one another, various

departments c a n intelligently resolve complicated m a n
a g e m e n t issues u s i n g b r o a d p a r a m e t e r s to w h i c h all staff
subscribe. T h i s process w a s s e e n as equally i m p o r t a n t as
The amended [interpretation] policy is as follows:
67
Interpretation of the Port Arthur Historic Site will be under

taken in accordance with this Plan.
Interpretation programs and messages will have primary
regard to the significance of the site.
The approach to interpretation will extend beyond the Port
t h e p r o d u c t i o n o f aw r i t t e n p l a n , a n d to d a t e it a p p e a r s
Arthur Historic Site itself, providing an understanding of the
to have largely succeeded.
place in its historical, geographical and social context, [this
THE
SECONDARY 2001 INTERPRETATION PLAN
This secondary plan, called the Interpretation Plan, revis

its t h e h i s t o r i c v a l u e s a n d b r o a d i n t e r p r e t i v e p o l i c i e s o f
the Conservation Plan and produces adetailed plan of
action that
flows
out of stated interpretation philosophy
a n d strategies. T h e Interpretation Plan does not identify

n e w v a l u e s s o m u c h as it r e v i s e s a n d r e n d e r s t h e h i s t o r i c
v a l u e s (as w e l l as audiences, delivery m e c h a n i s m s , etc.) t o
a level o f specificity called for in the C o n s e r v a t i o n Plan. It
takes acritical a p p r o a c h to m a k i n g plans for future inter
p r e t a t i o n a n d p r o v i d e s a t h o r o u g h s u m m a r y o f its t h e o
retical underpinnings.
This plan carries out the general prescriptions in
t h e C o n s e r v a t i o n P l a n . H o w e v e r , it d e p a r t s f r o m t h e lat
t e r 's g u i d a n c e i n o n e i m p o r t a n t w a y . W h e r e a s t h e C o n s e r
vation Plan establishes that "the p r i m a r y m e s s a g e o f onsite i n t e r p r e t a t i o n w i l l c o n v e y the significance o f the p l a c e
a n d the p h y s i c a l evolution o f the site i n c l u d i n g c o n s e r v a
tion processes,"
6 5
the Interpretation Plan provides a vari
ety o f o p t i o n s a i m e d at different a u d i e n c e s a n d at differ

ent specialty visitor groupsinstead of a"primary mes
sage." T h e reasons for this c h a n g e are justified in the Inter
pretation Plan ssuccinct review of theories guiding the
design of interpretive programs.
T h e themes and topics
6 6
a d v a n c e the values as
brings the interpretation in alignment with the Conserva

tion Plan s regional strategyregionalism is one way that
all the policies line up]
Messages to be conveyed in interpretation will be developed
in consultation with all involved in developing, managing
and delivering that interpretation.
Interpretation will be based only on sound, contemporary
and scholarly research.
Interpretation programs and initiatives will be undertaken in
a manner that minimises impact on the fabric of significant
elements.
Interpretation will extend to historic activities, structures,
places and landscapes and will, where possible, focus on real
historic elements. The introduction of new, purpose-built
interpretive elements will be minimised.
Regular evaluation will continue to inform our interpretive
activities.
T h e interpretive policies f o r m arobust strategy
that does not suggest prioritizing s o m e heritage values
over others. Rather, the policies m a n d a t e development of
a n u m b e r of specialized messages, programs, and prod
ucts b a s e d o n specific values a n d oriented to a correspond
ingly w i d e range o f general a n d specialist audiences.
THE
SECONDARY 2001 LANDSCAPE PLAN
literally set o u t in the s t a t e m e n t o f significance. T h e y
A s o f this w r i t i n g , t h e L a n d s c a p e P l a n is t h e s e c o n d
integrate the values for the understanding of visitors (pre
the Conservation Plan ssecondary plans
senting different aspects o f the site b u t also
basic conservation planning methodology (understanding
connecting
6 8
of
It follows the
historical insights w i t h c o n t e m p o r a r y issues) as o p p o s e d
the landscape's natural a n d cultural features,
to using t h e m for purposes o f m a x i m i z i n g revenue or har
significance, identifying issues a n d threats to significance,
codifying
vesting scientific values. F o r e x a m p l e , the p l a n calls for
a n d formulating policies) in addressing the interaction
U N D E R S T A N D I N G A N DPROTECTING T H E VALUES
147
THE
o f landscape a n d cultural significance at P o r t Arthur.

the Conservation Plan and asserted in the statement
2001/2002 CORPORATE PLAN
P A H S M A s C o r p o r a t e Plans are the strategic p r o g r a m s for
B r o a d l y , it r e i n f o r c e s t h e c u l t u r a l v a l u e s a r t i c u l a t e d i n
of
c o m p r e h e n s i v e site m a n a g e m e n t . D o n e annually, t h e y set
significance. It adds the n o t i o n o f n a t u r a l (environmental-
e a c h y e a r s p o l i c i e s a n d , t oa l e s s e r e x t e n t , s p e c i f i c p r o j e c t
ecological) values to the m i x a n d e x a m i n e s t h e m in detail.
priorities. I n devising the C o r p o r a t e Plan, the b o a r d uses
Ultimately, the Landscape Plan focuses o n the cultural
t h e C o n s e r v a t i o n P l a n a n d its s e c o n d a r y p l a n s as g u i d e s .
landscape aspects of Port Arthur, w i t h the intention of
T h e b o a r d also takes into account g o v e r n m e n t require
conserving natural and culturalvalues and preserving
m e n t s a n d relevant d o c u m e n t s s u c h as h u m a n resources
t h e i r v i s u a l i m p a c t o n t h e s i g n i f i c a n c e o f t h e site.
plans; financial, visitor numbers, a n d c o m m e r c i a l opera
O n e g o a l o f t h e L a n d s c a p e P l a n is to d e s c r i b e t h e
tions targets; a n d c o m m u n i t y obligations, as l o n g as these
cultural and natural values of the Port Arthur landscape,
do not conflict w i t h policies in the C o n s e r v a t i o n Plan.
a n d h o w the l a n d s c a p e (as a w h o l e entity, n o t o n l y as a col
T h e Corporate Plans imply values without articulating
lection of elements) contributes particularlyto the values
t h e m , a n d spell out h o w values are to be realized a n d cul
articulated in the Conservation Plan. This d o c u m e n t
tivated t h r o u g h m a n a g e m e n t decisions a n d priorities.
gives
a m o r e detailed history and background of the cultural
T h e plans record the results of P A H S M A decisions but
features o f the landscape. It describes h o w the values
g i v e little insight i n t o t h e p r o c e s s b y w h i c h t h e
identified in the Conservation P l a n are expressed in the
were
various landscape elements (cultural and natural) that
decisions
made.
For agiven year, the C o r p o r a t e Plan c o m m u
have b e e n inventoried. T h e plan also includes a m o r e
nicates to the T a s m a n i a n Minister o f State
detailed analysis of the "paradox" in values of
h o w all the activities o f P A H S M A , c o m m e r c i a l a n d
comforting
Development
pastoral landscape images juxtaposed with the u n c o m
conservation, will be carried out. " T h e C o n s e r v a t i o n P l a n
fortable historic values of convictism. I n general, the
is a b r o a d o v e r r i d i n g d o c u m e n t o f g e n e r a l p o l i c y : t h e
inventories a n d significance assessments reinforce the
p o r a t e P l a n is a y e a r l y s t a t e m e n t o f w h a t w i l l b e a c h i e v e d .
q u a l i t y o f P o r t A r t h u r as a site w i t h a d e e p l y l a y e r e d ,
E v e r y y e a r as m o r e s e c o n d a r y plans are c o m p l e t e d ,
eclectic l a n d s c a p e a place w i t h m a n y values, n o n e
of
Corporate Plan g r o w s m o r e detailed."
6 9
B u t t h e L a n d s c a p e P l a n is n o t m e r e l y a n a n a l y s i s
the
In practice, the
Conservation a n d C o r p o r a t e Plans together define
which predominates.
Cor
and
capture the strategic direction of P A H S M A . T h e y could
of already articulated values. B y articulating natural val
also b e interpreted as addressing t w o different audiences:
ues, the p l a n i n effect adds a set o f ecological values t o
the C o n s e r v a t i o n P l a n relating to internally focused deci
the Conservation Plan. T h e Landscape Plan encourages
sions a b o u t m a t t e r s inside the site b o u n d a r i e s ( c o n s e r v a
the preservation and re-creation of m o r e native plant
t i o n a n d d e v e l o p m e n t decisions a b o u t site e l e m e n t s ) ;
e c o l o g y a n d identifies landscaping m e a s u r e s to prevent
the C o r p o r a t e P l a n relating to externally focused matters,
the erosion o f the n a t u r a l e n v i r o n m e n t a l qualities. It also
s u c h as partnerships w i t h g o v e r n m e n t , the local c o m m u
asserts the historic a n d aesthetic values related to (or even
nity, a n d P o r t A r t h u r R e g i o n M a r k e t i n g L t d . ( P A R M ) .
stemming
from)
topography a n d other aspects of the nat
Although the Corporate Plan describes the goals

a n d priorities o f the s a m e organization as the C o n s e r v a
ural environment.
Another departure
and
from
the system of value
t i o n P l a n d o e s , it t a k e s a different a p p r o a c h , e n v i s i o n i n g
a c c o u n t i n g is r e f l e c t e d i n t h e L a n d s c a p e P l a n s f i v e - p a g e
P A H S M A as a n organization to b e r u n as a business,
"Statement o f significance for the landscape," w h i c h artic
r a t h e r t h a n as a set o f c o n s e r v a t i o n p r o j e c t s . N o t h i n g is
ulates site v a l u e s b y d e s c r i b i n g t h e v a l u e s a n d significance
i n c l u d e d a b o u t specific historic, aesthetic, social, o r sci
o f i n d i v i d u a l , p h y s i c a l a r e a s (i.e., M a s o n C o v e , P o i n t P u e r ,
entific values other t h a n clarifying that "conserving the
Isle o f the D e a d , G a r d e n Point, a n d C a r n a r v o n B a y ) . Spec
c u l t u r a l v a l u e o f t h e site" is t h e first p o i n t i n t h e
i f y i n g v a l u e s i n this m a n n e r is o n e w a y i n w h i c h t h e sec
of purpose.
ondary plans advance the articulation of value. A similar
vation Plan.)
l e v e l o f s p e c i f i c a t i o n is e v i d e n t i n t h e o t h e r s e c o n d a r y
7 0
statement
(These values are articulated in the Conser
Striking abalance b e t w e e n these t w o sets o f val
plans that have b e e n u n d e r t a k e n for the Separate Prison,
ues, these t w o institutional mandates, these t w o
the a s y l u m / t o w n hall, a n d the harborside area.
tives, is left to t h e c o l l a b o r a t i v e w o r k o f t h e
perspec
management
t e a m a n d the board. T h e C o r p o r a t e P l a n s strategies

statements are expressions of h o w different aspects
148
PORT ARTHUR HISTORIC
SITE
and
of
improve opportunities for

education and training on site
site m a n a g e m e n t , opportunities, a n d constraints are inte

g r a t e d . T h e s e a n n u a l d o c u m e n t s r e p o r t o n h o w the site
is m a n a g e d t o e n s u r e t h a t t h e o v e r r i d i n g g o a l o f
increase / improve utilisation

of IT opportunities on site
P A H S M A c o n s e r v a t i o n i s met, a n d t oensure that

P A H S M A holds itself accountable for the m a n y
aspects
[improve] corporate
governance
o f its m a n d a t e f i n a n c i a l a c c o u n t a b i l i t y , c o m m e r c i a l
performance, community engagement, and transparency
(5) maintain government support
increasing awareness and

support for PAHSMA
endeavors at Government level
(6) strengthening community

interaction
increasing awareness and

support for PAHSMA
endeavors in the broader
community
o f decision m a k i n g , all n e c e s s a r y m e a n s t o achieving

the goal.
In the Conservation Plan and in m a n y
other
discussions a n d d o c u m e n t s , P A H S M A clearly states that

c o n s e r v a t i o n o fc u l t u r a l v a l u e s i st h e c e n t r a l g o a l o f its
site m a n a g e m e n t . T h e C o r p o r a t e P l a n d o e s n o t c o n t r a
d i c t this, b u t it v i e w s P A H S M A m o r e a s ab u s i n e s s , c r e a t
i n g t h e possibility that t h e p r i o r i t y o fc o n s e r v a t i o n a n d
the focus o n cultural values could be hedged in favor of
A s P A H S M A ' s organizational goals, the strategic

drivers are m e a n t t odefine, connect, orient, a n d integrate
generating revenue. P A H S M A w o r k s actively t o prevent
conservation w o r k and the development o f tourism.
this. W h a t e v e r disconnects m i g h t potentially exist
T h e s e t w o spheres are s e e n b y m a n a g e m e n t as inter
between the Conservation Plan and the Corporate Plan
r e l a t e d : a d d i t i o n a l t o u r i s m r e v e n u e is s o u g h t t of u n d c o n
are resolved through managers' deliberations. T h e
s e r v a t i o n w o r k ; c o n s e r v a t i o n w o r k is i n t e n d e d ,
among
o t h e r goals, t ocreate abetter visitor experience
and
of resolving s u c h hypothetical conflicts are not
means
outlined
o n p a p e r . T h e site's l e a d e r s a n d m a n a g e r s h a v e g r e a t
t h e r e b y i n c r e a s e t o u r i s m . T h e e x t e n t t ow h i c h this cycle
confidence in the m a n a g e m e n t culture instilled a n d culti
c h a n g e s h o w site v a l u e s a r e a s s e s s e d a n d a c t e d u p o n is n o t
v a t e d i n recent years ("the P o r t A r t h u r w a y "
a d d r e s s e d i n t h e C o r p o r a t e P l a n a n d is c o v e r e d i n t h e last
7 1
), and in
managers' c o m m i t m e n t t oconsultation a n d truly collabo
s e c t i o n o fthis s t u d y (see, for i n s t a n c e , t h e s i d e b a r o n
rative p r o b l e m solving.
next page,
T h e 2001/ 2002 C o r p o r a t e P l a n i s o r g a n i z e d
a r o u n d six "strategic drivers o f[ P A H S M A ' s ] business":
the
o n the Historic G h o s t Tours). I n s o m e cases,
i n v e s t m e n t s are m a d e t oi m p r o v e visitor experience,

w h i c h c o u l d b e seen as p r e - e m p t i n g investing in conserva
tion. I n ashort-term time frame, s o m e might v i e w such
STRATEGIC DRIVER
OBJECTIVE
(1) management of heritage values conserve cultural and natural

fabric and landscape
enhance understanding of
cultural meaning and value
establish PA as a centre for
research and expertise in
cultural management
(2) increased visitation
increase visitor numbers to

PA by 2 %
(3) developing quality visitor

experience
improve visitor experience

and increase perception of
"value for money" and
customer satisfaction
(4) improve organisational

capability
decisions as c o n t r a r y t othe C o n s e r v a t i o n Plan's conserva

tion-first policy. H o w e v e r , P A H S M A clearly sees t h e m a s
l o n g - t e r m i n v e s t m e n t s t og u a r a n t e e the c o n s e r v a t i o n o f
t h e site (a v i s i o n o fc o n s e r v a t i o n that integrates t o u r i s m
a n d access as o n e i n g r e d i e n t o fsuccessful, sustainable
conservation). T h e Corporate Plan recognizes the need t o
think carefully about these relationships b y pointing out,
for instance, the n e e d t o"ensure c o m m e r c i a l activities o n
site are consistent w i t h interpretive objectives."
7 2
SUMMARY
Based o n the foregoing analysis, the findings regarding
h o w different site v a l u e s are r e p r e s e n t e d i n P o r t A r t h u r
policies are s u m m a r i z e d below.
Aboriginal values are acknowledged but not con
improve financial outcomes

of PAHSMA
sidered ak e y m a n a g e m e n t issue. T h i s g r o u p o f stakehold
continue to develop human

resource function and staff
development
little m a t e r i a l is a v a i l a b l e t oc u r a t e . A b o r i g i n a l v a l u e s a r e
ers i sa b s e n t ( a t t e n t i o n t ot h e s e v a l u e s i s legislated), a n d
n o t d e t a i l e d , a n d t h e i r m a n a g e m e n t is n o t d i s c u s s e d i n site
d o c u m e n t s i n deference t othe T a s m a n i a n A b o r i g i n a l
community, w h i c h does not w i s h outside m a n a g e m e n t t o
149
b e u n d e r t a k e n a n d prefers to carry out this w o r k itself in

the future.
Historic Ghost Tours
Historic values are well represented and domi

n a t e d b y c o n v i c t i s m . T h e r e is a c k n o w l e d g m e n t t h a t l a y e r s
o f m e a n i n g a r e still a c c u m u l a t i n g , a n d t h a t p o s t - c o n v i c t era layers are significant alongside the values directly
Aesthetic values are considered in policies that
tinct
call for the perpetuation o f the existing aesthetic land

scape, a n d thus the paradox of convictism in an Arcadian
landscape.
Social values are described a n d listed in the
Con
s e r v a t i o n P l a n , a n d ar a n g e o f p o l i c i e s i n t h e p l a n r e l a t e to
their conservation, t h o u g h they d o n o t s e e m to attract as
m u c h attention as historic values do. Social values e m e r g e
as strong factors i n specific circumstances, the m o s t strik
ing instance being the B r o a d A r r o w Cafe tragedy. I n the
sense that the Conservation Plan defines the
economic
d e c i s i o n s a b o u t t h e site. S o c i a l v a l u e s r e l a t e d to specific
s t a k e h o l d e r g r o u p s also factor into site m a n a g e m e n t
of
specific site elements, s u c h as the desire o f veterans'

g r o u p s t o p r e s e r v e aW o r l d W a r Im e m o r i a l
Scientific values are b e h i n d the well-articulated

E c o n o m i c v a l u e s are r e c o g n i z e d implicitly i n site
documentsthrough
wide recognition of the tension between commercial and

c o n s e r v a t i o n u s e s o f t h e site's v a l u e s a n d explicitly d o c
u m e n t e d i n as u p p o r t i n g s t u d y (the U n i v e r s i t y o f T a s m a
nia's e c o n o m i c i m p a c t study). I n k e e p i n g w i t h the B u r r a
Charter process, however, they remain o n a separate
the cultural significance values that f o r m the
T h e r e is n o o n e d o c u m e n t i n w h i c h all o f t h e site
values are articulated. Values tend to be dealt w i t h sepa
ratelyusually according to the m a i n B u r r a C h a r t e r cate
g o r i e s w i t h little f o r m a l analysis o f t h e trade-offs t h a t
m u s t o c c u r i n practice. Holistic t r e a t m e n t o f all site v a l u e s
from
the Conserva
tion Plan and Interpretation Plan. T h e tours

h i g h l i g h t an u m b e r o f i s s u e s r e l a t e d t o site
interpretation: h o w commercial and cultural
v a l u e s are b a l a n c e d , h o w site v a l u e s are c o m
tive f o r m s u s e d to r e a c h diverse audiences,

h o w the forms of communication shape
and
the
O n ag h o s t t o u r , v i s i t o r s a r e l e d i n t h e d a r k b y
o f its b u i l d i n g s , e n t e r t a i n e d w i t h s c a r y stories
o f " g h o s t s " w h o h a v e b e e n s p o t t e d at t h e site.
Guides convey s o m e historical information
about the place, a n d the "ghost" characters
take their cues
from
site history, b u t the c o n
Port Arthur's well-researched cultural

s i g n i f i c a n c e . G h o s t t o u r i n t e r p r e t a t i o n is n o t
focused o n the significance a n d values of the
site as c u r r e n t l y d e n n e d i n the C o n s e r v a t i o n
is a d d r e s s e d i n t h e C o n s e r v a t i o n P l a n o n l y at a g e n e r a l
level; the s e c o n d a r y plans (Interpretation, L a n d s c a p e , Sepa
r a t e P r i s o n , etc.) d o a c h i e v e ag o o d d e a l o f i n t e g r a t i o n v i s
a-vis the specific activities o r resources to w h i c h they per
tain. T h e i n t e g r a t i o n o f v a l u e s is a c h i e v e d a n a l y t i c a l l y i n
w o r k s u c h as the L a n d s c a p e Plan's statement o f significance
w r i t t e n for different g e o g r a p h i c a r e a s o f t h e site. T h e
ity, t h e g h o s t t o u r s d e p a r t
t e n t is d r i v e n m o r e b y e n t e r t a i n m e n t t h a n b y
basis o f the C o n s e r v a t i o n Plan's policies.
150
o f site i n t e r p r e t a t i o n a n d ac o m m e r c i a l activ
flashlight o r t o r c h t h r o u g h the site a n d several
policies dealing w i t h archaeological activities.
[continued on page
the m o r e scholarly, canonical forms
p e r c e i v e d v a l u e s o f t h e site.
avenue
o f trees.
from
from
m u n i c a t e d to visitors, the variety o f interpre
c o n c e r n s o f the local c o m m u n i t y a n d the state as social

values, they are omnipresent and enter into m a n y of the
plane
a r e al o n g - s t a n d i n g p a r t o f t h e site's offerings.
A s an alternative f o r m of interpretationdis
related to convictism.
decisions, policies, a n d planning
Port Arthur's nighttime Historic Ghost Tours
152]
Plan, but instead complements the standard

daytime offerings o f P o r t Arthur.
F o r m a l l y o r g a n i z e d s i n c e 1988, t h e t o u r s a r e a
Visitor Services, aseparate unit in the Conser
popular interpretive p r o g r a m for visitors. T h e y
v a t i o n D e p a r t m e n t . I n effect, the t o u r s are a
h a r k e n b a c k to the i m m e d i a t e post-convict era,
separate, independent interpretative operation.
w h e n local residents (some of t h e m
T h e board has begun reviewing the Historic
former
G h o s t T o u r s program, consulting w i t h the var
inmates) guided visitors a r o u n d the ruins,

regaling t h e m w i t h stories o f the convict days.
T h e tours have b e c o m e central to the
commer
cial strategies o f P A H S M A a n d P A R M :
because
ious stakeholders (including the guides
w h o
c r e a t e d a n d c o n t i n u e t od e l i v e r t h e t o u r s ) a n d
i n c o r p o r a t i n g t h e i r f e e d b a c k into t h e site's
they take place in the evening, they attract a n d
o t h e r interpretation policies a n d activities.
retain overnight visitors, w h i c h contributes t o
T h e tours also represent social values.
Some
t h e l o c a l a n d s t a t e e c o n o m i e s . P r i c e d a t A$i4
P A H S M A staff (particularlythose w h o
created
per adult, the Historic G h o s t T o u r s attracted
the tours and have m a n a g e d t h e m over the
46,000 v i s i t o r s i n 2001, p r o d u c i n g n e a r l y
years) identify w i t h the tours as atradition a n d
A$6OO,OOO i n d i r e c t r e v e n u e .
feel strongly a b o u t a l l o w i n g t h e m to
T h e ghost tours also advance the cultural val
from
that outlined
in the Interpretation Planless scholarly or

informed by theories of education, m o r e
enter
tainment- and commercially driven, cued t o

the emotional connections that are m o r e
contributions
o f staff w h o h a v e w o r k e d o n t h e site for years,
u e s o f t h e site. T h e y r e p r e s e n t a different
a p p r o a c h to interpretation
Indeed, the tours represent the
continue.
acces
w e l l b e f o r e t h e 1996 t r a g e d y a n d t h e
changes
that followed, and whose interpretations of

Port Arthur'shistory are ade facto part of the
site's significance.
Despite the tours' popularity and financial suc
sible i n an i g h t t i m e visit. P A H S M A s r e s e a r c h
cess, s o m e heritage professionals criticize their
suggests that the tours are an important m e a n s
lack of interpretive rigor and question their
b y w h i c h v i s i t o r s l e a r n a b o u t t h e site a n d its
relation to the cultural significance a n d values
significance. One-third of the evening visitors
o f the site as identified i n t h e C o n s e r v a t i o n
o v e r l a p w i t h t h e 200,000 a n n u a l v i s i t o r s t o t h e
Plan. W h i l e the tours deliver s o m e information
site a n d t h u s h a v e a d d i t i o n a l e x p o s u r e . F o r
a b o u t t h e site itself, c o n f o r m i n g to t h e m a i n
m o r e t h a n 30,500 e v e n i n g v i s i t o r s , t h e g h o s t
interpretive themes, the tours seem tooled t o
t o u r is t h e i r o n l y c o n t a c t w i t h t h e site.
elicit e m o t i o n a l r e a c t i o n s t ot h e p l a c e .
E v e n t h o u g h they are ade facto f o r m of inter
see the g h o s t tours as potentially u n d e r m i n i n g
pretation, the tours are m a n a g e d n o t as part o f
t h e c u l t u r a l v a l u e s o f t h e site b y r e p r e s e n t i n g
the interpretive offerings o f P A H S M A but b y
t h e m to the public as e n t e r t a i n m e n t r a t h e r
UNDERSTANDING A N D PROTECTING
Some
T H EVALUES
151
t h a n as c o m p l e x historical issues. S u c h a cri

tique undervalues the real benefits of the tours.
P A H S M A s b o a r d a n d staff express strong
s u p p o r t for the tours as a n alternative m e a n s
b o a r d ' s decisions rely o n s e c o n d a r y p l a n s to alarge extent.

R e g a r d i n g a r e a s o r i s s u e s f o r w h i c h n o s e c o n d a r y p l a n is
yet c o m p l e t e d , i n f o r m a l m e a n s o f i n t e g r a t i n g site v a l u e s
are m o r e important a n d flow
from
the input a n d expertise
o f site m a n a g e r s , at o p i c d i s c u s s e d f u r t h e r i n t h e l a s t s e c
tion o f the study.
for e n g a g i n g visitors w i t h t h e site's c u l t u r a l

significance as w e l l as for their e c o n o m i c
contributions. T h e y believe that the Historic
G h o s t T o u r s fill av a l u a b l e a n d i d i o s y n c r a t i c
niche in the m a n a g e m e n t of Port Arthur's
m a n y values.
I m p a c t o f M a n a g e m e n t Policies
a n d Decisions o n t h e Site's V a l u e s
a n d Their P r e s e r v a t i o n
This section addresses the following questions: H o w
values considered in decision making? W h a t have
are
been
the implications of decisions a n d policies o n the values of

t h e site? A r e t h e r e d i s c r e p a n c i e s b e t w e e n w h a t is s t a t e d i n
the documents and w h a t actions are actually taken? W h a t
effects d o institutional a r r a n g e m e n t s h a v e o n the
Notes
m e n t o f site v a l u e s ?
GENERAL POLICIES AND
1.
2.
manage
DECISION MAKING
This assessment is admittedly anecdotal and based on

limited exposure to the ghost tours.
T h e m a n a g e m e n t o f P o r t A r t h u r , i n g e n e r a l a n d i n its
Young 1996.
policies. It s e e m s w e l l s e r v e d b y the plans themselves,
details, is c a r r i e d o u t a c c o r d i n g to P A H S M A s p l a n s a n d
and
m o r e so b y the planning processes (collaborative, inclu

sive, a n d exhaustive).
O n e o f t h e o v e r r i d i n g t h e m e s i n this s e c t i o n is
P A H S M A s focus o n f o r m u l a t i n g general policies that set
strategic direction, while c a r r y i n g out (over time) a series
o f m o r e detailed secondary plans a n d leaving specific deci
sions about fabric to i n f o r m a l processes m a n a g e d o n a n a d
h o c b a s i s b y t h e e x e c u t i v e t e a m . T h i s a p p r o a c h is i n k e e p
i n g w i t h the nature o f m a n a g e m e n t plans as guidance
d o c u m e n t s r a t h e r t h a n as specific w o r k plans.
Port Arthur's C o n s e r v a t i o n Plan, for instance,
establishes the r a n g e o f v a l u e s o f the site a n d states clearly
t h a t c o n s e r v a t i o n is m o r e i m p o r t a n t t h a n a t t r a c t i n g a n d
s e r v i n g visitors. B u t it d o e s n o t specify, f o r e x a m p l e ,
h o w
t h e f a b r i c o f t h e S e p a r a t e P r i s o n s h o u l d b e h a n d l e d ; this is
t h e s u b j e c t o f its o w n s e c o n d a r y p l a n . N o r d o e s t h e
Con
servation Plan specify exactly w h a t conservation projects

s h o u l d be u n d e r t a k e n a n d in w h a t order. S u c h specifics
a r e l e f t (1) t o t h e a c t i o n s c a l l e d f o r i n t h e s e c o n d a r y a n d
t e r t i a r y p l a n s , a n d (2) t o t h e d a y - t o - d a y , y e a r - t o - y e a r j u d g
m e n t of the managers themselvesabiding by the overall
p o l i c y o f c o n s e r v i n g t h e site's c u l t u r a l significance v a l u e
firstas to w h i c h actions to take a n d in w h a t order.
7 3
T h e s e arrangements, w i t h i n the limits agreed to

as overall policies, a l l o w the m a n a g e r s to react a c c o r d i n g
to circumstances a n d seize opportunities as they present
themselves. T h e decentralized, s o m e w h a t privatized insti-
152
t u t i o n a l s e t u p o fP A H S M A , a n d its C o n s e r v a t i o n P l a n
(procurement, personnel, tourism promotion,
forming
s c h e m e , e m b o d i e s this approach. C o n s t a n t consideration
partnerships w i t h the private sector; in other words, the
is g i v e n t ow h a t a c t i o n s a r e m o s t u r g e n t , m o s t r e l e v a n t ,
s e p a r a t i o n o fsectoral responsibilities i n different
a n d m o s t suitable for implementation, given the ever-
w o r k s against holistic m a n a g e m e n t ) .
shifting availability o ff u n d i n g a n d p a r t n e r s .
corporations are m o r e
P A H S M A s fairly i n d e p e n d e n t status has asignificant effect

o n h o w site v a l u e s are m a n a g e d . I n g e n e r a l , state a n d
a n d professionally staffed. P A H S M A h a s clearly w o n
the
c o n f i d e n c e a n d s u p p o r t o ft h e T H C a n d t h e A H C f o r its
policies a n d p r o g r a m s , a n d h e n c e i ss e e n n o t t o w a r r a n t
A$IO
million of
exception
h o m e
funding
( o v e r five y e a r s ) for t h e site's c o n s e r v a t i o n p r o g r a m . T h i s

a n d other T a s m a n i a n State p o l i c i e s s u c h as investing in
the n e w Bass Strait ferry service b e t w e e n T a s m a n i a a n d
m a i n l a n d A u s t r a l i a c o n t i n u e t ob ei m p o r t a n t i n f l u e n c e s
o n the m a n a g e m e n t o fsite values.
Policy c h a n g e s at the state a n d
commonwealth
g o v e r n m e n t levels c a n h a v e ag r e a t effect o n site v a l u e s

a n d their m a n a g e m e n t . I n the case o fP o r t A r t h u r , t h e s e
effects c a n b e s u m m a r i z e d as (i) s h a p i n g the institutional
s e t u p o ft h e m a n a g i n g e n t i t y ( P A H S M A s s t a t u s a sa G B E ,
a quasigovernmental corporation);
7 4
(2) p r o v i d i n g / c o n
trolling access t ofinancial resources (direct state funding,

s u b s i d i a r y f u n d i n g o ft o u r i s m d e v e l o p m e n t as o n e o f t h e
p r e f e r r e d m e a n s o fp o s t i n d u s t r i a l p u b l i c i n v e s t m e n t i n
e c o n o m i c d e v e l o p m e n t ) ; a n d (3) c r e a t i n g e x p e c t a t i o n s
and
p e r f o r m a n c e targets for the benefits created b y these pub

lic i n v e s t m e n t s .
T h e institutional setup directly affects v a l u e s b y
setting t h e g e n e r a l g o a l s o ft h e o r g a n i z a t i o n a n d e n a b l i n g
it t ou n d e r t a k e c e r t a i n activities. Q u a s i p u b l i c c o r p o r a
tions enjoy latitude in specifying h o w institutional goals
are t ob ep u r s u e d , a n d P A H S M A s , for e x a m p l e , are quite
b r o a d a n d d i v e r s e . B y d e s i g n , i to p e r a t e s a sa b u s i n e s s
a n d as ag o v e r n m e n t s t e w a r d s h i p a g e n c y t op u r s u e b o t h
e c o n o m i c a n d c o n s e r v a t i o n g o a l s i n m a n a g i n g t h e site,
in contrast t othe institutional setup o fa s t r a i g h t f o r w a r d
g o v e r n m e n t a g e n c y , w h i c h is o f t e n c o n s t r a i n e d b y b u r e a u
cratic structures a n d interagency relationships. Tradi
tional g o v e r n m e n t agencies have fairly n a r r o w (if exten
sive) m a n d a t e s (e.g., c o n s e r v a t i o n o fc u l t u r a l h e r i t a g e )
a n d often rely o nother g o v e r n m e n t entities a n d rules in
o r d e r t op e r f o r m f u n c t i o n s outside that m a n d a t e
C h a n g e s i n m e m b e r s h i p o ft h e g o v e r n i n g
body
a n d external conditions can also have astrong impact o n

tions. T h e m a n a g e m e n t troubles at P o r t A r t h u r b y the
P A H S M A has become more independent, well funded,
m i n i s t r y , w h i c h is p r o v i d i n g t h e
opportunistic
such relatively small, relatively independent organiza
c o m m o n w e a l t h bodies h a v e b e c o m e less influential a s
is t h e e n o r m o u s l y i n f l u e n t i a l r o l e o fP A H S M A s
Quasigovernment
and can be
a n d responsive t oexternal conditions.
T H E E F F E C T S OF GOVERNMENT POLICY
the detailed scrutiny previously necessary. T h e
flexible
agencies
t i m e o f t h e 1997 D o y l e I n q u i r y w e r e b r o u g h t o n i n p a r t b y
attempts t or e s p o n d t oexternal factors. T h e y w e r e
also
s y m p t o m a t i c , h o w e v e r , o fw h a t c a n h a p p e n i n a s m a l l ,
freestanding m a n a g e m e n t group in w h i c h the impact o f
i n d i v i d u a l s i ss t r o n g a n d susceptibility t o e x t e r n a l f u n d i n g
and other factors is high.
A n o t h e r m a j o r effect o nP o r t Arthur's values in
the r e c e n t past h a s b e e n the state g o v e r n m e n t ' s shift i n
t h i n k i n g a b o u t t h e r e s o u r c e s it p r o v i d e s t o P o r t A r t h u r
a n d t h e b e n e f i t s i te x p e c t s
from
t h e site. C o n t i n u i n g t h e
pendulum swings between conservation and commercial

o r i e n t a t i o n s at the site
from
t h e 1970s t h r o u g h t h e 1990s,
g o v e r n m e n t policies h a v e l e d t h e m o s t r e c e n t shift, w h i c h
s t a r t e d i n 1998. T h e c h i e f e x e c u t i v e o f t h e D e p a r t m e n t o f
State D e v e l o p m e n t stated that the government's
expecta
t i o n s o fg e t t i n g r e t u r n s o n t h e i r i n v e s t m e n t w e r e
"not
simply economic."
7 5
T h e state g o v e r n m e n t a n d the
P A H S M A B o a r d w o r k o n t h e a s s u m p t i o n that the site h a s

a variety o fe c o n o m i c a n d cultural v a l u e s o r , aspects o f
s i g n i f i c a n c e a n d that investment in these different val
u e s y i e l d s different k i n d s o fr e t u r n s . I n o t h e r w o r d s , t h e
government supports the emphasis o nconservation a s
l o n g as the " r e t u r n s " c o n t i n u e t ob eb o t h cultural ( g o o d
c o n s e r v a t i o n w o r k , e x c e l l e n c e o fv i s i t o r e x p e r i e n c e ,
p l e n t y o fv i s i t o r s , m a i n t e n a n c e o fA u s t r a l i a n a n d T a s m a n
ian identity) a n d e c o n o m i c (reasonable e c o n o m i c per
f o r m a n c e o fP A H S M A , a n d e c o n o m i c benefits o f P o r t
A r t h u r activities t othe p e n i n s u l a a n d the state).
T h e i n v e s t m e n t o fT a s m a n i a n authorities i n P o r t
A r t h u r is p a r t o ft h e state's d e c i s i o n t o e l i m i n a t e r e l i a n c e
o n extractive a n d agriculturalindustry (the export o f tim
b e r a n d apples) a n d b e c o m e m o r e o fagreen, touristo r i e n t e d state. P o r t A r t h u r ' s m a n a g e m e n t , al i n c h p i n o f
this strategy, isk e y t othe b r o a d e r m a r k e t i n g o f T a s m a n i a
for tourism. This change in g o v e r n m e n t policyraising
the profile o fP o r t A r t h u r as a n e c o n o m i c
development
r e s o u r c e s h a p e s t h e d ef a c t o p r i o r i t i z a t i o n o fsite v a l u e s .
T h e e c o n o m i c values realized on-site t h r o u g h c o m m e r c i a l
activities, as w e l l as the positive e c o n o m i c externalities t o
153
the region, are m o r e explicitly recognized.
Government
p o l i c y is f u r t h e r r e f l e c t e d i n t h e h a n d l i n g o f v a l u e s
Staff a n d b o a r d appear to share a clear w o r k i n g

u n d e r s t a n d i n g a b o u t h o w P A H S M A is s u p p o s e d t o p e r
t h r o u g h site m a n a g e m e n t : t h e e c o n o m i c v a l u e s are
f o r m as a c o m m e r c i a l o p e r a t i o n a n d g o v e r n m e n t
dependent o n the conservation, protection, and presenta
n o m i c - d e v e l o p m e n t investment, a n d also as a p a r a g o n o f
t i o n o f t h e site's c u l t u r a l significance v a l u e s , w h i c h p u t s
conservation w o r k s t a n d a r d s set out in the C o r p o r a t e
everything in alignment for the managers. C o n s e r v i n g
a n d Conservation Plans. T h e only specified decision
c u l t u r a l v a l u e s e n a b l e s t h e r e a l i z a t i o n o fe c o n o m i c
eco
values.
r e g a r d i n g the r e l a t i o n o f t h e s e t w o sectors a n d site v a l u e s
T h e Corporate Plans and Conservation Plan pro
is t h e C o n s e r v a t i o n P l a n ' s p h i l o s o p h y / p o l i c y t h a t c o n s e r
vide a clear mandate: D o not sacrifice conservation t o
vation takes priority w h e n c o m m e r c i a l activities are in
c o m m e r c e . N e v e r t h e l e s s , t h e b o a r d h a s s h o w n t h a t it is
conflict.
also willing to r e s p o n d to opportunities a n d carry out
A case in point w a s the decision not t o privatize
s u c h initiatives w i t h i n the guidelines o f the C o n s e r v a t i o n
a n d o u t s o u r c e c o m m e r c i a l o p e r a t i o n s o n t h e site (e.g.,
P l a n . M e a s u r e s a r e i n p l a c e t og a u g e t h e i m p a c t o f i n d i v i d
restaurants, gift shop). T h i s decision s t e m m e d i n p a r t
ual projects s u c h as the n e w ferry service a n d h a r b o r s i d e
from
plan. However, there are no established processes t o m o n
political position not to privatize the T a s m a n i a n State
i t o r t h e c u m u l a t i v e i m p a c t o fall p r o j e c t s , n o r h a v e l i m i t s
hydro c o m p a n y ) and has been part of the C E O ' s
of acceptable change been articulated. Either one
would
a l l o w the b o a r d a n d m a n a g e m e n t t oassess i m p a c t o n
the
w h o l e site o v e r t i m e .
the board. Privatization might have been
mandate
more
l u c r a t i v e , b u t it w o u l d h a v e t a k e n q u a l i t y c o n t r o l o u t
of
P A H S M A s hands and would not have been in accord with
P A H S M A m u s t c o n t i n u e t op r o v e t h a t s t a t e
are n e e d e d a n d w e l l spent, a n d that this
from
t h e state g o v e r n m e n t ' s c o m m i t m e n t ( r e l a t e d to its
funds
c o n s e r v a t i o n first. " W e o f t e n m a k e d e c i s i o n s a p r i v a t e
government
i n v e s t m e n t y i e l d s b e n e f i t s b e y o n d t h e site itself.
the C o n s e r v a t i o n Plan's values a n d policies, w h i c h put
P A H S M A
business w o u l d not," one executive said, citing examples
has d e m o n s t r a t e d the social a n d e c o n o m i c benefits o fa
s u c h as n o t p u t t i n g a M c D o n a l d ' s r e s t a u r a n t i n the S e p a
w e l l - c o n s e r v e d a n d - i n t e r p r e t e d h e r i t a g e site t ot h e l o c a l
rate Prison, o r n o t s t o c k i n g certain p r o d u c t s i n the gift

s h o p that the c o n s e r v a t i o n staff w o u l d consider inappro
and wider community.
priate. Conflicts arise b e t w e e n c o m m e r c i a l a n d conserva
DEALING W I T H CONFLICTING VALUES

D e a l i n g w i t h c o n f l i c t i n g v a l u e s is a m a j o r i s s u e i n v a l u e s b a s e d m a n a g e m e n t a n d o f m a j o r i n t e r e s t t ot h e d i d a c t i c
p u r p o s e s o ft h i s c a s e s t u d y . T h e p o t e n t i a l f o r
economic
v a l u e s t ot r u m p o r u n d e r m i n e c u l t u r a l v a l u e s , a n d t h e
p o t e n t i a l for different c u l t u r a l v a l u e s t oc o m p e t e , i s a n
issue f a c e d at m a n y sites.
A s is m a d e c l e a r i n t h e C o n s e r v a t i o n P l a n , t h e
Corporate Plans, and in conversations with
P A H S M A
B o a r d a n d staff, t h e p r i m a r y g o a l s a n d v a l u e s f o r P o r t
A r t h u r ' s site m a n a g e m e n t are c o n s e r v a t i o n a n d c u l t u r a l
significance. Yet the financial requirements for m a n a g i n g
the site r e q u i r e a fairly aggressive c o u r t i n g o f
economic
values t h r o u g h c o m m e r c i a l a n d t o u r i s m activities a n d
courting political-governmental sources of funding. T h e
policy d o c u m e n t s for Port A r t h u r do not detail specifically
h o w t oachieve a b a l a n c e w h e n the realization o f eco
n o m i c a n d c u l t u r a l v a l u e s s e e m s t oconflict. B e c a u s e t h e s e
d o c u m e n t s a d d r e s s d i f f e r e n t s e t s o fsite v a l u e s , g a p s
m a y
appear w h e n they are put together. T o the extent that

such gaps raise uncertainty about value priorities, conflict
and competition can crop up.
tion mandates
from
t i m e t ot i m e s u c h as t h o s e r e g a r d
ing special events and the ghost t o u r s b u t the
conflicts
were worse w h e n private operators and contractors were

on-site. F e w e r conflicts crop u p n o w that P A H S M A
trols all decision m a k i n g a n d i m p l e m e n t s these
t h r o u g h its m a n a g e m e n t t e a m a
con
decisions
"whole-of-site"
approach.
In interviews, b o a r d m e m b e r s a n d staff c o m m u
n i c a t e d c l e a r l y t h a t c o n s e r v a t i o n is t h e f u n d a m e n t a l g o a l
o f m a n a g e m e n t , a n d that achieving this goal requires inte
g r a t i n g m a n a g e m e n t o ft o u r i s m w i t h o t h e r
economic
aspects a n d c o m m e r c i a l activities o f t h e site. T h i s i n t e g r a

tion, or trading-off, h a p p e n s not t h r o u g h structured plan
n i n g or according to routinized decision m a k i n g b u t
"around the table" in b o a r d a n d executive
deliberations.
I n t e g r a t i o n o fe c o n o m i c a n d c u l t u r a l v a l u e s is h a n d l e d
i n f o r m a l l y a n d g u i d e d b y g e n e r a l p o l i c i e s i t is left n o t t o
c h a n c e b u t t ot h e m a n a g e r s . F o r i n s t a n c e , t h e staff h e a d
i n g different d e p a r t m e n t s ( c o m m e r c i a l as w e l l as conser
vation operations) w o r k w e l l together as a t e a m . T h i s
executive g r o u p , representing all m a n a g e m e n t areas a n d
different values, m e e t s w e e k l y a n d ensures that there i s
collaboration b e t w e e n conservation a n d c o m m e r c i a l enti-
154
ties. T h e i m p o r t a n c e o fthis i n t e g r a t i o n p r o c e s s
C o n s e r v a t i o n P l a n s t a r t i n g n o w , w ew o u l d i n t e g r a t e
was
com
acknowledged and addressed m o r e formally through the
mercial a n d conservation activities/policies in the
w o r k s h o p s p r e s e n t e d t o t h e staff, a n d s p e c i f i c a l l y t h e sce
plan." O t h e r m e m b e r s explained that the Burra Charter
n a r i o s u s e d t o t r a i n staff. S t a f f w e r e a s k e d t o c o n s i d e r , f o r
m e t h o d o l o g y a n d the d o m i n a n c e o fe c o n o m i c
values
e x a m p l e , w h a t w o u l d h a p p e n i fs o m e o n e p r o p o s e d s t a g
during the previous administrations are reasons
w h y
i n g a r o c k c o n c e r t o nt h e site, o r i f s o m e o n e
economic values are not amore-explicit part o f the
donated
funds for reroofing the church. T h e s e exercises w e r e in

effect m a n a g e m e n t "practice" for the process-based solu
tions (as o p p o s e d t op r e s c r i b e d p l a n - b a s e d solutions) o n
w h i c h P A H S M A relies t oresolve conflicts a n d set priori
same
Conservation Plan.
T H E CONSERVATION PLAN'S E F F E C T
ON SITE VALUES
"The Conservation Plan is the basis for all
ties vis-a-vis site values.
our decision making."
T h e executive staff are quite clear a b o u t their
77
d u t y o fconfronting a n d h e a d i n g off potential conflicts

between conservation and commerce, dealing with
them
T h e philosophy behind the Conservation Plan, mirrored in
" a r o u n d the table" guided b y the "general conservation
P A H S M A policies overall, isthe p r i m a c y o f conservation
policy." T h i s m o d e l o fdecision m a k i n g d e p e n d s a great
a n d , b y e x t e n s i o n , t h e c u l t u r a l v a l u e s c o m p r i s i n g t h e site's
deal o nthe personalities sitting at the table. A s the p e o p l e
cultural significance. A s reported b y several interviewees,
c h a n g e , t h e " P o r t A r t h u r w a y " i si n t e n d e d t ob et h e s y s
the single m o s t important m o m e n t in the C o n s e r v a t i o n
t e m for educating a n d integrating n e w c o m e r s a n d sustain
P l a n process w a s the a p p r o v a l o fthis p h i l o s o p h y b y the
i n g the m a n a g e m e n t practices set i n place b y the C o n s e r
P A H S M A B o a r d a n d T a s m a n i a n State
government.
Economically, the plan helped secure the
vation Plan and the board. T h e Port Arthur w a y is
A$IO
described b y b o a r d vice chairperson S h a r o n Sullivan:
million i n state f u n d i n g for P o r t A r t h u r (along w i t h the
" T h e P o r t A r t h u r w a y is t h e w a y i n w h i c h t h e
T a s m a n i a n State government's confidence in P A H S M A s
Conserva
tion P l a n w a s developed w i t h full staff input, including the
board a n d m a n a g e m e n t ) . T h e political objectives o f the
workshops w h i c h continually reinforce the
conservation
process w e r e successfully addressed: atargeted effort w a s
planning process a n d in w h i c h conservation plan policies
m a d e t oshape state policy a n d gain financial a n d political
are w o r k e d t h r o u g h a s they apply t oparticularissues. Itis
support. I n this m a t e r i a l sense, the C o n s e r v a t i o n P l a n
not a n accident that the P o r t A r t h u r staff act the w a y
o b v i o u s l y a d v a n c e s all t h e v a l u e s o ft h e site.
they
d o . It is a n i n t e n d e d o u t c o m e o ft h e c o n s e r v a t i o n p l a n
n i n g p r o c e s s a n d it is i n t e n d e d t o e n s u r e t h a t p r i o r i t y i s
g i v e n t ol o n g - t e r m site c o n s e r v a t i o n i n e v e r y issue w h i c h
is c o n s i d e r e d b y t h e E x e c u t i v e a n d t h e
staff."
T h e b a l a n c e o fthis section explores issues related

specifically t om a n a g e m e n t o fcultural values.
Articulating
Values According
to Type
B y e m p l o y i n g the heritage value t y p o l o g y o fthe B u r r a
7 6
In setting P A H S M A s course, the C o r p o r a t e Plan
Charter process, the Conservation Plan privileges those
leaves r o o m for political m a n e u v e r i n g a n d opportunistic
value types. This a p p r o a c h yields benefits in exhaustively
d e v e l o p m e n t d e c i s i o n s o nt h e p a r t o ft h e b o a r d . A n y g a p s
dealing with the four canonical types o f cultural
perceived between the strategic C o r p o r a t e Plan a n d the
significance v a l u e h i s t o r i c , social, scientific, a n d aes
more-specific Conservation Plan (including the
theticbacked by an established process o fresearch,
secondary
p l a n s ) a p p e a r t ob eb y d e s i g n . T h i s g i v e s t h e b o a r d a n d
consultation, and synthesis into an overall statement o f
executive flexibility i n setting priorities, allocating
significance. A t the s a m e time, the process raises s o m e
resources, a n d s oforth, a n d enables t h e m t o r e s p o n d
potential difficulties by, for instance, e x c l u d i n g
m o r e effectively t oopportunities, disasters o r other unex
values, a n d handles A b o r i g i n a l values a w k w a r d l y b y seg
pected events, c h a n g i n g m a c r o e c o n o m i c conditions,
regating them.
and
changing political fortunes.
T h e Conservation Plan's m e t h o d o f examining
T h e l e a d e r s h i p o ft h e b o a r d c o n t i n u e s t o r e c o g
n i z e t h e i m p o r t a n c e n o t o n l y o fi n t e g r a t i n g t h e
economic
manage
values b y type a n d not b y chronology m a y w o r k against

t h e u n d e r s t a n d i n g o fP o r t A r t h u r as a d e e p l y l a y e r e d site.
m e n t o fdifferent values b u t also o fcontinually revising
C o n t r a s t this w i t h aw a y o fassessing v a l u e s (historic o r
Port Arthur's statement o fsignificance a n d r e e x a m i n i n g
"conservation" values at least) a c c o r d i n g t othe periods o r
the relation b e t w e e n c o m m e r c i a l a n d conservation strate
layers o ft h e site ( A b o r i g i n a l , c o n v i c t - e r a , C a r n a r v o n , S P B ,
gies. O n e b o a r d m e m b e r stated, " I fw e w e r e doing the
P a r k s / P A C D P , P A H S M A , post-1996). A v a l u e e l i c i t a t i o n
155
f r a m e w o r k b a s e d o n historic p e r i o d s c a n l e a d to a differ
phasing of conservation and development projects has
ent m a n a g e m e n t strategy, privileging the values related to
b e e n drafted as a n internal p l a n n i n g tool, identifying
a p a r t i c u l a r e r a , w h i c h m a y h a v e ab e n e f i c i a l effect o n t h e
planning projects and major and m i n o r works, and
s c i e n t i f i c v a l u e r e l a t e d t o it.
scheduling these projects over afive-year period. T h i s
T h e i d e a o f c h r o n o l o g i c a l l a y e r s is c e n t r a l to
visitors' u n d e r s t a n d i n g o f the site a n d h a s b e e n the tradi
tional w a y o f l o o k i n g at the site's significance a n d c o n s e r
vation.
7 8
H o w are values of different periods prioritized
d o c u m e n t p r o v i d e s ag u i d e l i n e f o r d e c i s i o n s a n d is c o n t i n
ually rethought a n d refined.
Tying Values to Fabric
Values articulated in the Conservation Plan are not tied
w h e n t h e y coexist i n ap a r t i c u l a r b u i l d i n g ? I n t h e p e n i t e n
to specific e l e m e n t s o f f a b r i c . It is left to t h e s e c o n d a r y
tiary, for instance, f u t u r e c o n s e r v a t i o n to a l l o w r e a d i n g
plans to establish the more-detailed policies about conser
o f t h e 1840s f a b r i c a n d c r e a t e p e r f o r m a n c e s p a c e
vation a n d operational priorities a n d treatment of fabric,
may
s a c r i f i c e t h e i n t e g r i t y o f t h e 1970s c o n s e r v a t i o n w o r k .
a n d to set out steps for i m p l e m e n t a t i o n . T h e tertiary plans
Ideally, values w o u l d b e o r g a n i z e d b o t h b y type a n d
spell out actual w o r k s procedures. T h e s e c o n d a r y a n d ter
b y historical layer, so that o n e w a y o f valorization does
tiary plans are not actually hierarchical, even though their
not
n a m e s suggest they are. T h e y are intended to cut across
dominate.
P o r t A r t h u r c o n s e r v a t i o n p l a n n i n g efforts
o n e another, enabling project p l a n n i n g to focus either o n
r e s p o n d to this issue b y trying to mitigate this k i n d o f
s u b j e c t a r e a s (e.g., a r c h a e o l o g y ) o r o n specific site ele
unavoidable, chronological valorization of value types.
m e n t s (e.g., t h e S e p a r a t e P r i s o n ) .
Different value schemes are used in secondary p l a n s
Instances arise, however, w h e n the general poli
organized, for instance, a r o u n d g e o g r a p h i c areas, as in
c i e s i n concert w i t h the specific value
the L a n d s c a p e Plan; a r o u n d interpretive themes, as i n
s e e m to prefigure adecision regarding the
the Interpretation Plan; or around eras in built-element
o f asite r e s o u r c e . F o r e x a m p l e , t h e c h u r c h , like m a n y site
assessments
conservation
plans. T h e s e "alternative" value schemes cut across the
elements, has several kinds of value. Given the overall
m a i n typology and enrich the articulation of values with
value assessments a n d conservation policies, the scenic
out undermining the values-based rigor of the Burra
(aesthetic) qualities o f the c h u r c h as aroofless r u i n
Charter framework.
to take precedent over the historic values that w o u l d b e
Assigning
Priorities
among Cultural
Values
seem
r e a l i z e d b y r o o f i n g a n d r e c o n s t r u c t i n g it. ( S u c h r e c o n
T h e Conservation Plan articulates the w i d e range of
struction w o u l d also raise the issue of adversely affecting
cultural values, yet assigns n o priority or hierarchy to
the authenticity of the structure.)
them. W h e n decisions m u s t be m a d e between,
hypotheti-
The Conservation
Plan's Effect on the Process
cally, ap r o j e c t c e n t e r e d o n c o n s e r v i n g r e s e a r c h v a l u e s
T h e process of formulating and approving the Conserva
( d o c u m e n t i n g a r c h a e o l o g i c a l r e s o u r c e s ) a n d ap r o j e c t to
tion P l a n h a s h a d av e r y s t r o n g a n d s a l u t a r y effect o n m a n
stabilize reconstructed built fabric, the value articulation
agement within P A H S M A . T h e process helped
manage
a n d significance s t a t e m e n t s p r o v i d e little g u i d a n c e . T h e
t h e h u g e post-1996 t r a n s i t i o n o f staff; i t h e l p e d
manage
S e p a r a t e P r i s o n ( s e e s i d e b a r o n p a g e 140) p r e s e n t s t h e
a n d g u i d e t h e r e c o m p o s i t i o n o f t h e b o a r d ; a n d it h e l p e d
option of r e m o v i n g earlier conservation w o r k (from
r e d u c e t e n s i o n b y i m p r o v i n g c o m m u n i c a t i o n a m o n g dif
the twentieth century) to restore the
ferent stakeholders a n d within the P A H S M A
nineteenth-century
convict experience.
organization.
In another sense, the C o n s e r v a t i o n Plan raises
S e c t i o n 6.3.10 o f t h e C o n s e r v a t i o n P l a n o f f e r s
g e n e r a l g u i d a n c e (first, w o r k o n t h i n g s t h a t a r e d a n g e r o u s
questions about the role o f outside agencies vis-a-vis

P A H S M A i n m a n a g i n g t h e site, a n d w h a t k i n d s o f over
o r that threaten operations, t h e n prioritize a c c o r d i n g to
sight are enabled. T h e flexibility o f the d e c i s i o n - m a k i n g
the significance o f the specific elements in question), a n d
process gives P A H S M A asignificant a m o u n t o f
i n d i v i d u a l site e l e m e n t s a r e r a t e d i n b r o a d categories for
a n d oversight. T h e Conservation Plan has helped secure
their significance.
c o n f i d e n c e a n d ap r i o r i b u y - i n b y staff, l o c a l l e a d e r s , a n d
7 9
T h e d e c i s i o n s a r e left i n t h e h a n d s o f
autonomy
P A H S M A managers and their annual w o r k s budget. Yet
state officials o n P A H S M A site d e v e l o p m e n t a n d c o n s e r v a
P A H S M A policy for spending
t i o n d e c i s i o n s . L o c a l c o u n c i l a p p r o v a l is still n e e d e d
A$IO
million in government
to
f u n d s o n c o n s e r v a t i o n w o r k s h a s n o t b e e n c o d i f i e d ; it is
approve physical projects, b u t this c o n c e r n s m a i n l y infra-
decided o n arolling, year-to-year basis. A s c h e m e
structural issues (not heritage i s s u e s o n this the local
156
SITE
for
PORT ARTHUR HISTORIC SITE

Conservation Plan and derived plans
Figure 3.12. Port Arthur Historic Site Conservation Plan and derived
plans. (Source: Adapted from Richard Mackay, "Conservation Planning
Presentation," January 2001)
c o u n c i l defers to t h e T H C ) .T h e T H C h a s
statutory
review responsibilities a n d sometimes attaches
T h e m a i n interpretation strategies r e m a i n those
conditions
identified in the Conservation Plan, although their con
to projects. B u t P A H S M A a n d the T H C have aclose w o r k
tent has b e e n significantly revised. T h e guided
ing relationship,
r e m a i n s the m o s t i m p o r t a n t interpretive activity, b u t
8 0
and there has been discussion
over
granting P A H S M A blanket exemption from T H C review
t h e n u m b e r a n d v a r i e t y o f o f f e r i n g s is to b e
o n the basis that self-review w o u l d be sufficient to
to address niche
the quality of conservation

THE
ensure
work.
T h e Interpretation Plan dispenses with the idea
INTERPRETATION PLAN
m a r y m e s s a g e "too fabric-focused" a n d centering o n
T h e Interpretation Plan will shape cultural values directly

as it p a c k a g e s t h e m f o r p u b l i c u n d e r s t a n d i n g .
8 1
F o r the
m o s t part, the m e a s u r e s called for in the plan will build o n

Conservation
Plan. T h e r e are s o m e departures, though. Instead of see

i n g the values a c c o r d i n g to the categories u s e d in the
Con
s e r v a t i o n P l a n , the I n t e r p r e t a t i o n P l a n v i e w s the site first

as "a c o m p l e x l a y e r e d c u l t u r a l landscape." I n this sense, i t
presents a different, m o r e holistic w a y o f l o o k i n g at cul
tural values.
8 2
increased
audiences.
o f o n e " p r i m a r y message" a n d in particular w i t h a pri
AND ITS E F F E C T S ON VALUES
the values and significance outlined in the
tour
the
p h y s i c a l e v o l u t i o n o f t h e site. "[RJather, I n t e r p r e t a t i o n
will a i m to offer ar a n g e o f presentations that will cater t o
audience types a n d interests," a n d the interpretation poli
cies a n d activities will b e m o r e "visitor-focused."
This
significant departure of interpretation strategy will likely

affect h o w the v a l u e s are m a n a g e d . B y c a t e r i n g to
the
interests of visitors, the interpretation policies are turning

away f r o m aconsensus v i e w of historic values
(centered
o n convictism and national character) and toward the

r e c o g n i t i o n that all visitors see the v a l u e s o f the site differ
ently a n d should not be expected to accept asingular mes
sage. S u c h astrategy raises the potential for conflict
with
157
t h e n o t i o n o fa s i n g l e s t a t e m e n t o fs i g n i f i c a n c e f o r t h e
agree that the peninsula, stretching to places like Saltwa
siteand indeed, the Port Arthur Statement
t e r R i v e r a n d t h e C o a l M i n e s , is t h e t r u e r e s o u r c e a n d is
of
S i g n i f i c a n c e ( s e e p . 134) i s l e n g t h y a n d i n c o r p o r a t e s , i n
n o t c o n f i n e d t ot h e b o u n d a r i e s o f P o r t A r t h u r . T h e v a l u e
effect, an u m b e r o f different "significances."
o f the historical probation relics has b e e n recognized
T h e Interpretation Plan also builds in m e c h a

n i s m s o f f e e d b a c k a n d r e s p o n s i v e n e s s t ov i s i t o r e x p e r i
on
the peninsulathe buildings and routes are protected

under the T a s m a n Municipal Council planning scheme.
e n c e s that, i n time, m a y shift the k i n d s o f values b e i n g
C o m m e r c i a l activities a n d e c o n o m i c benefits b e i n g m a n
p r e s e n t e d . H e n c e t h e r e is a n i n t e n t i o n a l r e s h a p i n g o f v a l
a g e d b y P A H S M A a r e i n t e n d e d t oe n c o m p a s s a n d spill
u e s o r at least a n o p e n i n g to different v i e w s b u i l t in t o
over to the w h o l e peninsula. T o advance the c o m m e r c i a l
the m a n a g e m e n t strategy. P r e s u m a b l y , as visitors' percep
and conservation goals of P A H S M A , m a n a g e m e n t
has
tions o f v a l u e shift, i n t e r p r e t a t i o n policies w o u l d shift t o
already b e g u n adopting regional strategies a n d actions,
address t h e m , perhaps c h a n g i n g the priorities o f the val
including Port Arthur Region Marketing Ltd.(PARM)
u e s b e i n g t r a n s m i t t e d . V i s i t o r f e e d b a c k is ap o t e n t i a l fac
the C o n v i c t T r a i l i n t e r p r e t i v e s c h e m e . T h e site's r e g i o n a l
t o r o fc h a n g e i n w h i c h v a l u e s a r e i n t e r p r e t e d ; a n o t h e r is
s i g n i f i c a n c e is b e i n g a d d r e s s e d p r o a c t i v e l y a n d s u c c e s s
r e s e a r c h , w h i c h is i n t e n d e d t oc o n t i n u a l l y i m p r o v e a n d
fully, l a r g e l y t h r o u g h activities a n d o r g a n i z a t i o n s
u p d a t e the specific values a n d m e s s a g e s available t o visi
the Conservation Plan, a n d b y strengthening informal
tors a n d the public.
relationships with the c o m m u n i t y and with owners of the
In m o r e specific t e r m s o f h a n d l i n g fabric, values,

between
two of the m a i n cultural values of the sitethe
aesthetic
outside
o t h e r p e n i n s u l a r sites.
a n d interpretation strategy, o n e o f the plan's m o s t inter

e s t i n g p o i n t s is t h e n o t i o n t h a t t h e s t a r k c o n t r a s t
and
P A R M w a s f o r m e d i n 2000 t o c o o r d i n a t e a n d
a d v a n c e e f f o r t s t om a r k e t P o r t A r t h u r a l o n g w i t h o t h e r
t o u r i s m activities in the T a s m a n P e n i n s u l a region. It has
values of the landscape juxtaposed with the historic and
f o r t y - t h r e e m e m b e r s . P A H S M A is P A R M ' s p r i m a r y b e n e
s o c i a l v a l u e s o fc o n v i c t i s m a n d its d r e a d f u l n a r r a t i v e s i s
factor a n d holds t w o o f the group's six seats o n the b o a r d .
singled out for interpretation. Also, reconstruction a n d
T h e organization builds o n the widely held notion that
r e i n s t a t e m e n t o f m i s s i n g b u t h i s t o r i c f e a t u r e s is e n c o u r
t h e P o r t A r t h u r site is t h e c o m p e t i t i v e a d v a n t a g e o f t h e
aged, as allowed w i t h i n the b o u n d a r i e s o f C o n s e r v a t i o n
region in tourism marketing and should be marketed t o
Plan policy Such interpretation improvements
benefit the entire region. Tourists experience the region as
have
potential effects o n the aesthetic values if yards, fences,
a whole; their satisfaction does not begin or e n d w i t h the
fieldlines, p a t h w a y s , a n d footprints are reinstated, for
site e x p e r i e n c e . I f the tourist e x p e r i e n c e i n P o r t A r t h u r
i n s t a n c e . T h i s is a c l e a r e x a m p l e o fa s e c o n d a r y p l a n g i v
c a n b e l i n k e d t oo t h e r r e s o u r c e s b e y o n d t h e site, o v e r n i g h t
i n g o n e t y p e o fc u l t u r a l v a l u e p r i o r i t y o v e r a n o t h e r i n
visits t ot h e r e g i o n c a n b e i n c r e a s e d a p r i m a r y m e a n s
o r d e r to a c h i e v e t h e o v e r a l l g o a l s for t h e site.
increasing economic
THE
TASMAN PENINSULA REGION AS RESOURCE
AND AS STAKEHOLDER
T h e articulation of values a n d statement of significance
in the C o n s e r v a t i o n P l a n pave the w a y for this multifaceted a p p r o a c h to seeing the cultural significance o f Port
A r t h u r o n aregional scale (including the peninsula, the
island, a n d the waters). This rightly encompasses
the
p e n i n s u l a - w i d e s y s t e m o fc o n v i c t s t a t i o n s , p r o b a t i o n s t a
tions, p e n a l sites, a n d o t h e r sites o f p r o d u c t i o n t o s u p p o r t
the m a i n convictism values. Like m a n y others, the
"regional" issue stems f r o m the cultural significance of
t h e site as w e l l as f r o m its e c o n o m i c
values.
T h e significant cultural landscape being con

s e r v e d a n d i n t e r p r e t e d at P o r t A r t h u r is t h e
Tasman
P e n i n s u l a , n o t j u s t t h e P o r t A r t h u r site itself. P l a n s a n d
s c h o l a r s g o i n g b a c k a t l e a s t t o t h e P A C D P y e a r s (1979-86)
158
of
benefits.
T h e character of the whole peninsulaits mar

keting, services, ownership, a n d land-use controlis
of P A H S M A s control, yet the overall success of
out
promot
ing Port Arthur depends on these regional/peninsular

c o n n e c t i o n s . I n i t i a t i n g a n d s u p p o r t i n g P A R M is a s t e p
toward managing these relationships/partnerships. E v e n
the direct stewardship responsibilities of P A H S M A
m a y
s o o n extend to the s e c o n d a r y p u n i s h m e n t station at C o a l

Mines.
8 3
W h a t are the implications for values a n d their
m a n a g e m e n t o f this m u l t i f a c e t e d effort t ot r e a t P o r t
A r t h u r as aregional entity as o p p o s e d to a strictly
b o u n d e d site?
Apart
from
P A R M , there are currently no formal
relationships between P A H S M A and other owners
and
p a r t n e r s . A n y s t r o n g a s s e r t i o n o fP A H S M A c o n t r o l o v e r
the greater peninsula w o u l d be resented b y locals,
though
they s e e m t oe n j o y ap r o d u c t i v e relationship at present.
B r o a d e r control w o u l d have to be achieved carefully, in a

partnership f r a m e w o r k and through adeliberate
rative process. P A H S M A s e e m s to be paving the
collabo
way
toward thisthe Conservation Plan and P A R M are two

examples o f effective collaborative
processes.
8 4
159
Conclusions
T h e m a n a g e m e n t o f P o r t A r t h u r brings to light a n u m b e r
emphasizing the conservation and presentation of core
o f i m p o r t a n t l e s s o n s a n d p r i n c i p l e s . A s u m m a r y is o f f e r e d
cultural significance values.
h e r e as didactic points a n d t h e m e s relevant to heritage site

management in general.
T h e recent history of Port Arthur disproves the

i d e a t h a t c o m m e r c e is t h e b a n e o f c o n s e r v a t i o n , a n d t h a t
Port A r t h u r provides a n opportunity to observe a

deliberate and thoughtful conservation planning
frame
t h e s e p a r a t i o n o f e c o n o m i c a n d c u l t u r a l v a l u e s is legiti
m a t e i n d e a l i n g holistically w i t h site m a n a g e m e n t .
w o r k t h e pioneering B u r r a C h a r t e r p r o c e s s a p p l i e d to
m o d e l of sustainable conservation practiced by
a site w i t h v a r i e d cultural heritage significance, a n exten
a d v a n c e s b o t h sets o f the site's v a l u e s .
sive a n d c o m p l e x set o f physical resources, a n d a progres

sive set o f institutional a r r a n g e m e n t s m a d e for t h e site's
m a n a g e m e n t . P o r t A r t h u r is o f p a r t i c u l a r i n t e r e s t b e c a u s e
it h a s b e e n m a n a g e d as a h e r i t a g e site f o r m o r e t h a n
one
h u n d r e d y e a r s , m u c h l o n g e r t h a n t h e f o r t y - s e v e n y e a r s it
w a s o p e r a t e d as a prison.
f o r P o r t A r t h u r h a v e c h a n g e d a g r e a t d e a l o v e r its history,
one
b u t to satisfy the goal o f s e c u r i n g resources either
from
the g o v e r n m e n t a l a g e n c y in control at the t i m e o r
from
the t o u r i s m market. T h e imperative to secure funding,
overarching
frameworks
of the Conservation and Corpo
rate Plans, plus the m o r e detailed decisions w o r k e d out

and recorded in the secondary and individual elements
sufficient levels o f policy guidance a n d empirical informa
tion to m a k e s o u n d
decisions.
E c o n o m i c a n d cultural values are assessed differently a n d

at d i f f e r e n t levels o f detail. M o r e i m p o r t a n t is h o w
explains i n large p a r t the shifts i n v a l u i n g strategies o v e r

government-
well. T h e current m a n a g e m e n t clearly understands the

primacy of conservation of cultural significance values,
while fully recognizing the essential role of e c o n o m i c
f u n d e d priorities at o n e e n d o f the s p e c t r u m to the

c o m m e r c i a l - c e n t e r e d , m a r k e t - o r i e n t e d strategies at the
pendulum
s o m e w h e r e in the middle of the spectrum, balancing

physical conservation and interpretive needs with tourism
ues a n d efforts to realize t h e m ( t h r o u g h direct t o u r i s m ,

tions, a n d the positive e c o n o m i c externalities
generated
for the T a s m a n i a n e c o n o m y b y visitation to P o r t Arthur).

MANAGEMENT ARRANGEMENTS AND
c o n t r i b u t e to t h e l o n g - t e r m c o n s e r v a t i o n o f t h e site.
INSTITUTIONAL A R C H I T E C T U R E
added
T h e institutional a r r a n g e m e n t s o f the site represent a n
a n o t h e r significant layer o f v a l u e s to the site w i t h o u t
important, emerging model in heritage
obscuring the core cultural values related to convictism
a quasipublic corporate model.
a n d its a f t e r m a t h . D e a l i n g w i t h t h e i m p a c t o f t h e
this i n s t i t u t i o n a l a r r a n g e m e n t is t h a t t h e p r i m a r y
tragedy
val
business d e v e l o p m e n t related to t o u r i s m a n d site o p e r a
access a n d other revenue-generating activities that also

T h e 1996 t r a g e d y a t t h e B r o a d A r r o w C a f e
these
values are integrated, a n d the m a n a g e m e n t r e g i m e at P o r t

A r t h u r t h e "Port A r t h u r w a y " h a s d o n e this quite
in ever-changing political a n d administrative climates,
other. A t present, P A H S M A has stopped the
POLICY AND VALUES FRAMEWORK

Port A r t h u r has awell-developed policy f r a m e w o r k . T h e
V a l u e s are articulated c o m p l e t e l y a n d explicitly.
c o m p l e t e d not only to outline conservation strategies
t i m e f r o m the conservation-centered,
P A H S M A
plans, give m a n a g e r s ag o o d deal o f latitude as w e l l as
T h e ownership, control, and funding sources

resulting in avariety and n u m b e r of planseach
T h e
8 5
m a n a g e m e n t
T h e salient feature
of
manage
w a s am a j o r challenge for site m a n a g e m e n t . It h e l p e d p a v e
m e n t e n t i t y P A H S M A , in the case of Port A r t h u r
t h e w a y f o r t h e 2000 C o n s e r v a t i o n P l a n a n d p l a n n i n g
enjoys the benefits of s o m e government funding without
process, w h i c h t u r n e d the site a r o u n d . T h e
management
the strictures (oversight, for instance) o f operating as a
philosophy c h a n g e d to include true collaboration across
governmental department nested within alarge hierarchi
m a n a g e m e n t areas, incorporate lateral m a n a g e m e n t ,
cal b u r e a u c r a c y . I n a s m a l l , i n d e p e n d e n t entity,
focus on external partnerships, while
160
SITE
simultaneously
and
decisions
c a n b e m a d e m o r e q u i c k l y a n d w i t h m o r e flexibility, a n d
w i t h alarger r a n g e o fpublic, private, o r
nongovernmen
H o b a r t and carrying out the successful Islands o f Vanish
tal organization ( N G O ) partners. T h e s e entities also b e a r
m e n t conference, a n d also have b e e n avid partnership
responsibility for generating s o m e o ftheir revenue.
builders, forging relationships w i t h the T a s m a n i a n State
H o w e v e r , this i n d e p e n d e n c e isa double-edged
government, the heritage community, and P A R M .
This
s w o r d . I n its initial f o r m , w h e n a n n u a l profit w a s r e q u i r e d ,
collaborative a p p r o a c h isapplied m o r e generally t h r o u g h
the G B E institutional f o r m a t w a s f o u n d t ob e deeply
o u t t h e site, a n d i ti so n e o f t h e p r i m a r y w a y s i n w h i c h
flawed.
decisions about e c o n o m i c a n d cultural values are inte
It h a s b e e n u s e d t o excellent effect i n r e c e n t y e a r s ,
w h e n , i n r e s p o n s e t o post-1996 c h a l l e n g e s a n d o p p o r t u n i
grated. T h e m a n a g e m e n t style o fthe C E O h a s set a n
ties, P A H S M A s m a n d a t e w a s m o d i f i e d t o r e p l a c e profit
important tone: reaching consensus, building a manage
m a k i n g w i t h the m o r e reasonable goal o fensuring the
m e n t t e a m , b u i l d i n g ties t og o v e r n m e n t , a n d b r e a k i n g
c o n s e r v a t i o n a n d p r e s e n t a t i o n o fthe site w h i l e p u r s u i n g a
d o w n b a r r i e r s a m o n g t h e d i f f e r e n t l e v e l s o f staff. A l l o f
these tools a n d habits create am a n a g e m e n t strategy that
policy o fc o m m e r c i a l viability.
B y relying o nam i x o fdedicated
is n o t e a s i l y r e c o r d e d o rc a p t u r e d i n d o c u m e n t s ,
government
f u n d i n g a n d self-generated revenue, this k i n d o f institu
t h e m h a r d t ostudy outside o fcase studies.
t i o n a l s e t u p e x p o s e s t h e site a n d its v a l u e s t o al e v e l o f
t h e y are i m p o r t a n t t o the effective, sustainable
r i s k . I f v i s i t a t i o n d r o p s off, a n d / o r i fg o v e r n m e n t
m e n t o ft h e site.
support
is t h r e a t e n e d , t h e site w o u l d b e c o m e v u l n e r a b l e . T h e r e
making
Nevertheless,
manage
It i sdifficult t o get aw e l l - r o u n d e d v i e w o f t h e
w o u l d likely b ep r e s s u r e t ob e c o m e m o r e c o m m e r c i a l a t
effect o fthis m a n a g e m e n t a n d p l a n n i n g r e g i m e o n site
the expense o fconservation values. T h e P A H S M A institu
v a l u e s . T h i s i sp a r t i c u l a r l y s ow i t h P o r t A r t h u r , g i v e n t h e
tional f r a m e w o r k enables the p e n d u l u m t oswing either
relatively short time the current m a n a g e m e n t t e a m has
w a y i n f a v o r o f c o m m e r c i a l o rc u l t u r a l v a l u e s . P o r t
been in place. I n recent years, however, P A H S M A
A r t h u r h a s less o fasafety net t og u a r d against overdevel
largely s u c c e e d e d i n creating avalues-centered
o p m e n t , t h o u g h i th a s t h e s a m e e x p o s u r e t o p u b l i c - s e c t o r
m e n t r e g i m e in the sense that ithas deliberately identified
has
manage
d i s i n v e s t m e n t i n c o n s e r v a t i o n . M o r e o v e r , i n its c o m m i t
a r a n g e o f site v a l u e s , p l a c e d t h e m a tt h e c e n t e r o f p o l i c y ,
m e n t t o t h e 2000 C o n s e r v a t i o n P l a n , P A H S M A
and managed
has
a c c e p t e d t h e p r i m a c y o fits o b l i g a t i o n t op r o t e c t t h e cul
flexibly
a n d creatively t oachieve overall
goals within policy
tural significance o fP o r t A r t h u r over all other considera
frameworks.
U l t i m a t e l y , t h e q u e s t i o n is, W h a t b e n e f i t s
have
tions. T h e key, o fcourse, isb a l a n c i n g certainty a n d risk
stemmed
taking t oact entrepreneurially within the b o u n d s o f
a g e m e n t for P o r t A r t h u r ? O n the basis o fthis case study,
retaining cultural significance, acourse P A H S M A
has
from
the use o fvalues-based p l a n n i n g a n d m a n
one can conclude that the values orientation o f Port
charted well.
Arthur's m a n a g e m e n t has created aclear mandate o f
T H E PORT ARTHUR WAY, MANAGEMENT STYLE,

AND PLANNING PROCESS
c e n t e r e d o nc o n v i c t i s m ;
flexible
internal management
habits a n d principles, allowing creativity a n d opportunism
P o r t A r t h u r is ag o o d e x a m p l e o ft h e s a l u t a r y effect o f
thoughtful, deliberate planning processes. T h e Conserva
tion Plan process enabled and stoked collaboration
protection o faw i d e l y u n d e r s t o o d set o fcultural values
among
P A H S M A s departments a n d has positively shaped the

o n g o i n g , e v e r y d a y m a n a g e m e n t o ft h e site. E s t a b l i s h m e n t
within the overall conservation-focused
management
policy; a n d g o o d partnership building, leading t o strong

relations in the region a n d the creation o fsolid resources
at the state g o v e r n m e n t level.
o f the P o r t A r t h u r w a y isc o u n t e d a m o n g the m a j o r

accomplishments o fthe past few years. T h e collaboration
Notes
o f b u s i n e s s a n d c o n s e r v a t i o n staff a tP o r t A r t h u r i s
remarkable. Developed a spart o fthe Conservation Plan
process, the P o r t A r t h u r w a y relies o n
flexible
policies t o
1.
g u i d e d a y - t o - d a y m a n a g e m e n t , a n d o na v i d c o n s u l t a t i o n
a n d staff involvement.
T h e managers o fP A H S M A have succeeded in
collaborating w i t h external p a r t n e r s as well. T h e y h a v e
been opportunistic, attracting the n e w ferry service
from
Further details about the site's geography and features are

available in the 2000 Conservation Plan, particularly Godden
Mackay 2000b.
2.
See appendix A for a time line of Port Arthurfrom1877

to 2001.
3.
Simpson and Miller 1997,15.
NOTES
161
4.
Brand 1998; Godden Mackay 2000b; Design 5 Architects Pty.

Ltd. 2001; and Young 1996 were used as sources of informa
tion for this section.
30.
31.
PAHSMA 2001a.
32.
Context 2001,100.
33.
Use of the term values herein follows the precedents set by

the Burra Charter unless otherwise noted.
34.
The ebb and flow of these many decades are carefully docu
mented in Young 1996.
Briggs 1996.
35.
Brian EglofFs work was a valuable source for this summary.
10.
Michael 1997.
36.
11.
AAP Information Services Pty. Ltd. 2000.
12.
For a full description of the role and responsibilities of

the Australian Heritage Commission, please log on to
In the context of this study, commercial values refers to a

particular type of economic value, specifically the kind of
economic use value realized by the commercial activities
directly related to the siteuser fees, food and other prod
ucts purchased on site, and so on. Secondarily, it also refers
to the economic values generated as positive externalities to
site activities, and again are realized through specific com
mercial operationsfor instance, nearby restaurants and
lodging.
37.
Tasmania National Parks and Wildlife Service 1985,22.
38.
Ibid.
39.
Ibid., 1.
40.
Egloff 2002,15.
41.
Port Arthur Historic Site Management Authority 1996,1-2.
42.
Quotedfromthe Australian Heritage Places Inventory entry

found at www.heritage.gov.au/cgi-bin/ ahpi/record.pl?TASRl
(no date given). The statement of significance at the
commonwealth-level Register of the National Estate is not
considered current. It identifies, indirecdy, the 1830s to the
1870s as the primary period of significance. It refers mainly to
buildings of the main site, with only a passing reference to
open spaces. The register's Web site notes that pre-1991 listings
such as this are in need of updating.
43.
The Conservation Plan was developed by Godden Mackay

for the Port Arthur Historic Site Management Authority.
44.
Godden Mackay 2000a, section 3.2.
45.
The summaries are derived from Godden Mackay 2000b,

section 3.0.
46.
"World Heritage" values cannot be articulated for Port

Arthur because it has not been designated a UNESCO World
Heritage Site. They are listed in the Conservation Plan
because of an ongoing effort to nominate Port Arthur and
other convict-related Australian sites for World Heritage sta
tus. Nevertheless, these values are shaped by the nomination
5.
Much of the information in this and the following sections

was takenfromYoung 1996.
6.
Egloff 1986,4.
7.
Ibid., 19.
8.
Jane Lennon and Associates 1998.
9.
http://ahc.gov.au/ (8 May 2003).
13.
Marshall and Pearson 1997,46.
14.
Government of Australia 1975, section 4(1).
15.
Australia ICOMOS1999.
16.
In 1987 (the year PAHSMA was created), the NPWS (of Tas
mania) merged with the Department of Lands to become
the Department of Lands, Parks and Wildlife. Five years
later, this department was subsumed within the Department
of Environment and Land Management (DELM). After the
Labor government was re-elected in August 2002, the Tas
manian premier created a new Department of Tourism,
Parks, Heritage and the Arts, which reported to him. Source:
Tasmania National Parks and Wildlife Service 2000.
17.
The act became effective in early 1997. Tasmania was the last
state in Australia to adopt such legislation.
18.
Government of Tasmania 1995a.
19.
Tasmanian Premier s Local Government Council 2001,5.
20.
Context 2001, 85-86.
21.
Ibid., 87.
22.
Government of Tasmania 1987,1995.
23.
Tasmanian Audit Office 1997.
24.
D. Young, "Re: Port Arthur," e-mail correspondence,

26 February 2002.
25.
Information for figure 3.8 was gathered from the Site Tour
section of the Port Arthur Historic Site Web site,
http: / / www.portarthur.org.au/ site-tour.htm (8 May 2003)
and from Temple 2000.
26.
27.
The Bookings section of the Port Arthur Web site is found at

http: / / www.portarthur.org.au/bookings.htm (8 May 2003).
criteria set out in the World Heritage

tional
All prices are given in Australian dollars; current as of
Convention
and Opera
Guidelines.
January 2002.
47.
Government of Australia 1999.
28.
Context 2001,105.
48.
Economic values are, however, mentioned in passing in
29.
Information regarding transportation to Port Arthur and

other areas in the vicinity can be found at
http:/ /www.portarthurcruises.com.au/ (8 May 2003).
162
All prices are given in Australian dollars; current as of

January 2002.
other parts of the Conservation Plan: for example, in section

5.9, volume 1, on policies forfinancingof conservation:
"Recognising the economic value of the PAHS to the
economies of Tasmania and Australia, State and Common-
wealth Governments will be asked to commit to ongoing
69.
Sharon Sullivan, personal communication, February 2003.
recurrentfinancialcontributions." As noted elsewhere in
70.
Port Arthur Historic Site Management Authority n.d.(b), 24.
this case, the site's economic values are recognizedoften

implicitlyin documents other than the Conservation Plan.
71.
The collaborative process instilled during the management

planning process, and cultivated assiduously by the board
49.
Godden Mackay 2000a, Section 3.3.
50.
Jane Lennon and Associates 1998.
72.
Port Arthur Historic Site Management Authority n.d.(b), 24.
51.
This social-value methodology is an outgrowth of the Burra
73.
The Conservation Plan, for instance, does not contain a list
Charter methodology See Johnston 1992. The use of this
and executive since then.
of conservation projects to be undertaken over the life of the
methodology for the BAC study was advocated by the HAP.

52.
53.
plan. Instead, the conservation manager keeps a list of proj
Unitas Consulting Ltd. 1999. This work is an economic
ects phased over afive-yearspan but not ranked in order of
impact study based on input-output modeling.
priority. This list is revisited annually as the year's work pro

gram is devisedbut not followed strictlyin deciding how
For a full description of economists' frameworks for under
to spend each year s A$2 million of fundingfromthe state.
standing and measuring the value of cultural heritage, see

Frey 1997; Mason 1999; Throsby 2001.
54.
Young 1996.
55.
These tourism activities are classic examples of "valoriza
74.
agency but giving it a statutory focus on conservation.

PAHSMA was exempted in 1997fromproviding a financial
tion" of a heritage site, even in the absence of deliberate
return to the government, although it remains a GBE. It was
articulation and valuation of economic values.

56.
also recommended that PAHSMA be given delegation under
The suggestion here is not that decisions or policies reached
the Tasmanian Heritage Act so that referral of conservation
"informally" lack the qualities of formal decision-making
decisions to the THC is not necessary.
processes. It would be useless to judge whether formal or

informal processes are a priori "better." The point we wish
to make here is that informal decision-making processes are
75.
76.
should not escape our attention or emphasis just because

they are not formally specified or documented. As noted in
the final section of this report, the informal aspects of
77.
78.
by value-type. If this section were analyzing operations, not

strategies, value-type would be a more sensible way to
Tasmania National Parks and Wildlife Service 1985, 9-10.
59.
Ibid., 22.
60.
Ibid., 43.
61.
Port Arthur Historic Site Management Authority 1 9 9 6 , 6.
79.
80.
Being that the Tasmanian heritage community is small,

there is a membership overlap between the THC and
PAHSMA.
81.
The future tense is used in this section because few parts of
82.
The benefit of having different perspectives on cultural val

ues is discussed in the section "How Management Policies
63.
This sequence of progressively more detailed policiescon
and Strategies Take Values into Consideration," noting rea

sons to have alternatives to the type-driven articulation of
tained in the 2000 Conservation Plan and following into the

secondary plansis summarized in the diagram in figure
64.
Godden MacKay 2000a, section 6.3.10.
effects are projected, not actual.
Ibid., 8.
(see p.
Consider, for instance, the difference between the 1972 plan
the Interpretation Plan have been implemented to date. Any
62.
3.12
Peter Romey personal communication, January 2002.
assess the Carnarvon-period values and site elements.
organize the discussion.

58.
Sharon Sullivan to Marta de la Torre, e-mail correspondence,
to conserve the convict era versus the PACDP philosophy to
PAHSMAs management are critical to its success.

The operations of the site, by contrast, are organized more
Personal communication, January 2002.
13 January 2003.
important in the management of the values of any site and
57.
The Conservation Plan calls for exempting PAHSMA from

the GBE Act, leaving it an independent, quasigovernmental
157).
values in the Conservation Plan.

83.
These are excerpted and/ or paraphrased; for full text, see

Godden Mackay 2000a, section 4.8.
65.
Ibid., section 5.14.
66.
Port Arthur Historic Site Management Authority 2001b, 4-5.
67.
Ibid.
68.
The latest draft does not include recommendations, and the

policies have not yet been finalized. The Draft Landscape
Plan was prepared by Context Pty, part of the team that cre
This transfer of stewardship to PAHSMAfromthe state

parks and wildlife agency was under discussion at the time of
the Getty team's visit; it has since been agreed to.
84.
It should be noted that the research team did not talk exten
sively with people in the community, related and/ or unre
lated to the site, who could give a different perspective.
85.
Technically a government business enterprise in the case

of Australia. Elsewhere they are known by such titles as
public-benefit corporations and community development
corporations.
ated the Conservation Plan.
NOTES
163
1895
A p p e n d i x A : Time Line a f t e r t h e
Closing of t h e Penal Colony
Abushfire spread into C a r n a r v o n and b u r n e d

the old a s y l u m , then the t o w n hall; the
Prison; the hospital; the G o v e r n m e n t
Model
Cottage;
and several houses. T h e hospital and t o w n hall

1877
P o r t A r t h u r p e n a l s e t t l e m e n t closed. T h e site
almost immediately b e c a m e adestination
interested
1881
for
tourists.
1884
190J
visits to P o r t A r t h u r , the W h i t e h o u s e
at t h e site i n t h e f o r m e r C o m m i s s a r i a t S t o r e to
increased the
cater to visitors.
b e t w e e n H o b a r t a n d N o r f o l k Bay, a n d later to
Taranna,
A b u s h f i r e sets a b l a z e t h e c h u r c h , l e a v i n g little
1907
brothers
of their steamer
service
t w o to three trips per w e e k .
T h e Tasmanian Tourist Association
began
to organize overland a n d steamer trips to
picturesque
Port Arthur.
appearance.
T h e T a s m a n i a n g o v e r n m e n t m a d e plans to auc
from
1908
from
sale. O p p o s i
tragedy novel o f the s a m e n a m e , w a s filmed at

t h e site. T h e o v e r l a n d r o u t e to t h e site w a s
i m p r o v e d to m a k e it a c c e s s i b l e t o m o t o r
T h e
formed.
T h e Port Arthur Museum, which included
many
M o t o r b u s service to P o r t A r t h u r began.
1913
T h e T a s m a n i a n Tourist Association put forth the

first p r o p o s a l to the T a s m a n i a n g o v e r n m e n t
C a r n a r v o n w a s initiated. R o a d s t h r o u g h o u t
1914
After an inquiry concerning financial
deficiencies,
the T a s m a n i a n Tourist Association w a s
the
replaced
b y the state D e p a r t m e n t o f T o u r i s m .
peninsula were generally upgraded, and w o r k

b e g a n o n an e w r o a d b e t w e e n C a r n a r v o n a n d
for
m a n a g e m e n t o f t h e r u i n s at t h e site.
p h o t o g r a p h y studio o f J. W Beattie.
Four-horse carriage service between Taranna and
vehicles.
1912
p h o t o g r a p h s o f t h e site, o p e n e d i n H o b a r t at t h e
1915
W e d g e Bay.
T h e Scenery Preservation B o a r d (SPB) w a s cre

a t e d t h r o u g h p a s s a g e o f t h e Scenery
Preservation
Act b y t h e T a s m a n i a n P a r l i a m e n t . T h i s
T h e U n i o n Steamship line launched Easter
body
r e p r e s e n t e d the first A u s t r a l i a n a u t h o r i t y c r e a t e d
tours of Port Arthur and other Tasmanian penal
for the m a n a g e m e n t of parks a n d reserves,
settlements.
a l t h o u g h its p r i m a r y f o c u s w a s p r o t e c t i o n o f
B e a t t i e p u b l i s h e d t h e f i r s t e d i t i o n o f Port
Van Diemen's Land, a c o l l e c t i o n o f
T h e f i r s t f i l m v e r s i o n o f For the Term of His Nat

ural Life, b a s e d o n t h e M a r c u s C l a r k e c o n v i c t
residents of C a r n a r v o n a n d H o b a r t
Carnarvon town board was
164
from
frequency
b e c a m e o v e r g r o w n w i t h ivy, a d d e d to t h e site's
converted into factories or showplaces.
1893
I n response to increased d e m a n d for tourist
T h e W h i t e h o u s e b r o t h e r s o p e n e d the first h o t e l
provided that the buildings could remain if
1892
penitentiary
stone walls.
tion
1891
of the
steamer service between H o b a r t and Norfolk Bay
buildings previously reserved
1890
floor
settlement,
a n d b u r n i n g t h e r e b u i l t h o s p i t a l , l e a v i n g o n l y its
tion for d e m o l i t i o n a n d salvage all P o r t A r t h u r
18905
A n o t h e r bushfire blew into the

destroying the roof and
s a v e f o r its w a l l s . T h e r u i n e d r e m a i n s , w h i c h
1889
1898
T h e Whitehouse brothers began a biweekly

to transport tourists to C a r n a r v o n .
1883
w e r e rebuilt.
Arthur,
photographs.
natural
1916
the
environment.
T h e S P B p r o v i d e d for t h e first f o r m a l
protection
T h e volunteer Tasmanian Tourist Association
o f the ruins at P o r t A r t h u r t h r o u g h the
w a s f o r m e d to p r o m o t e a n d develop T a s m a n i a
o f five reserves t h e r e t h e sites o f the c h u r c h ,
as adestination o f t o u r i s m . Its w o r k w a s instru
the penitentiary, the M o d e l Prison, Point Puer,
mental in promoting tourism in Tasmania, and
and D e a d Island. These reserves were Australia's
creation
included the preparation and distribution of
first g a z e t t e d h i s t o r i c sites. T h e S P B g r a d u a l l y
leaflets a b o u t P o r t A r t h u r .
b e g a n to a c q u i r e l a n d at t h e site.
1925
A s t h e S P B ' s f i n a n c i a l r e s o u r c e s b e c a m e s c a r c e , it
1959
responded by accepting the T a s m a n Municipal
tralia to T a s m a n i a began, providing a significant
Council's offer to take over m a n a g e m e n t o f
b o o s t to the n u m b e r o f tourists visiting the
state.
After years of construction delays, amotel
was
r e s e r v e s at t h e site, s u b j e c t to c e r t a i n
the
conditions
set b y t h e b o a r d . T h e c o u n c i l m a n a g e d t h e site
1960
o p e n e d o v e r l o o k i n g t h e site to t h e r e a r o f
u n t i l 1937.
1926
T h e s e c o n d v e r s i o n o f For the Term of His Natural
1962
site
a t t r a c t i n g t o u r i s m to t h e site.
1971
T h e c o m m u n i t y at t h e site c h a n g e d its n a m e
1973
a tourist center.
T a s m a n i a n novelist R o y Bridges published in the
moved
from
Nubeena,
the t o w n hall /a s y l u m building to
community
from
t h e site.
1979-86 E x t e n s i v e c o n s e r v a t i o n w o r k w a s
conducted
convict suffering that h a d occurred there, rather
through the Port A r t h u r Conservation and Devel
than for aesthetic
opment Project (PACDP) and was carried out
qualities.
w i t h c o m m o n w e a l t h a n d state funding.
T h e P o r t A r t h u r R o o m w a s created at the Tas
for the conservation a n d development of historic
as d o c u m e n t s , photos, a n d o t h e r i t e m s related to
the site
from
resources throughout the T a s m a n Peninsula.
a s e c o n d collection a m a s s e d b y J. W
B e a t t i e , w h o h a d d i e d i n 1930. T h e c o l l e c t i o n
P A C D P also s e r v e d as a significant training
was
g r o u n d for Australian heritage professionals.
p u r c h a s e d p r i m a r i l y f o r its e c o n o m i c v a l u e i n
Port A r t h u r township and the construction
C o n t r o l o v e r t h e s i t e w a s t a k e n a w a y from t h e
local T a s m a n Municipal Council and turned over
to the P o r t A r t h u r a n d E a g l e h a w k N e c k B o a r d , a
In
a d d i t i o n , it w a s i n v o l v e d i n t h e r e l o c a t i o n o f
t e r m s o f attracting tourists.
the
of
r o a d s b y p a s s i n g t h e site.
1983
Based on comments
from
Australia I C O M O S ,
the
N P W S revised a n d e x p a n d e d the official
n e w sub-board of the SPB.
significance o f P o r t A r t h u r as ahistoric site to
1939-40 T h e g o v e r n m e n t a c q u i r e d t h e P o w d e r
the G o v e r n m e n t Cottage, the
P A C D P
w a s aregional development project that provided
m a n i a n M u s e u m i n H o b a r t to h o u s e relics as w e l l
Magazine,
i n c l u d e t h e t o w n s h i p p e r i o d ( r o u g h l y 1880 t o
Commandant's
H o u s e , a n d the cottage in w h i c h Irish political

p r i s o n e r W i l l i a m S m i t h O ' B r i e n w a s h e l d i n 1850.
1946
T h e T a s m a n M u n i c i p a l C o u n c i l offices
m a r k i n g the permanent removal of the local
M e l b o u r n e Argus a s h o r t e s s a y a r g u i n g t h a t t h e
1938
newly
agement of Port Arthur.
A r t h u r Tourist a n d Progress Association also w a s
1935
T h e S P B w a s dissolved and replaced by the
( N P W S ) , w h i c h a s s u m e d responsibility for m a n
to the g r o w i n g tourist industry there. T h e P o r t
Port A r t h u r ruins w e r e significant m a i n l y for the
conservation.
created National Parks and Wildlife Service
f r o m C a r n a r v o n to P o r t A r t h u r , in large part d u e
f o r m e d w i t h the p u r p o s e o f d e v e l o p i n g the site as
A n e w sub-board of the S P B , the T a s m a n

Peninsula B o a r d , a s s u m e d responsibility for
a box-office success, h a d asignificant i m p a c t in
1930
the
M o d e l P r i s o n a n d w i t h i n t h e v i e w s h e d o f t h e site.
Life w a s f i l m e d a t t h e s i t e . T h i s f i l m , w h i c h w a s
1927
T h e first c a r f e r r y s e r v i c e f r o m m a i n l a n d A u s
1930).
1986
I n response to uncertainty concerning the future

o f P o r t A r t h u r as P A C D P c a m e to aclose,
Following the recommendations of a document
mem
bers of the local c o m m u n i t y founded Friends of
k n o w n as the M c G o w a n P l a n , the T a s m a n i a n
P o r t A r t h u r H i s t o r i c Site. T h e o r g a n i z a t i o n
government purchased the t o w n of Port A r t h u r
f o r m e d to p r o m o t e t h e site a n d l o b b y t h e state a n d
to better p r e s e r v e t h e site a n d to h a v e c o n t r o l
c o m m o n w e a l t h governments w i t h the objective
o v e r its f u t u r e d e v e l o p m e n t . I n a s t a r k c h a n g e
ensuring s o u n d m a n a g e m e n t practices at P o r t
from
Arthur.
the past, the M c G o w a n P l a n called for valu
i n g t h e h i s t o r y a n d a r c h i t e c t u r e o f the site r a t h e r
t h a n f o c u s i n g s o l e l y o n its e c o n o m i c
value.
1987
was
of
T h e T a s m a n i a n P a r l i a m e n t p a s s e d t h e Port Arthur
Historic Site Management Authority Act, w h i c h c r e
a t e d a n d t r a n s f e r r e d a u t h o r i t y o v e r t h e site
APPENDIX A
165
to the P o r t A r t h u r Historic Site
Management
ing a n d sales p r o g r a m . " P A H S M A a n d the
A u t h o r i t y ( P A H S M A ) . T h e act also erected a toll
T a s m a n Municipal Council are the m a i n
b o o t h at the site to collect visitor e n t r a n c e fees
contributors to
for the first time.

1996
W o r k w a s completed o n the reconstruction
2001
I n April, alone g u n m a n killed twenty

inside the B r o a d A r r o w Cafe (and
people
fifteen
financial
P A R M .
the G o v e r n m e n t Cottage
of
gardens.
more in
the vicinity). M o s t o f the victims w e r e tourists,

although an u m b e r of the remaining victims
both
Notes
w o r k e d a n d lived at P o r t Arthur.
In June, the Australianprime minister
announced
t h e p r o v i s i o n o f A$2.5 m i l l i o n f o r t h e c o n s t r u c
tion o f an e w Visitor C e n t e r to replace the B r o a d
A r r o w Cafe.
In December, the B r o a d A r r o w Cafe w a s partially
d e m o l i s h e d as areaction to the
1997
tragedy.
T h e D o y l e Inquiry, astate audit, investigated
the
m a n a g e m e n t of Port A r t h u r since the establish

m e n t of P A H S M A a n d e x a m i n e d issues including
the board's handling of the development of plans
f o r t h e n e w V i s i t o r C e n t e r a n d p a r k i n g a r e a , its
relations w i t h P A H S M A e m p l o y e e s i n the after
m a t h o f t h e 1996 t r a g e d y , a n d t h e g e n e r a l h a n d
ling of conservation and maintenance of historic
r e s o u r c e s at t h e site. T h e i n q u i r y l e d to t h e r e c o n stitution o f the P A H S M A B o a r d as w e l l as a m e n d
m e n t s t o t h e PAHSMA
1998
Act.
T h e site's n e w V i s i t o r C e n t e r o p e n s after m u c h
controversy.
2000
T h e T a s m a n i a n premier opened the Convict

Trail, w h i c h c o n n e c t s the historic site at P o r t
A r t h u r w i t h the convict outstations at E a g l e h a w k
Neck, Cascades, Impression Bay, Saltwater River,
the C o a l Mines, a n d Norfolk Bay. T h e premier
simultaneously announced that P A H S M A
receive A $ i o million in funding for
over a
five-year
would
conservation
period.
Conservation Plan completed and adopted
by
P A H S M A .
A m e m o r i a l g a r d e n w a s c r e a t e d at the site o f
the
former Broad A r r o w Cafe.

Port Arthur Region Marketing Ltd. (PARM)
began operations w i t h the "overall objective
increase the e c o n o m i c input of t o u r i s m to
to
the
P o r t A r t h u r R e g i o n t h r o u g h a n effective m a r k e t
166
1.
This time line was derivedfromthe following sources:

Young 1996; Egloff 1986; Briggs 1996; Jane Lennon and Asso
ciates 1998; Michael 1997; as well as other PAHSMA docu
ments and personal communication with PAHSMA staff.
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Government of Australia. 1975. Australian Heritage Commission Act of
19J5 as Amended. The text of this legislation can be found at
http: / / scaletext.law.gov.au/html/pasteact/0/227/top.htm.
. 1999. Australian Convict Sites: Nomination by the Government of
Australia for Inscription on the World Heritage List (draft).
Government of Tasmania. 1987. Port Arthur Historic Site Management
Authority Act. The full text of this legislation can be obtained through
www.thelaw.tas.gov.au/scanact/acttitle/F/A ( 3 j u n e 2003).
. 1995a. Historic Cultural Heritage Act. The full text of this legis
lation can be obtained through www.thelaw.tas.gov.au/scanact/
acttitle / F / A (3 June 2003).
. 1995b. Government Business Enterprises Act. The full text of this
legislation can be obtained through www.thelaw.tas.gov.au/
scanact/ acttitle/F/ A (3 June 2003).
Jane Lennon and Associates. 1998. Broad Arrow Cafe Conservation Study.
Johnston, C. 1992. What Is Social Value? A Discussion Paper. Canberra:
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Tasmania. Hobart: Tasmanian Historical Research Association.
Ian
Stephen Large
Boersma
Conservation Project
Julia
Chief
Manager
P o r t A r t h u r Historic Site M a n a g e m e n t
Authority
Executive
P o r t A r t h u r Historic Site M a n a g e m e n t A u t h o r i t y
Richard
Clark
Interpretation
Mackay
Principal
Manager
Godden Mackay Pty
Brian
Peter Romey
Egloff
Associate
Conservation
Professor
School of Resource,
and Heritage
Environmental
Sciences
Margaret
University of Canberra
Scott
Director
B o a r d o f the P o r t A r t h u r Historic Site
Gregjackman
Archaeology
Manager
Manager
P o r t A r t h u r Historic Site M a n a g e m e n t
Authority
Maria
Stacey
Barry Jones
Visitor Services
Chairman

Sharon
Manager
Sullivan
Director
JeffKelly
Director
B o a r d of the P o r t A r t h u r Historic Site

M a n a g e m e n t Authority,
Chief
and
Executive
T a s m a n i a n D e p a r t m e n t of State D e v e l o p m e n t
David
Young
Chair
P o r t A r t h u r Historic Site A d v i s o r y
Committee
Wendy Kennedy
Director
PERSONS C O N T A C T E D D U R I N G T H E D E V E L O P M E N T O F T H E CASE
169
Hadrian's Wall World Heritage Site

Randall Mason, Margaret G. H. MacLean,
and Marta de la Torre
T h i s case study looks at the m a n a g e m e n t o f H a d r i a n s
T h e l o n g history o f H a d r i a n sW a l l as a heritage
W a l l W o r l d H e r i t a g e Site. H a d r i a n s W a l l is a r e m a r k a b l e ,
site p r o v i d e s a n excellent illustration o f h o w
extensive R o m a n r u i n that has b e e n v a l u e d as a n archaeo
emerge and evolve with changing use and n e w
values
knowledge
logical r e m a i n for m o r e than t w o centuries. T o d a y the
as w e l l as h o w they are influenced b y c h a n g i n g values i n
d e s i g n a t e d W o r l d H e r i t a g e Site i n c l u d e s t h e W a l l ; its asso
society M o r e specifically, this case explores h o w the values
ciated archaeological features, s u c h as forts, milecastles,
o f a n e x t e n s i v e site, w i t h a c o m p l e x set o f l a n d o w n e r s a n d
a n d v a l l u m ditches; a n d the "setting," a "visual envelope"
s t a k e h o l d e r s ( a n d w h e r e t h e r e is n o u n i f i e d o w n e r s h i p o f
a n d b u f f e r z o n e e x t e n d i n g f r o m i t o 6 k i l o m e t e r s (.6 t o 3.7
the l a n d or historical features o f the W o r l d H e r i t a g e Site),
miles)
are conserved a n d m a n a g e d in collaborative arrange
from
t h e W a l l itself. A n u m b e r o f a g e n c i e s , g o v e r n
m e n t bodies, and private landowners are involved in the
ments. O f interest are issues arising f r o m the large-scale
m a n a g e m e n t o f the site u n d e r the c o o r d i n a t i o n o f E n g
partnership m o d e l o f m a n a g e m e n t as w e l l as issues
lish Heritage. T h i s study focuses o n the values-based m a n
related to the conservation a n d d e v e l o p m e n t o f specific
a g e m e n t o f t h e s e r e s o u r c e s s i n c e t h e site's W o r l d H e r
sites w i t h i n the r e g i o n a l m a n a g e m e n t
i t a g e l i s t i n g i n 1987.
framework.
A n a n a l y s i s is p r e s e n t e d i n t h e n e x t t w o
T h r o u g h o u t this case study, references to "the site"
sections.
T h e first o f t h e s e , " M a n a g e m e n t C o n t e x t a n d H i s t o r y o f
i n d i c a t e t h e e n t i r e W o r l d H e r i t a g e S i t e t h e W a l l , its asso
H a d r i a n sW a l l W o r l d H e r i t a g e Site," provides general
c i a t e d r e m a i n s , a n d its i m m e d i a t e s u r r o u n d i n g s . A c c o r d i n g
b a c k g r o u n d i n f o r m a t i o n o n t h e site a n d its m a n a g e m e n t ,
to p l a n n i n g d o c u m e n t s , the site a n d the setting are u n d e r
gives a g e o g r a p h i c d e s c r i p t i o n o f t h e site, a n d s u m m a r i z e s
stood as distinct g e o g r a p h i c entities in this report.
t h e h i s t o r y o f H a d r i a n ' s W a l l . A l s o d i s c u s s e d is t h e m a n
H o w e v e r , m o s t o f the general references to the
a g e m e n t e n v i r o n m e n t o f t h e site, i n c l u d i n g t h e n u m e r o u s
site refer also to the setting. I f s o m e u n c e r t a i n t y r e m a i n s
partners involved at national a n d local levels as w e l l as rel
in these definitions, their use in this case study closely mir
evant legislation a n d policy.
r o r s t h a t i n t h e 2002 H a d r i a n s W o r l d H e r i t a g e S i t e M a n
T h e last section, " U n d e r s t a n d i n g a n d Protecting
a g e m e n t P l a n . I n t h e p l a n , t h e s e t t i n g is c o n s i d e r e d p a r t o f
the V a l u e s o f the Site," looks at the connections
t h e site a n d is d e s c r i b e d a s d i s t i n c t f r o m it. W h e n r e f e r r i n g
values a n d m a n a g e m e n t in three w a y s . First, the values
between
to s o m e o v e r a r c h i n g aspect o f the s i t e f o r e x a m p l e , "vis
ascribed to the site are s u m m a r i z e d , as t h e y h a v e b e e n
itors to...," "perception of...," or "government policies
reflected in successive planning a n d m a n a g e m e n t
docu
t o w a r d . . . " t h e s e t t i n g is i m p l i c i t l y i n c l u d e d . I n o t h e r
ments. Second, the role of values in determining the m a n
i n s t a n c e s , t h e s e t t i n g is r e f e r r e d t o s p e c i f i c a l l y as a t e r r a i n
a g e m e n t policy o f the current W o r l d Heritage Site r e g i m e
separate
is e x a m i n e d . Finally, m a n a g e m e n t p o l i c i e s a n d d e c i s i o n s
from
a n d e n v e l o p i n g the W a l l . T h e l a c k o f a rig
orous and clear distinction in the plan seems intentional

i n t h a t it c o n v e y s t h e l o o s e , flexible n a t u r e o f t h e p a r t n e r
are a n a l y z e d as to t h e i r i m p a c t o n t h e site's v a l u e s .
This case study of Hadrian'sWall W o r l d Heritage
s h i p - d r i v e n m a n a g e m e n t s t r u c t u r e o f t h e site. I n t h e e n d ,
Site is t h e r e s u l t o f r e s e a r c h , i n t e r v i e w s , site visits, e x t e n
the values according to w h i c h the H a d r i a n sW a l l land
sive consultation, a n d
s c a p e is m a n a g e d a r e u n d e r s t o o d as p e r t a i n i n g to t h e
lish Heritage a n d the H a d r i a n sW a l l T o u r i s m Partnership
w h o l e entity, site a n d setting. It is p o s s i b l e t h a t i f t h e p l a n
have b e e n particularlyhelpful in the research, production,
frank
discussion. Colleagues at E n g
defined the setting as part o f the core m a n a g e d territory
a n d refinement o f this study. T h e y have b e e n f o r t h c o m i n g
o f t h e s i t e i n s t e a d o f d e f i n i n g it as a " v i s u a l e n v e l o p e "
and generous, and have participated energetically in the
it w o u l d e n g e n d e r p o l i t i c a l o p p o s i t i o n . S u c h w a s o n e
extensive tours and discussions that took place during the
of
the lessons learned during the boundary-setting debate
Steering C o m m i t t e e ' s visit to the Hadrian's W a l l region
r a i s e d b y t h e 1996 p l a n .
i n A p r i l 2002.
172
H A D R I A N ' S W A L L W O R L D H E R I T A G E SITE
In p r e p a r i n g this case study, the authors
consulted
the extensive documentation produced by English Her

itage, the H a d r i a n sW a l l T o u r i s m Partnership, a n d vari
ous local governments and regional organizations
with
stewardship responsibilities for s o m e aspect of the W o r l d

H e r i t a g e Site. Site visits a n d tours o f the r e g i o n
were
indispensable in u n d e r s t a n d i n g the scope o f effort a n d

depth of understanding that go into m a n a g i n g
the
Hadrian sW a l l landscape.
Digital reproductions of the following
mentary documents are contained within the
supple
accompany
i n g C D - R O M : P l a n n i n g P o l i c y G u i d a n c e 16: A r c h a e o l o g y
a n d P l a n n i n g (1990); P l a n n i n g P o l i c y G u i d a n c e 15:
Planning
a n d t h e H i s t o r i c E n v i r o n m e n t (1994); H a d r i a n s W a l l
W o r l d H e r i t a g e S i t e M a n a g e m e n t P l a n 1996; a n d H a d r i a n s
W a l l W o r l d H e r i t a g e S i t e M a n a g e m e n t P l a n 2002-2007.
ABOUT THIS CASE STUDY 173
Management Context and History of

Hadrian s Wall World Heritage Site
Physical a n d Geographic Description

H a d r i a n sW a l l W o r l d H e r i t a g e Site i sl o c a t e d i n n o r t h e r n
E n g l a n d . T h e s i t e e x t e n d s a p p r o x i m a t e l y 118 k i l o m e t e r s
(73 m i l e s ) e a s t t o w e s t , f o l l o w i n g t h e l i n e o f H a d r i a n s W a l l
across the Tyne-Solway isthmus and spreading d o w n
C u m b r i a n coast t oinclude R o m a n coastal defenses.
the
T h e
specific g e o g r a p h i c b o u n d a r i e s o fthe site are b a s e d o n

2
the extent o fthe W a l l a n d associated sites a n d r u i n s that

a r e p r o t e c t e d a ss c h e d u l e d m o n u m e n t s u n d e r t h e
Monuments
Ancient
and Archaeological Areas Act o f 1979. T h e s e t

3
t i n g c o n s i s t s o ft h e v i e w s h e d a r o u n d t h e site itself.
T h e R o m a n s , i n s e a r c h o f al o c a t i o n o nw h i c h t o
b u i l d adefensive m i l i t a r y n e t w o r k against hostile i n h a b i
tants t othe north, chose the narrowest east-west path in
this r e g i o n o fBritain a n d u s e d m a n y o fthe area's topo
graphic features t otheir advantage. Today, the archaeo
l o g i c a l r e m a i n s o f t h e W a l l a n d its a s s o c i a t e d s t r u c t u r e s
t a k e m a n y f o r m s , a n d ag r e a t d e a l o f a r c h a e o l o g i c a l
r e s e a r c h h a s b e e n c o n d u c t e d o nt h e m . F e a t u r e s o f t h e
W a l l have b e e n adapted, altered, reused, dismantled, a n d
c o n s e r v e d o na n o n g o i n g b a s i s s i n c e its c o n s t r u c t i o n
b e g a n i n 122 C . E .
In m a n y places, the W a l l stands aboveground in
its o r i g i n a l p o s i t i o n , t h o u g h n o t i n its o r i g i n a l d i m e n s i o n s
( n o w h e r e d o e s t h e W a l l s u r v i v e at its full h e i g h t ) . O n t h e
western and eastern ends there are few
aboveground
remains. Wall features are best preserved a n d m o s t read

able i n t h e c e n t r a l s e c t i o n o ft h e site, w h e r e a significant
portion, called the Clayton Wall, has been conserved and
Figure 4.2. Map of the Wall and its setting.
174
Figure 4.1. Map of the United Kingdom, indicating the location of
Hadrian s Wall. The Wall was built by the Roman army in 122 C . E .
across the narrowest part of its island territory.
Figure 4.3. A long view of the Wall. This portion of the Wall is typical
of the central section of the World Heritage Site. Photo: Margaret
G. H. MacLean
Figure 4.$. The exposed foundations of a fort at South Shields. Photo:

Margaret G. H. MacLean
rebuilt. M a n y landscape f e a t u r e s v a l l u m ditches a n d
This sprawling u r b a n area (now called Tyneside) domi
o t h e r e a r t h w o r k s s u r v i v e . D o z e n s o f milecastles, forts,
n a t e s t h e e a s t e r n r e g i o n o f t h e site. W i t h i n T y n e s i d e , t h e
a n d fortlets a r e still e v i d e n t i ne x c a v a t e d a n d c o n s e r v e d
W a l l exists m o s t l y a sb e l o w g r o u n d o r e x c a v a t e d / c o n
remains, a n d m a n y o f these are interpreted for the public.
served ruin.
S i n c e t h e 1880s m o s t o f t h e W a l l ' s v i s i b l e r e m a i n s h a v e
T h e continuous course o faboveground
Wall
b e e n c o n s e r v e d a n d c o n s o l i d a t e d i ns o m e m e a s u r e . T h e
runs w e s t w a r d , beginning a tH e d d o n a n d
W a l l has b e e n totally destroyed i nonly afew places, w h e r e
toward Birdoswald, and forms the second, central region
h i g h w a y s , p i p e l i n e s , o rq u a r r i e s c r o s s o rc o v e r its l i n e .
o f t h e site.
T o p o g r a p h i c a l l y , t h e site c a n b e d i v i d e d r o u g h l y
into three regions. T h e first isthe e a s t e r n l o w l a n d r e g i o n
extending
T h e t h i r d r e g i o n lies t o the w e s t a n d consists o f

lowlands b e t w e e n B r a m p t o n a n d the S o l w a y Firth, a tidal
k n o w n a sthe T y n e a n d W e a r L o w l a n d s , w h i c h lie
estuary characterizedb ymarshes and mudflats. Today,
between South Shields and Chollerford. F r o m Wallsend,
this area isd o m i n a t e d b ylivestock pastures a n d agricul
the Wall runs w e s t w a r d
from
the N o r t h Sea coast across
low-profile terrain a n d t h r o u g h the lower T y n e River val
tural cultivation. Farther inland isthe Carlisle Basin, a

broad valley drained b ythe rivers Irthing, Eden, Esk, a n d
ley. A f t e r t h e i n d u s t r i a l r e v o l u t i o n , t h e u r b a n c e n t e r o f
Newcastle u p o n T y n e emerged asthe c o m m e r c i a l capital
o f E n g l a n d ' s n o r t h e a s t , ap o s i t i o n t h e city still m a i n t a i n s .
Figure 4.4. One of numerous sections of the Wall that cuts through
working farms. Photo: David Myers
Figure 4.6. The remains of a well-preserved regimental bathhouse

associated with the Roman fort at Chesters, situated astride the Wall
on the North Tyne River. Photo: Margaret G. H. MacLean
MANAGEMENT CONTEXT AND
HISTORY
175
A maritime influence creates atemperate
climate
y e a r - r o u n d i n G r e a t B r i t a i n , i nspite o f its r e l a t i v e l y h i g h
latitude. T h e r e g i o n o f the site is c h a r a c t e r i z e d b y r e g u l a r
6
high humidity, cloudiness, and ahigh percentage o f days

with precipitation.
History of Hadrian's W a l l
T h e history o f the Wall's creation b yR o m a n legions,

of the R o m a n period o f British history, has b e e n
sively d o c u m e n t e d .
This section focuses o nthe
and
exten
post-
R o m a n period and emphasizes the history o fthe Wall asa

heritage site a n d t h e g r a d u a l a c k n o w l e d g m e n t o f the
Figure 4.7. Detail of a conserved section of the Wall near Birdoswald.
The stone contains an original Roman inscription. Photo: David Myers
l a n d s c a p e i nw h i c h t h e W a l l i s s i t u a t e d a sp a r t o f t h e site.
In the centuries following the R o m a n s '
m e n t o fthe Military Z o n e , the stones o fthe
s t r u c t u r e s o f t h e W a l l a n d its a s s o c i a t e d
C a l d e w , all o f w h i c h flow into the S o l w a y Firth. R u r a l

l a n d i nthe b a s i n isu s e d m a i n l y for livestock g r a z i n g . Situ
ated a tthe h e a d o f the S o l w a y Firth isthe historic city o f
Carlisle, the region su r b a n hub. B e t w e e n the basin a n d
w e r e r e m o v e d a n d r e u s e d i nt h e c o n s t r u c t i o n o f castles,
churches, dwellings, field walls, a n d other structures.
T h u s the W a l l provided great utilitarian value asa source
Nor
m a n period also s h o w that the W a l l w a s a n important
z o n e o f rolling hills divided b y valleys.

Although the Wall ends at Bowness-on-Solway
defen
sive n e t w o r k , i nthe f o r m o f freestanding fortlets a n d

ers, are f o u n d t o the s o u t h w e s t a l o n g the C u m b r i a n
tow
coast
as far a sM a r y p o r t a tthe p e r i p h e r y o f the L a k e District.

H e r e the landscape b e c o m e s m o r e rolling, w i t h the
masonry
fortifications
of building material. L a n d records dating back tothe
the central region o fexposed uplands isa transitional
along the Solway Firth, remnants o fthe R o m a n s '
abandon
coast
m a r k e d b y s e a cliffs. O c c a s i o n a l f o r t sites c o n t i n u e a s f a r
s o u t h a s R a v e n g l a s s , t h es o u t h e r n m o s t p o i n t o f t h e W o r l d
H e r i t a g e Site.
b o u n d a r y b e t w e e n p r o p e r t y holdings, a g r i c u l t u r a l fields,
a n d parishes. I n addition, itinspired place-names
through
out the region, giving rise t o W a l t o n , W a l w i c k , Thirlwall,

and Walby.
Although the Wall has been described i n written
and cartographic w o r k s dating back t o the eighth
century,
t h e f i r s t r e l a t i v e l y l a r g e - s c a l e a c c o u n t a p p e a r e d i n 1599,
w h e n the antiquarian W i l l i a m C a m d e n published a survey
a n d e x p l a n a t i o n o f t h e W a l l a n d its s t r u c t u r e s i nt h e fifth
edition o fhis
Britannia.
T h r o u g h o u t the eighteenth and nineteenth
cen
turies, the W a l l continued t o b e u s e d a sasource o f build

i n g m a t e r i a l . T h e 1750s s a w t h e c o n s t r u c t i o n o f t h e M i l i
t a r y R o a d , w h i c h i s a p p r o x i m a t e l y 48 k i l o m e t e r s (30 m i l e s )
long, between Newcastle and Carlisle.
1 0
T h e road was
b u i l t o n t h e t o po f t h e W a l l t o m i n i m i z e d a m a g e t ot h e
fields o f local l a n d o w n e r s a n d t o save costs b yu s i n g the
Wall's remnants asaroad foundation and asa source
for stone.
1 1
T h e steady erosion o fthe Wall led to concerted

efforts t o study ita sw e l l a sag r o w i n g interest i n conserv
i n g it. I n t h e e i g h t e e n t h c e n t u r y , s e v e r a l a n t i q u a r i a n s t u d
i e s w e r e m a d e , i n c l u d i n g W i l l i a m H u t t o n ' s The First
Man
to Walk Hadrian's Wall i n 1801. T e n y e a r s l a t e r , H u t t o n

Figure 4.8. The Romans took advantage of the landscape's natural
barriers, situating the Wall atop the high ridges of Whin Sill, east of
Housesteads. Photo: Marta de la Torre.
176
saved asection o f the W a l l a tPlanetrees
from
b e i n g pil
l a g e d t o m a k e field walls, a nevent c o n s i d e r e d the first suc

cessful effort o f conservation.
1 2
J o h n C l a y t o n w a s a ni m p o r t a n t
figure
p r o m i n e n c e i nW a l l s t u d i e s a n d r e p l a c e d t h e a m a t e u r anti
i n the
u n d e r s t a n d i n g a n d c o n s e r v a t i o n o f t h e W a l l . I n 1832, h e
quarians. W i t h the passage o fnational legislation provid
inherited land containing Chesters R o m a n Fort. T h e nine
i n g f o r t h e p r o t e c t i o n o f a r c h a e o l o g y , a first p o r t i o n o f t h e
t e e n t h c e n t u r y w a s ap e r i o d " w h e n [Wall] sites w e r e
W a l l w a s s c h e d u l e d a s a n a n c i e n t m o n u m e n t i n 1927.
o w n e d b yprivileged individuals... w h o could use
them
I n 1932, c o n t i n u e d q u a r r y i n g t h r e a t e n e d
the
for their o w n r e s e a r c h a n d the pleasure o f themselves
archaeological fabric o f the Wall, motivating the national
a n d o f their friends."
government tointroduce new, more powerful national
1 3
F o r ne ar ly six decades,
Clayton
funded the excavation, protection, and reconstruction o f
ancient m o n u m e n t s legislation. T h i s led t o the
remains o f the Wall. I n the process, h e a m a s s e d a collec
of the Hadrian's Wall and V a l l u m Preservation Scheme, a
tion o f R o m a n objects
first
from
various locations along
the
adoption
step toward comprehensive public protection o f the
W a l l . C l a y t o n a c q u i r e d a n d w o r k e d o n five R o m a n s i t e s i n
central part o fthe Wall and s o m e buffer areas surround
the area o f C h e s t e r s a n d led excavations a tthe fort sites o f
i n g it.
H o u s e s t e a d s ( 1 8 4 9 - p r e s e n t ) , C a r r a w b u r g h (1873-76), a n d
c o r e o f its H a d r i a n ' s W a l l h o l d i n g s a t H o u s e s t e a d s i n t h e
C a r v o r a n (1886).
1 8
T h e National Trust also received asadonation
the
central region, aW a l l site that h a s p r o v e n t o b e t h e m o s t
T h e nineteenth century w a s also m a r k e d b y the

establishment o f "learned societies" for the study o f antiq
uities. T h i s d e v e l o p m e n t c a m e a tat i m e w h e n there w a s a
p o p u l a r a m o n g t o u r i s t s . I n 1935, t h e N a t i o n a l T r u s t
o p e n e d the Housesteads M u s e u m to the public.
1 9
M a s s t o u r i s m b e g a n i nthe years following W o r l d
strong interest i nall things R o m a n a n d the v i e w that the
W a r II,w h e n the g r o w t h i na u t o m o b i l e o w n e r s h i p
R o m a n E m p i r e w a s am o d e l for England's o w n vast impe
i n c r e a s e s i nleisure t i m e b r o u g h t m o r e a n d m o r e
rial holdings. T h e s e societies increased interest in, a n d
t o t h e W a l l . V i s i t a t i o n p e a k e d i n 1973, t h e n q u i c k l y
access t o ,the W a l l , i n t r o d u c i n g itt o b r o a d e r
d r o p p e d a s a r e s u l t o f a s p i k e i n f u e l p r i c e s ( s e e fig. 4.9).
audiences,
and
visitors
a l t h o u g h m e m b e r s h i p w a s l i m i t e d t o t h es o c i a l a n d e c o
F r o m t h e s t a r t , t h ee x p e r i e n c e s a v a i l a b l e t o t o u r i s t s h a v e
n o m i c elite. T h e proliferation o f t h e s e g r o u p s
b e e n quite varied a n d r e m a i n s o today, ranging
coincided
from
well-
with the emergence o f the R o m a n t i c m o v e m e n t , w h i c h
staffed a n d t h o r o u g h l y m a n a g e d sites w i t h interpretive
fostered a nappreciation for the aesthetic qualities o f the
s c h e m e s , gift shops, a n d amenities, t o large
stretches
ruins a n d the n a t u r a l o rnaturalistic landscapes i n w h i c h
accessible informally b ysimply w a l k i n g through
they w e r e situated.
countryside.
1 4
I n 1849, t h e first p i l g r i m a g e
traveling
the full length o f H a d r i a n sW a l l w a s led b y J o h n Collingw o o d B r u c e . T w o years later, B r u c e p u b l i s h e d the
first
the
I n 1970, t h e V i n d o l a n d a T r u s t , a n i n d e p e n d e n t
archaeological charitable organization, was founded at
e d i t i o n o f The Roman Wall, w h i c h s u m m a r i z e d t h e r e s u l t s
the fort site o f V i n d o l a n d a ( f o r m e r l y C h e s t e r h o l m ) . Its
of Clayton's excavations atChesters R o m a n Fort and pub
m i s s i o n w a s t h ee x c a v a t i o n , p r e s e r v a t i o n , a n d p r e s e n t a
licized J o h n Hodgson's theory o f the Wall's construction
t i o n o f t h e R o m a n r e m a i n s . L a t e r , i n t h e mid-1980s,
under the emperor Hadrian.
a n o t h e r fort site w e n t into p u b l i c o w n e r s h i p w h e n t h e
1 5
I n 1863, B r u c e a l s o p u b
l i s h e d h i s Handbook of the Roman Wall, a n i m p o r t a n t
C u m b r i a C o u n t y C o u n c i l acquired the B i r d o s w a l d estate.
historical guide t o this day.
Likewise, Rudchester was acquired b y Northumberland
1 6
T h e latter part o f the century s a w the
first
public
acquisition o fpart o fthe Wall and the creation o fthe
first
m u s e u m t o d i s p l a y i t s R o m a n r e l i c s . I n 1875, t h e S o u t h
Shields U r b a n District C o u n c i l established the
R e m a i n s P a r k atS o u t h Shields, m a r k i n g the
R o m a n
first
public
County, North Tyneside acquired Wallsend, and South

T y n e s i d e e x p a n d e d its h o l d i n g s a t S o u t h S h i e l d s . E n g l i s h
H e r i t a g e ( E H ) , c r e a t e d b y P a r l i a m e n t i n 1984, h a s s e r v e d
as a nactive force i nthe conservation, m a n a g e m e n t ,
and
presentation o fthe Wall. T h e agency opened the C o r -
acquisition and display o fpart o fthe Wall b ya public
b r i d g e M u s e u m i n 1984 a n d l a u n c h e d i t s W a l l R e c o r d i n g
authority
Project the following year. T h e project provides
1 7
L a t e r , i n 1896, t h e m u s e u m a t C h e s t e r s R o m a n
Fort was constructed tohouse John Clayton's

of R o m a n
collection
objects.
t h r o u g h further public a n d trust o w n e r s h i p i nthe
d o c u m e n t a t i o n o f t h e visible r e m a i n s o f t h e W a l l a n d its
associated features.
G o v e r n m e n t efforts t o protect the W a l l increased

twenti
detailed
2 0
E H continues t o care for m a n y parts
of the Wall.
A s a c u l m i n a t i o n o f its l o n g h i s t o r y o f h e r i t a g e
eth century. T h e s e decades also witnessed a n extraordi
and stewardship, Hadrian's Wall w a s inscribed b y the
n a r y g r o w t h o f tourist visitation. A n e w generation o f
U n i t e d Nations Educational, Scientific a n d Cultural
academically trained, professional archaeologists rose to
O r g a n i z a t i o n ( U N E S C O ) a s a W o r l d H e r i t a g e S i t e i n 1987.
177
T h e i n s c r i p t i o n c i t e s c r i t e r i a C (ii), (iii), a n d (iv) ( s e e b o x a t

right). Since this designation, an u m b e r o f m e a s u r e s have
b e e n i m p l e m e n t e d to c o o r d i n a t e m a n a g e m e n t o f t h e site.
T h e H a d r i a n sWall T o u r i s m Partnership ( H W T P )
was
World Heritage List Criteria

Cultural
for
Properties
74
A monument, group of buildings or siteas defined
c r e a t e d i n 1993 t o c o o r d i n a t e t h e d e v e l o p m e n t o f s u s t a i n
abovewhich is nominated for inclusion in the World
able t o u r i s m for the H a d r i a n sW a l l W o r l d Heritage Site
Heritage List, will be considered to be of outstanding
area. Early w o r k focused o n coordinating m a r k e t i n g a n d
universal value for the purpose of the Convention when
visitor information. Shortly thereafter, the secretary o f
the Committee finds that it meets one or more of the fol
state a p p r o v e d aproposal for the H a d r i a n sW a l l Path,
lowing criteria and the test of authenticity. These criteria
a n e w National Trail enabling visitors to w a l k the
are defined by the Committee in its Operational Guide
length
o f t h e W a l l . T h e p a t h o p e n e d i n 2003. I n 1996, a H a d r i a n s
lines. Each property nominated should:
W a l l W o r l d Heritage Site m a n a g e m e n t plan for the period
i. represent a masterpiece of human creative genius; or
1996-2001 w a s p u b l i s h e d a f t e r e x t e n s i v e c o n s u l t a t i o n . T h e
first p l a n to c o o r d i n a t e m a n a g e m e n t o f t h e entire site, it
established the W o r l d Heritage Site M a n a g e m e n t P l a n
C o m m i t t e e ( W H S M P C , o r M P C ) "to act as the p r i m a r y
f o r u m for issues concerning the m a n a g e m e n t of the
W o r l d Heritage Site."
2 1
E H established the H a d r i a ns Wall
Co-ordination Unit, b a s e d in H e x h a m , to oversee imple

m e n t a t i o n o f t h e p l a n . T h e p l a n w a s u p d a t e d i n 2002.
ii. exhibit an important interchange of human values,

over a span of time or within a cultural area of the world,
on developments in architecture or technology, monu
mental arts, town-planning or landscape design; or
iii. bear a unique or at least exceptional testimony to a
cultural tradition or to a civilization which is living or
which has disappeared; or
iv be an outstanding example of a type of building or
In recent decades, local entities have imple

m e n t e d avariety o f strategies to attract m o r e visitors to
architectural or technological ensemble or landscape
t h e site. T h e s e efforts h a v e b e e n m o t i v a t e d i n p a r t b y t h e
which illustrates (a) significant stage(s) in human history;
w e a k e n i n g o f other industries i n the region, s u c h as ship

building, coal mining, iron making, and steelmaking. In
v. be an outstanding example of a traditional human set
1986, t h e T y n e a n d W e a r M u s e u m s c o m p l e t e d r e c o n s t r u c
tlement or land-use which is representative of a culture
tion o f the W e s t G a t e at A r b e i a R o m a n Fort at S o u t h
(or cultures), especially when it has become vulnerable
Shields, w h i c h E w i n n o t e s w a s "the first r e c o n s t r u c t i o n
under the impact of irreversible change; or
of astanding remain associated with Hadrian's Wall and

was consequently controversial."
2 2
W o r k is n o w
under
w a y to reconstruct the C o m m a n d i n g Officer s quarters

a n d asoldiers' barracksblock. A t the eastern e n d o f
the
vi. be directly or tangibly associated with events or living

traditions, with ideas, or with beliefs, with artistic and liter
ary works of outstanding universal significance (the Com
mittee considers that this criterion should justify inclusion
Wall in Maryport, the Senhouse M u s e u m Trust opened
in the List only in exceptional circumstances and in con
t h e S e n h o u s e R o m a n M u s e u m i n 1990, w h i c h h o u s e s t h e
junction with other criteria cultural or natural).
N e t h e r h a l l c o l l e c t i o n o f R o m a n a r t i f a c t s . I n 2000, t h e
S e g e d u n u m R o m a n Fort, Bath H o u s e and M u s e u m in
W a l l s e n d o p e n e d to the public. T h e development, w h i c h
disease. Access to sections o f the W a l l o n f a r m l a n d w a s
r e u s e s p a r t o f a s h i p y a r d o n t h e T y n e R i v e r , is o p e r a t e d
impeded, and the most popular m a n a g e d
by the T y n e and W e a r M u s e u m s and includes a w o r k i n g
s t e a d s w a s closed to the public all b u t ten days d u r i n g
r e c o n s t r u c t i o n o f aR o m a n b a t h h o u s e as w e l l as a v i e w i n g
that year. U r b a n sites suffered indirectly v i a g e n e r a l d o w n
t o w e r a p p r o x i m a t e l y 34 m e t e r s (112 f e e t ) i n h e i g h t .
turns in the n u m b e r s of overseas and
F a c e d w i t h rising n u m b e r s o f visitors to the Wall,

t h e 1996 M a n a g e m e n t P l a n e x p r e s s e d c o n c e r n s
about
siteHouse-
education/group
visits to the region.

F M D severely d a m a g e d the region's agricultural
the negative impact o n historic resources by increased
e c o n o m y , necessitating the slaughter o f all infected or
t o u r i s m (especially b y w a l k e r s a n d other i n f o r m a l visi
potentially infected livestock, a n d h a d asecondary nega
t o r s ) . T h a t u p w a r d t r e n d w a s r e v e r s e d , h o w e v e r , i n 2001
tive i m p a c t b y r e d u c i n g t o u r i s m to the site to afraction o f
2 3
with the outbreak of foot a n d m o u t h disease ( F M D ) .
its p r e - e x i s t i n g levels. L a t e s t f i g u r e s i n d i c a t e t h a t t o u r i s m
T h e epidemic caused the closure of the countryside in
p r o m o t i o n a n d other efforts to recover
m a n y rural areas o f the region to avoid the spread o f
b e e n effective vis-a-vis t o u r i s m traffic. T o t a l visitation to
178
the
from
F M D have
DESIGNATED CLASSIFICATIONS
A p r i m a r y m e a n s o f h e r i t a g e p r o t e c t i o n i n E n g l a n d is
statutory designation. T h e categories of heritage places
covered b y separate legislation are: scheduled ancient
m o n u m e n t s , listed buildings, a n d conservation areas.
W o r l d H e r i t a g e Sites, registered p a r k s a n d gardens, a n d
battlefields are protected t h r o u g h the integrated p l a n n i n g
processes a d m i n i s t e r e d at the local to district levels.
Figure4.9. "The graph shows some longer term trends. Whilst the
numbers of visitors to the forts and museums shown have declined
since the 1970s, the numbers of people out walking around the Wall
area, particularly in the central sector have increased
Approximately
23% of visitors in the central sector of Hadrian s Wall are from over
seas. Approximately 69% of visitors in this area are on holiday"
Source: "Tourism Facts & Figures," http:/ /www.hadrians-wall.org/
Scheduled
Ancient
Monuments
A s p r e s c r i b e d b y t h e Ancient Monuments
and Archaeological
Areas Act, a s c h e d u l e d a n c i e n t m o n u m e n t i s o n e
m e e t s specific criteria o f age, rarity,
group value, survival,
2 6
fragility
that
documentation,
o r vulnerability, diversity,
a n d potential. T h e secretary o f state approves those

m o n u m e n t s m e e t i n g these criteria as w e l l as the criterion
s t a f f e d s i t e s i n t h e r e g i o n r e a c h e d 562,571 i n 2 0 0 2 a 23.7
p e r c e n t i n c r e a s e o n 2001 f i g u r e s a n d a 5.1 p e r c e n t i n c r e a s e
o n 2000
of national importance, in consultation with E H .

O f the three types of designated heritage, sched
uled ancient m o n u m e n t s are the m o s t rigorously pro
figures.
25
tected b y legislation. B y law, the treatment o f
a n c i e n t m o n u m e n t s is h a n d l e d at t h e n a t i o n a l l e v e l a n d is
The M a n a g e m e n t C o n t e x t
Heritage preservation in the United K i n g d o m began
w i t h m o d e s t efforts to protect individual archaeological
sites o f interest. T h e p r e s e r v a t i o n m o v e m e n t
became
m o r e f o r m a l i z e d i n 1882 w i t h t h e p a s s a g e o f t h e
Monuments
Ancient
Protection Act. O v e r t i m e , h i s t o r i c b u i l d i n g s ,
landscapes, parks, battlefields, a n d other places attracted

the interest a n d c o n c e r n of preservationists a n d
g o v e r n m e n t , a n d efforts proliferated to record, restore,
a n d preserve s u c h places for posterity. T h e m a i n
legislation c o n c e r n i n g archaeological resources at this
t i m e i s t h e Ancient Monuments
and Archaeological Areas Act
o f 1979. O t h e r p r o t e c t i o n s n o w i n p l a c e a r e n u m e r o u s ,
flexible, a n d a l m o s t entirely integrated into the p l a n n i n g
processes f r o m the national level d o w n to the
county
council level, a n d are s u p p o r t e d b y the various govern

mental a n d nongovernmental organizations that
administer heritage places.
H a d r i a n sW a l l is ac o n s t e l l a t i o n o f
scheduled
scheduled
m o n u m e n t s a n d listed buildings w i t h u n i q u e status at the

n a t i o n a l level; it is a l s o i n s c r i b e d as aW o r l d H e r i t a g e Site,
m o r e a s a c o n c e p t u a l e n t i t y t h a n a s ap a r t i c u l a r p l a c e . I t
is s u b j e c t t o ab r o a d r a n g e o f p r o t e c t i o n s a f f o r d e d b y g o v
e r n m e n t authorities t h r o u g h statutes, regulations, a n d
policy directives, a n d b y the international c o m m u n i t y
t h r o u g h t h e W o r l d H e r i t a g e C o n v e n t i o n a n d its o p e r a
t i o n a l g u i d e l i n e s . B e l o w is ab r i e f d e s c r i p t i o n o f t h e h e r
itage classifications, agencies, a n d statutory authorities,
w h i c h inform the m a n a g e m e n t discussions that follow
not integrated into t o w n a n d c o u n t r y planning policies.

S c h e d u l e d m o n u m e n t c o n s e n t m u s t b e o b t a i n e d from t h e
secretary o f state for all w o r k s to s c h e d u l e d
including maintenance.
2 7
monuments,
P l a n n i n g guidance for w o r k o n
such m o n u m e n t s i n c l u d i n g that proposed in these

m a n a g e m e n t a g r e e m e n t s i s p r o v i d e d i n Planning Policy
Guidance 16: Archaeology and Planning (PPG 16).
28
T o d a y , t h e r e a r e m o r e t h a n 13,000 s u c h m o n u
ments under protection around the world. After being
s c h e d u l e d as a n a n c i e n t m o n u m e n t , H a d r i a n sW a l l later
a c q u i r e d s t a t u s a s al i s t e d b u i l d i n g a n d a s aW o r l d H e r
itage Site.
Listed
buildings
T h e primary means of acquiring national protection of

b u i l d i n g s is t h r o u g h listing. T h e s e c r e t a r y o f state, a g a i n
r e l y i n g o n t h e c o u n s e l o f E H , is r e s p o n s i b l e f o r m a i n t a i n
i n g as t a t u t o r y list o f b u i l d i n g s d e t e r m i n e d to h a v e special
architectural interest, historic interest, close historical asso
c i a t i o n , a n d g r o u p v a l u e . Planning Policy Guidance 15: Plan
ning and the Historic Environment
(PPG 1$) c o n t a i n s t h e
definitions, selection criteria, procedures, a n d considera

tions relevant to this designation, a n d provides guidance
c o n c e r n i n g the treatment o f listed buildings.
2 9
L i s t e d b u i l d i n g s a r e r a n k e d a c c o r d i n g t o g r a d e s 1,
11* ( " t w o s t a r r e d " ) , a n d 11. A n y w o r k s ( r e p a i r s , u p g r a d e s ,
restorations, etc.) b e i n g c o n s i d e r e d for listed buildings
m u s t obtain consent. T h e secretary o f state has delegated
to local authorities m o s t decisions c o n c e r n i n g these con-
179
s e n t a p p l i c a t i o n s . A p p l i c a t i o n s f o r w o r k s t og r a d e i, g r a d e
Environment Division.
ii*, a n d d e m o l i t i o n s o f g r a d e n b u i l d i n g s m u s t b e
state f o r c u l t u r e , m e d i a a n d s p o r t is r e s p o n s i b l e f o r t h e
reviewed by E H or other relevant national bodies.
s c h e d u l i n g o fa n c i e n t m o n u m e n t s , r u l i n g o n a p p l i c a t i o n s
Conservation
3 1
Advised by E H ,the secretary of
for scheduled m o n u m e n t consent a n d listing buildings o f
areas
A c o n s e r v a t i o n a r e a is a t e r r i t o r y t h a t h a s b e e n d e t e r
special architectural or historic interest. T h e secretary also
m i n e d t oh a v e s p e c i a l a r c h i t e c t u r a l o r h i s t o r i c interest.
w o r k s specifically w i t h U N E S C O o n issues related t o
Conservation areas m a y be designated b y local planning
W o r l d Heritage Sites in the U n i t e d K i n g d o m .
authorities, a n d local development plans contain descrip

t i o n s o ft h e m a n d p o l i c i e s f o r t h e i r p r o t e c t i o n .
authorities determine whether proposed n e w
L a n d - u s e p l a n n i n g falls u n d e r t h e aegis o f t h e
Office of the D e p u t y P r i m e Minister, including national
Local
legislation a n d guidance d o c u m e n t s , s u c h as the
develop
PPGs,
m e n t will negatively i m p a c t aconservation area's charac
(see statutes, regulations, policy directives, a n d guidelines
ter a n d appearance. N o conservation areas have b e e n
b e l o w ) . T h e D e p a r t m e n t o fE n v i r o n m e n t , F o o d , a n d
c r e a t e d t op r o t e c t a n y p a r t o ft h e H a d r i a n s W a l l W o r l d
R u r a l Affairs ( D E F R A ) , w h i c h handles countryside issues,

also plays asignificant role in the m a n a g e m e n t a n d con
H e r i t a g e Site o r its setting.

World Heritage
servation of heritage. T h e Countryside Agency, w h i c h
listing
Since b e c o m i n g asignatory to the W o r l d Heritage C o n v e n

t i o n i n 1984, t h e U n i t e d K i n g d o m h a s a d d e d t w e n t y - f o u r
o p e r a t e s u n d e r D E F R A , i st h e n a t i o n a l a g e n c y r e s p o n s i b l e
for rural matters. It plays aless direct b u t n o t e w o r t h y
role
in heritage affairs.
W o r l d H e r i t a g e Sites t ot h e list i n t h e n a t u r a l a n d / o r cul
English H e r i t a g e serves as the g o v e r n m e n t ' s
tural categories. T h e operational guidelines o f the W o r l d

Heritage Convention include a recommendation
s t a t u t o r y a d v i s e r c o n c e r n i n g all issues r e l a t e d t ot h e c o n
to d e v e l o p site m a n a g e m e n t p l a n s for e a c h site b e i n g n o m i
s e r v a t i o n o fE n g l a n d ' s h i s t o r i c b u i l t e n v i r o n m e n t . E H i s
classified as " a n E x e c u t i v e N o n - D e p a r t m e n t a l P u b l i c B o d y
n a t e d t o t h e list: " S t a t e s P a r t i e s a r e e n c o u r a g e d t o p r e p a r e
sponsored by the D C M S . "
p l a n s for the m a n a g e m e n t o f e a c h n a t u r a l site n o m i n a t e d
3 0
W h i l e t h e r e is n o B r i t i s h l e g i s l a t i o n o r r e g u l a t i o n
pertaining solely to W o r l d Heritage Sites or nominations,
s o m e official g u i d a n c e m a k e s s p e c i f i c r e f e r e n c e t ot h e o p e r
ational guidelines that implement the Convention. F o r
e x a m p l e , PPG i j , i s s u e d b y t h e O f f i c e o f t h e D e p u t y P r i m e
M i n i s t e r , r e q u i r e s l o c a l a u t h o r i t i e s t od e v i s e policies t o p r o
v i d e for t h e l o n g - t e r m p r o t e c t i o n o f t h e s e sites, a n d t h a t
any development proposals be evaluated with regardt o
t h e i r p o t e n t i a l i m p a c t o n t h e p r o s p e c t i v e site a n d its setting,
a n aesthetic as w e l l as a n e n v i r o n m e n t a l perspective.
Thus, national policy w o r k s with the
guidelines
so that W o r l d H e r i t a g e designation serves t ostimulate the

development of integrated conservation planning across
the United K i n g d o m . Hadrian's Wall has the distinction of
h a v i n g the first W o r l d H e r i t a g e Site m a n a g e m e n t p l a n t o
b e c o m p l e t e d i n t h e c o u n t r y (1996) a n d t h e f i r s t t o b e
u p d a t e d (2002).
NATIONAL H E R I T A G E - R E L A T E D AGENCIES
A t t h e n a t i o n a l level, h e r i t a g e is m a n a g e d b y s e v e r a l
departments a n d agencies. T h e D e p a r t m e n t for Culture,
M e d i a a n d Sport ( D C M S ) holds p r i m a r y responsibility for
t h e b u i l t h e r i t a g e t h r o u g h its A r c h i t e c t u r e a n d H i s t o r i c
180
HADRIAN'S W A L L W O R L D HERITAGE SITE
It is r e s p o n s i b l e f o r t h e m a n
m o r e than four hundred properties in public ownership
nated. Allinformation concerning these plans should be
from
a g e m e n t (i.e., r e p a i r , m a i n t e n a n c e , a n d p r e s e n t a t i o n ) o f
a n d for the safeguarding of each culturalproperty n o m i

m a d e a v a i l a b l e w h e n t e c h n i c a l c o - o p e r a t i o n is r e q u e s t e d / '
and, m o r e commonly, guardianship. E H interfaces w i t h

m a n y aspects o f the p l a n n i n g a n d c o n s e n t s y s t e m , as dis
cussed further below. F u n d e d in part by the
government
a n d i n p a r t b y s e l f - g e n e r a t e d r e v e n u e s , it a l s o r e - g r a n t s
f u n d i n g f o r t h e c o n s e r v a t i o n o ft h e b u i l t h e r i t a g e . ( O t h e r
key nongovernmental financial supporters of heritage in
the United K i n g d o m include the Heritage Lottery F u n d
and the E u r o p e a n Union.)
T h e N a t i o n a l T r u s t w a s established as a private
c h a r i t y i n 1895 t o s a f e g u a r d t h r e a t e n e d n a t u r a l a n d c u l
tural heritage sites.
3 3
T o d a y , it h o l d s i n p e r p e t u i t y
more
t h a n 248,000 h e c t a r e s (613,000 a c r e s ) o f c o u n t r y s i d e i n
E n g l a n d , W a l e s , a n d N o r t h e r n Ireland, a l m o s t six h u n
d r e d m i l e s o fc o a s t l i n e , a n d m o r e t h a n t w o
hundred
b u i l d i n g s a n d g a r d e n s . It is a p a r t i c u l a r l y i m p o r t a n t f o r c e
i n t h e r e g i o n o fH a d r i a n ' s W a l l .
L O C A L HERITAGE AUTHORITIES
A t the local level, responsibility for c o n s e r v a t i o n o f the
h i s t o r i c b u i l t e n v i r o n m e n t r e s i d e s w i t h 34 c o u n t y c o u n c i l s ,
238 d i s t r i c t c o u n c i l s , a n d 46 u n i t a r y c o u n c i l s . T h e s e
authorities handle m o s t decisions regarding buildings and
conservation areas, including consideration o f applica
tions for listed building consent a n d conservation area
consent. L o c a l authorities also issue m o n e t a r y grants t o
tectural or historic interest, the character or appearance o f
outside groups a n d vendors for the repair a n d improve
w h i c h it w a s d e s i r a b l e t op r e s e r v e o r e n h a n c e .
ment of both designated and nondesignated elements o f

the historic built e n v i r o n m e n t . I n s o m e cases, the local
Town and Country Amenities Act (1974). T h i s a c t m a k e s i t t h e
authorities o w n a n d m a n a g e their o w n h e r i t a g e sites. T e n
responsibility o f l o c a l p l a n n i n g authorities t or e v i e w des
national parks in E n g l a n d a n d W a l e s also are independent
ignated c o n s e r v a t i o n areas a n d d e t e r m i n e if other ele
local authorities w i t h statutory responsibility for heritage.
ments should be
designated.
T h e s e include N o r t h u m b e r l a n d National Park, a large

portion of w h i c h coincides w i t h the H a d r i a n sW a l l W o r l d
Ancient Monuments and Archaeological Areas Act (1979).
H e r i t a g e Site.
T h i s act refined the definition o f protected status designa

t i o n s a d d i n g t h e c a t e g o r y o fa r c h a e o l o g i c a l a r e a
I n addition t otheir role i n d e t e r m i n i n g the out

c o m e o fc o n s e n t a p p l i c a t i o n s , t h e c o u n c i l s p r o v i d e active
w h i c h c o u l d b e m a d e e i t h e r b y t h e s e c r e t a r y o fstate o r
p r o t e c t i o n o ft h e h i s t o r i c b u i l t e n v i r o n m e n t b y p l a c i n g
b y local p l a n n i n g authorities, subject t oc o n f i r m a t i o n b y
specific policies into local t o w n a n d c o u n t r y plans. A n u m
the secretary. T h e criterion o fnational-level significance
b e r o flocal authorities have incorporated specific provi
r e m a i n e d in force. T h e act also strengthened
sions into these policies as aw a y o fi m p l e m e n t i n g the oth
b y m a k i n g certain offenses against scheduled m o n u m e n t s
erwise advisory and partnership-based Management
subject t ocriminal prosecution.
Plan.
protections
A s o f s u m m e r 2002, t h i r t e e n l o c a l a u t h o r i t i e s a t v a r i o u s
levels h a d i n c o r p o r a t e d m e a s u r e s specific t oH a d r i a n s
Wall, based o n the M a n a g e m e n t Plan, into local policies.
National Heritage Act (1983). T h i s a c t e s t a b l i s h e d E n g l i s h

3 4
NATIONAL HERITAGE STATUTES AND POLICIES

Provisions for the national government's conservation of
h e r i t a g e a r e f o u n d i n acts o fP a r l i a m e n t , r e g u l a t i o n s , a n d
policy documents. Statutory protection o fheritage in
G r e a t B r i t a i n b e g a n w i t h t h e e n a c t m e n t o ft h e
Ancient
Monuments Protection Act o f 1882. S i n c e t h a t t i m e , t h e

adoption of n e w national statutes a n d policies has greatly
e x p a n d e d t h e e x t e n t o fg o v e r n m e n t c o n t r o l o v e r c u l t u r a l
heritage, including towns and landscapes. Starting in the
l a t e 1960s, n a t i o n a l c o n s e r v a t i o n a c t i v i t i e s h a v e b e e n
folded into the planning process. Rather than enforcing
fixed rules, this discretionary p l a n n i n g s y s t e m allows for
flexible a n d responsive decision m a k i n g . A listing o f the
principal statutes follows; those w i t h annotations bear a
specific relation t odesignation, e n h a n c e m e n t s o f protec
t i o n , a n d n e w a p p r o a c h e s t op l a n n i n g a n d
management.
of protecting a n d promoting the historic environment.

Town and Country Planning Act (1990). T h e l a t e s t i n a s e r i e s
t h a t b e g a n i n 1947 w i t h t h e e s t a b l i s h m e n t o f t h e E n g l i s h
p l a n n i n g system, this act recognizes a n d assigns p l a n n i n g
jurisdiction in various contexts. A n y development o f land
or change in land use w a r r a n t s a n application for permis
sion
from
the planning authority in force, thus reducing
the individual l a n d o w n e r ' s ability t oc h a n g e the character

of atownscape or countryside in unacceptable ways.
Planning (Listed Buildings and Conservation Areas) Act
(1990).
35
This act recognizes that the p r i m a r y responsibility
to list significant b u i l d i n g s lies w i t h t h e s e c r e t a r y o f state

a n d his or her advisers. H o w e v e r , itemphasizes the roles
a n d responsibilities of local planning councils t o m o n i t o r
the historic fabric in their jurisdictions, r e c o m m e n d build
ings for listing, a n d limit c h a n g e s that c a n b e m a d e t o
Historic Buildings and Monuments Act (1953)
listed buildings.
Civic Amenities Act (196f). T h i s a c t l a u n c h e d t h e t r e n d o f

embedding heritage preservation in the planning
processes at the c o u n t y a n d district levels. It also legalized
the group value of buildings and acknowledged
H e r i t a g e as apublic b o d y w i t h responsibility for all aspects
the
i m p o r t a n c e o fc o n s e r v i n g a r e a s as o p p o s e d t o i n d i v i d u a l
buildings. Local planning authorities were given the
r e s p o n s i b i l i t y o fd e s i g n a t i n g as c o n s e r v a t i o n a r e a s t h o s e
p l a c e s w i t h i n t h e i r j u r i s d i c t i o n t h a t w e r e o fs p e c i a l a r c h i
Heritage Lottery Fund (HLF) (1993). T h e National Lottery Act

o f 1993 a l l o w e d f o r t h e c r e a t i o n o f a r e v e n u e s t r e a m t o
support conservation projects for the physical u p k e e p
o f buildings a n d sites o fn a t i o n a l i m p o r t a n c e . W h i l e the
l e g i s l a t i o n r e l a t i n g t o t h e National Lottery Act i s n o t p r e
s c r i p t i v e i n r e g a r d t o t h e h e r i t a g e i t s e l f , 1998 s a w t h e i n t r o
d u c t i o n o ft h e r e q u i r e m e n t f o r a c o n s e r v a t i o n p l a n f o r a
site r e q u e s t i n g H L F f u n d s for w o r k s o n h i s t o r i c sites.
181
Planning Policy Guidance (PPG). " P l a n n i n g p o l i c y g u i d a n c e
National Trust, and the Vindolanda Trust. T h e local
n o t e s set o u t G o v e r n m e n t policy o n p l a n n i n g issues
authorities with the most substantial holdings
a n d provide guidance to local authorities a n d others
on
and
m a n a g e m e n t roles for particular R o m a n heritage sites
the operation of the planning system. T h e y also explain
are the C u m b r i a C o u n t y C o u n c i l (owns and
manages
the relationship between planning policies a n d other
Birdoswald), Northumberland County Council (owns
policies w h i c h have a n important bearing o n issues
and manages Rudchester), North Tyneside Council (owns
of development a n d land use. Local planning authorities
Wallsend), and South Tyneside Metropolitan Borough
m u s t take their content into account in preparing their
Council (owns South Shields). B o t h Wallsend a n d South
development plans."
Shields are m a n a g e d for their o w n e r s b y the T y n e a n d
3 6
Wear Museums. Northumberland National Park Author

PPG
ty. Planning and the Historic Environment
(September
1994; updated frequently) f o c u s e s o n t h e p l a n n i n g p r o c e s s e s
ity also leases T h i r w a l l Castle a n d m a n a g e s avisitor center

and car parks. T h e Allerdale District C o u n c i l and Carlisle
involving listed buildings a n d other aspects o f the historic
a n d Newcastle City C o u n c i l s also o w n areas of R o m a n
e n v i r o n m e n t , i n c l u d i n g W o r l d H e r i t a g e Sites, p a r k s a n d
ruins related to H a d r i a n s Wall.
gardens, battlefields, conservation areas, associated road

w a y s a n d traffic, a n d the b r o a d e r historic landscape.
N o
English Heritage manages approximately 8 kilo

m e t e r s (5 m i l e s ) o f t h e W a l l , t h r e e f o r t s a n d p a r t s o f t h e i r
special statutes pertain specifically to W o r l d Heritage
civil settlements (including R o m a n C o r b r i d g e ) , t w o
S i t e s . R a t h e r , t h i s P P G ( s e c t i o n 2.22) a r t i c u l a t e s t h a t l o c a l
bridges, a n d m o s t of the visible milecastles a n d turrets.
authorities m u s t devise m a n a g e m e n t plans that include
It s h o u l d b e n o t e d t h a t m a n y E H g u a r d i a n s h i p p r o p e r t i e s
policies to p r o v i d e for t h e l o n g - t e r m p r o t e c t i o n o f sites.
are o w n e d b y the C u m b r i a C o u n t y Council, the National
D e v e l o p m e n t proposals m u s t b e assessed w i t h regard to
Trust, and the Vindolanda Trust, resulting in considerable
t h e i r p o t e n t i a l i m p a c t o n a site a n d its setting, i n c l u d i n g
overlap in management
the assessment of environmental impacts for develop

m e n t of significant magnitude.
activities.
T h e estate o f t h e N a t i o n a l T r u s t i n t h e site's c e n
t r a l s e c t o r c o v e r s a p p r o x i m a t e l y 1,100 h e c t a r e s (2,718
acres). Its m a i n h o l d i n g s i n c l u d e the fort at H o u s e s t e a d s ,
PPG
16: Archaeology and Planning (1990) i s a p a r a l l e l m a n u a l
a p p r o x i m a t e l y 8 k i l o m e t e r s (5 m i l e s ) o f t h e W a l l ,
lengths
f o r p l a n n i n g p r o c e s s e s i n v o l v i n g a r c h a e o l o g y . It is d i r e c t e d
o f the v a l l u m , t w o visible milecastles, a n d the fortlet a n d
at p l a n n i n g authorities, p r o p e r t y o w n e r s ,
m a r c h i n g c a m p s at H a l t w h i s t l e C o m m o n .
archaeologists, a m e n i t y societies,
3 7
developers,
and the general public.
T h e V i n d o l a n d a T r u s t o w n s the forts a n d civil
"It sets o u t the S e c r e t a r y o f State's p o l i c y o n archaeologi
settlements at V i n d o l a n d a a n d C a r v o r a n , a n d operates
cal remains o n land, a n d h o w they should be preserved or
m u s e u m s at b o t h sites. T h e S e n h o u s e T r u s t also
operates
recorded both in a n u r b a n setting a n d in the countryside.
a m u s e u m o f R o m a n relics located next to the R o m a n
It g i v e s a d v i c e o n t h e h a n d l i n g o f a r c h a e o l o g i c a l r e m a i n s
fort at M a r y p o r t . B o t h the N e w c a s t l e M u s e u m o f A n t i q u i
and discoveries under the development plan a n d control
ties a n d T u l l i e H o u s e h o l d m a j o r collections related to
systems, including the weight to be given to t h e m in plan
H a d r i a n sW a l l . A n u m b e r o f related R o m a n sites lie
ning decisions and the use of planning conditions/'
w i t h i n the W o r l d Heritage Site b u t are u n d e r varied
3 8
OWNERSHIP AND MANAGEMENT DISTRIBUTION
ownership.
O w n e r s h i p a n d m a n a g e m e n t w i t h i n t h e site is v a r i e d a n d
MANAGEMENT COORDINATION
complex. T h e r e are approximately seven hundred private
Coordination a m o n g the m a n y owners, managers,
o w n e r s , a c c o u n t i n g f o r 90 p e r c e n t o f t h e s i t e . L a n d u s e i s
a r d s , a n d u s e r s o f H a d r i a n s W a l l a n d its s e t t i n g is o n e
similarly diverse and includes u r b a n neighborhoods,
the leading challenges in conserving and m a n a g i n g the
f a r m s a n d pasturage, t o w n s a n d villages. M a n y o f the
s i t e . T h e 1987 d e s i g n a t i o n o f t h e W a l l a s a W o r l d H e r i t a g e
p r i m e a r c h a e o l o g i c a l sites, h o w e v e r , a r e p u b l i c l y o w n e d
Site c l e a r l y r e c o g n i z e d t h e v a l u e o f t h e W a l l a n d its s e t t i n g
or otherwise m a n a g e d for conservation a n d public access.
as aw h o l e , n o t s i m p l y as a collection o f i n d i v i d u a l sites
A p p r o x i m a t e l y 10 p e r c e n t o f t h e s i t e i s m a n a g e d
stew
of
a n d f e a t u r e s . I n a d d i t i o n , it h i g h l i g h t e d t h e i m p o r t a n c e o f
specifically for heritage conservation, access, presentation,
coordinated m a n a g e m e n t to preserve the Wall's values.
research, and recreation. These owners and managers
G r o u n d w o r k w a s laid for the present efforts o f the
include seven local authorities, English Heritage, the
Hadrian's W a l l W o r l d Heritage Site M a n a g e m e n t P l a n
182
C o m m i t t e e ( M P C ) a s f a r b a c k a s t h e 1976 D a r l i n g t o n
A m e n i t y R e s e a r c h T r u s t ( D A R T ) r e p o r t a n d t h e 1984
Hadrian sWall Consultative C o m m i t t e e document
egyfor Hadrian's
Strat
Wall. B o t h d o c u m e n t s w e r e b a s e d o n t h e
intellectual-historical tradition o funderstanding the W a l l

a n d its a s s o c i a t e d f e a t u r e s h o l i s t i c a l l y a n d a s s e r t e d t h a t t h e
Wall should b emanaged asa whole.
T h e notion o fWall-wide management
gained
f u r t h e r m o m e n t u m i n 1990-91 a s a r e s u l t o f m a j o r d e v e l
o p m e n t proposals for open-cast coal m i n i n g a n d oil
d r i l l i n g i nw h a t w o u l d l a t e r b e d e s i g n a t e d a s t h e
setting.
Opponents o fthe development (including English Her

itage a n d the C o u n c i l for British Archaeology) prevailed,
a n d t h e e x p e r i e n c e p r o v i d e d a ni m p o r t a n t v a l i d a t i o n o f
t h e W a l l ' s a c k n o w l e d g e d v a l u e s a sw e l l a s t h e v a l u e s o f its
l a n d s c a p e / s e t t i n g . F u r t h e r m o r e , i t e m e r g e d t h a t manage
ment o f t h e W a l l a n d i t s s u r r o u n d i n g s n o t j u s t i t s d e s i g
n a t i o n a n d p r o t e c t i o n w o u l d b e k e y t o its s u r v i v a l a n d
development.
Prior tothese pro-conservation outcomes,
World
Heritage designation h a d not b e e n explicitly addressed i n

the legislation regarding the m a n a g e m e n t o f the historic
Figure 4.11. View of a structural wall of Housesteads Fort in the fore

ground with Hadrian s Wall extending eastward into the distance.
Photo: David Myers
side A g e n c y ; a n d the start o f the M a n a g e m e n t
Plan
process, led b yEnglish Heritage. Historically, ownership

a n d c o n t r o l o f the territory m a k i n g u pthe site a n d setting
h a d b e e n fragmented. I n response, these initiatives created
institutions a n d partnerships t o m a n a g e Wall a n d setting
r e s o u r c e s i nw a y s t h a t w e r e c o h e r e n t g e o g r a p h i c a l l y a n d
built environment. T h e s e public controversies occurred

b e f o r e PPG 15 w a s p u b l i s h e d i n 1994; i n d e e d , t h e i n q u i r i e s
that w e r e held helped lead t o the inclusion o f specific
W o r l d H e r i t a g e s e c t i o n s i n PPG 15.
A r o u n d 1993, t h r e e d i s t i n c t b u t r e l a t e d i n i t i a t i v e s
w e r e developed, each bringing together avariety o f part
ners a n d focusing efforts o n the W a l l a n d setting a sa n
integrated w h o l e . T h e s e three initiatives w e r e t h e
Hadrian sWall T o u r i s m Partnership ( H W T P ) ; t h e
H a d r i a n sW a l l Path National Trail, led b ythe
Country-
Figure 4.10. The English Heritage museum building just below the fort
at Housesteads. Photo: Margaret G. H. MacLean
Figure 4.12. View of the excavated area at Housesteads Roman Fort

looking south into the valley. Visitors cross this area as they walk from
the car park up to the fort. Photo: Randall Mason
183
across sectors. T h e y have led quite directly to the current
T h e m e m b e r s o f the M P C are:
m a n a g e m e n t a n d p l a n n i n g regime. B e h i n d the initiatives
Allerdale Borough Council
is a c o r e set o f i n d i v i d u a l s , c o n n e c t e d i n f o r m a l l y a n d for
mally, w h o r e m a i n i n v o l v e d i n the m a n a g e m e n t o f the site
Association of Northeast Councils

Carlisle City Council
to this day.
I n 1996, t h e f i r s t c o m p r e h e n s i v e
management
plan w a s adopted to provide af r a m e w o r k reconciling a n d

b a l a n c i n g t h e v a r i e t y o f interests i n t h e site, to a r t i c u l a t e
agreed-upon objectives, a n d to generate p r o g r a m s o f
w o r k . A m o n g the central provisions o f this p l a n w a s
the
Carlisle County Council

Castle Morpeth Borough Council
Community Council of Northumberland
Copeland Borough Council
creation of the M a n a g e m e n t Plan Committee, w h i c h rep
Council for British Archaeology
r e s e n t s t h e s t a k e h o l d e r s i n t h e site a n d its setting. T h e
Country Land & Business Association
1996 p l a n s p e l l s o u t t h e M P C s
responsibilities:
1. to oversee the implementation of general and
Countryside Agency
Cumbria County Council
specific recommendations made within the Management
Cumbria Tourist Board
Plan, and to monitor the success in meeting the targets it
Department of Culture, Media and Sport
sets;
Department of Environment, Food, and Rural Affairs

2. to establish a forum for management issues, and
to continue to co-ordinate efforts towards concerted man

agement within the Hadrian s Wall World Heritage Site;
3. to receive reports from responsible bodies and
agencies on projects which affect the Hadrian's Wall area;
4. to agree action programmes and priorities for
developing specific aspects of the management plan;
5. to monitor the condition of the World Heritage
Site, and develop and agree on appropriate action to deal
with threats to its well-being;
Durham University
English Heritage, Hadrian s Wall Co-ordination Unit
English Heritage, London
English Nature
European Liaison Unit
Forest Enterprise
Government Office North East
Hadrian's Wall Tourism Partnership
ICOMOS UK
6. to develop and agree further policies and codes

of practice for protection, recording and research, access,
Lake District National Park
interpretation, and preservation of the World Heritage Site,
National Farmers Union
as well as safeguarding the livelihoods and interests of those
The
living and working within the zone, and to encourage the

adoption of such policies by responsible bodies and agencies;
7. within the overriding need to conserve the
World Heritage Site, to promote the economy of the region;
8. to agree the work programme of, and provide
National Trust
Newcastle City Council

North Tyneside Metropolitan Borough Council
Northeast Museums, Libraries and Archives Council
Northumberland County Council
general direction for the proposed Hadrians Wall Co-ordina
Northumberland National Park
tion Unit;
Northumbria Tourist Board

9. to review the conclusions and
recommenda
tions within the management plan, to determine the fre

quency of the necessary updating of the plan, and to oversee
this process when it occurs.
39
Tyne dC Wear Museums

Tynedale District Council
University of Newcastle
The
Vindolanda Trust
Voluntary Action Cumbria
184
T h e M P C c o n v e n e s b i a n n u a l l y t or e v i e w p r o g r e s s
t h e f o r m o f its s t a t u t o r y r e v i e w a u t h o r i t y . I f i n c e r t a i n sit
o n t h e p l a n . T h e 1996 p l a n a l s o c r e a t e d t h e H a d r i a n s W a l l
uations the negotiation, consultation, and collaboration of
Co-ordination Unit ( H W C U ) , w h i c h oversees implemen
t h e p a r t n e r s h i p fails t ob r i n g a r e s u l t a c c e p t a b l e t o E H , t h e
tation o fthe m a n a g e m e n t plan o n aday-to-day basis.
organization has the authority t oc h a n g e the o u t c o m e .
A n o t h e r i m p o r t a n t e n t i t y is t h e H W T P , w h i c h , like t h e
E v i d e n t l y , this a c t i o n is a v o i d e d t ot h e l a r g e s t e x t e n t p o s s i
H W C U , handles day-to-day responsibilities for m a n a g i n g
b l e . E H fills t h e c o m p l i c a t e d r o l e s o f m a n a g e r , r e g u l a t o r ,
activities at t h e site. T h e H W T P w o r k s t oc o o r d i n a t e sus
archaeologist, business partner, a n d referee. F u r t h e r m o r e ,
t a i n a b l e t o u r i s m m a r k e t i n g a n d d e v e l o p m e n t ; it is dis
as a n o p e r a t o r o f historic sites, the o r g a n i z a t i o n n e e d s t o
cussed in m o r e detail below.
c u l t i v a t e t h e site's e c o n o m i c a n d u s e v a l u e s , a n d it is
s o m e t i m e s s e e n t ob e i n c o m p e t i t i o n w i t h o t h e r sites.
T H E R O L E OF ENGLISH HERITAGE
E n g l i s h H e r i t a g e is a k e y o r g a n i z a t i o n i n this
management
s c h e m e . It plays several roles simultaneously. A t o n e level,

it s e r v e s as p a r t n e r a n d c o o r d i n a t o r ; at a n o t h e r level, it is
the national authority that advises a n d approves or pre
v e n t s c e r t a i n i n t e r v e n t i o n s o r a c t i v i t i e s o fo t h e r p a r t n e r s .
E H ' s c o r e m a n d a t e a n d its h i s t o r i c a l m i s s i o n a n d r a i s o n
T h i s p u t s E H i n t h e p o s i t i o n o fa d v o c a t i n g a n d n e e d i n g
to balancedifferent kinds o f values. R e c o g n i z i n g the
c o m p l e x i t y , E H a n d its p a r t n e r s h a v e e s t a b l i s h e d o t h e r
organizations, s u c h as the H W T P a n d the N a t i o n a l Trail,
to bolster the sitewide presence a n d perspective a n d h e d g e
reliance o n o n e sole, c o o r d i n a t i n g entity.
d ' e t r e a s w e l l as its s t a t u t o r y responsibilities i d e n t i f y it

closely w i t h the historic, archaeological, a n d research val
u e s o f t h e W a l l . T h e m a n a g e m e n t f u n c t i o n s it h a s t a k e n
o n for the H a d r i a n sW a l l W o r l d Heritage Site (and others
i n E n g l a n d ) h a v e , h o w e v e r , m o r e f u l l y c l a r i f i e d its r o l e i n
c o n t e m p o r a r y values. C o n g r u e n t w i t h this b r o a d e n i n g o f
m a n d a t e a n d o f t h e t y p e s o f v a l u e s it r e c o g n i z e s i n its sitespecific w o r k , E H sees itself as steward, advocate, a n d pro
tector of historic landscapes a n d environments, rather
t h a n o fsites a n d
monuments.
4 0
O f c e n t r a l i m p o r t a n c e t ot h e s u c c e s s o f
manage
m e n t i s t h e H W C U , s e t u p i n 1996 b y E H t o l e a d t h e i m p l e
m e n t a t i o n o fthe first M a n a g e m e n t Plan.
4 1
Currently, the
H W C U c o n s i s t s o f t w o s t a f f m e m b e r s o n l o a n from E
who, in collaboration with other individuals from other

institutions, lead the i m p l e m e n t a t i o n o fthis s c h e m e
a c r o s s t h e totality o f t h e site, a i d e d b y d o z e n s o f p a r t n e r
organizations and m o r e than seven hundred landowners.
E H is t h e g o v e r n m e n t ' s " l e a d b o d y f o r t h e h i s
t o r i c e n v i r o n m e n t " a n d is t h e o n l y n a t i o n a l b o d y w i t h t h e
r e m i t t op r o t e c t a n d c o n s e r v e t h e W o r l d H e r i t a g e Site.
B a s e d o n t h e 1979 Ancient Monuments and
Archaeological
Areas Act a n d t h e 1983 National Heritage Act, E H h a s s t a t u

tory review authority for planning consent regarding
s c h e d u l e d m o n u m e n t s . E H also offers advice t oo w n e r s o f
s c h e d u l e d m o n u m e n t s a n d listed b u i l d i n g s a n d is t h e m a n
a g e r o fs e v e r a l m u s e u m s / h i s t o r i c sites a n d m u s e u m s
at
the site ( C o r b r i d g e , H o u s e s t e a d s , a n d C h e s t e r s ) .
B e c a u s e o f its k e y r o l e i n t h e H W C U a n d its l e g a l
m a n d a t e at a n a t i o n a l level, E H is s o m e w h a t m o r e t h a n a n
equal p a r t n e r in the s c h e m e , a n d this creates a n i m b a l a n c e
of power a m o n g the partners. E H holds at r u m p card in
185
R e c o n s t r u c t i o n a t A r c h a e o l o g i c a l Sites:
A Lens o n C u l t u r a l Resource Policy
e r a b l y f r o m site to site a l o n g H a d r i a n ' s W a l l ,

m a k i n g reconstruction a n excellent
lens
R e c o n s t r u c t i o n o f a b o v e g r o u n d features at
t h r o u g h w h i c h to v i e w the varying, s o m e t i m e s
a r c h a e o l o g i c a l s i t e s is a s o u r c e o f g r e a t
opposing, approaches to cultural resource pol
contro
v e r s y i n p r o f e s s i o n a l c i r c l e s , a n d y e t it is a f a i r l y
icy that exist w i t h i n the M a n a g e m e n t
c o m m o n practice. In situ reconstruction pro
framework.
Plan
posals often highlight conflicts of value: while

Several examples of reconstructed
reconstruction usually destroys
buildings
archaeological
a n d features are present at individual sites
a n d r e s e a r c h value to s o m e extent a n d
may
across the W o r l d H e r i t a g e Site, a n d m o r e
are
d a m a g e p e r c e p t i o n s o f asite's "authenticity,"
p l a n n e d f o r t h e f u t u r e . E v e n t h e W a l l itself is
the "realism" suggested by the n e w
structure
an in situ reconstruction in s o m e places. Part
can increase the n u m b e r of visitors a n d there

ners have different standards for reconstruc
fore the e c o n o m i c a n d social v a l u e o f t h e site.
tion, r a n g i n g f r o m astrict avoidance o f recon
E x situ reconstructions are less controversial
s t r u c t i o n as ac o n s e r v a t i o n strategy, to its free
because, in principle, they are not placed
over
use to generate interpretation a n d visitor
archaeological deposits. T h e strategies a n d

attraction.
intentions behind reconstruction vary considR e c o n s t r u c t i o n has b e e n justified either as
research in the use of construction
materials
a n d t e c h n i q u e s o r a s am e a n s o f h e l p i n g
the
visitor imagine the original appearance of a

site. T h e r e c o n s t r u c t i o n s i l l u s t r a t e d h e r e
conceived a n d e x e c u t e d to create
were
stronger
i m a g e s a n d interpretive tools for conveying
the
c e n t r a l h i s t o r i c v a l u e s o f t h e W a l l a n d its fea
tures as representing the R o m a n military fron
The bathhouse of Segedunum at Wallsend. In addition to a
broad, excavated area and a new, award-winning museum, the
site includes a Roman bathhouse reconstructed ex situ. The
project has captured considerable interpretive and research
values through the process of researching, constructing, and
presenting the working Roman-style bathhouse. Since it was
not built above archaeological resources and is presented as a
modern structure, it does not undermine the research value
of the site. Photo: Marta de la Torre
186
tier that so strongly s h a p e d this part o f
the
United Kingdom.
In general, the conservation
field
does
not
embrace reconstruction. T h e Venice Charter'

states, 'All reconstruction w o r k s h o u l d . .
.be
Panoramic view of the actual remains of the fort at Segedunum, as seenfroman observation tower, showing the
reconstructed bathhouse at the far left. Photo:
Margaret G. H. MacLean
public understanding, bolstering the mar

ketability o f sites, c r e a t i n g j o b s , a n d b o o s t i n g
r u l e d o u t a p r i o r i / " PPG I J t e r m s r e c o n s t r u c
tourism expenditures and associated
t i o n " n o t a p p r o p r i a t e . " T h e 1998 B r i t i s h S t a n
externalities.
economic
dard on the Principles of the Conservation of

Historic Buildings instructs,'A presumption
Recently revised E H policy on
reconstruction
a g a i n s t r e s t o r a t i o n is a h a l l m a r k o f t h e B r i t i s h
a p p r o a c h to building conservation."
However,
s o m e experts believe reconstructions
increase
maintains basic conservation principles while

carefully circumscribing certain
conditions
u n d e r w h i c h it c a n b e a c c e p t e d as
conservation
policy, a n d therefore in the interest o f sustain

ing heritage values. Emphasis, however,
remains o n discouraging speculative
struction a n d precluding in situ
recon
reconstructions
that d a m a g e original fabric.
T h e 2002 M a n a g e m e n t P l a n a d o p t s a
policy generally supportive of
reconstruction,
citing several successful e x a m p l e s at the site

a n d listing several advantages o f selective
The West Gate at Arbeia at South Shields. Located near
Newcastle, the site of Arbeia has several reconstructions.
The West Gate, reconstructed in 1988, was initially chal
lenged by English Heritage and resulted in a public inquiry.
Reconstruction was eventually approved, along with tacit
approval of the idea of using reconstructions as a bold visi
tor attraction strategy. It is interesting to note that the same
individual developed the plans for South Shields and Segedunum using reconstruction, excavation, and museum dis
play methods but different overall approaches to each.
Photo: Margaret G. H. MacLean
reconstructions (in situ a n d otherwise).

marks achange
from
This
the traditional approach
to archaeological values.
A l l i n all, al a c k o f c o n s e n s u s still r e m a i n s
on
reconstruction a m o n g the H a d r i a n sWall part

ners. T h e issue has b e e n divisive. A l r e a d y in
187
The reconstructed barracks at Arbeia at South Shields. At

present, additional in situ reconstructions of barracks and
houses are being undertaken within the excavated fort walls
at Arbeia. Photo: Marta de la Torre
Clayton's Wall, near Steel Rigg. Many segments of Hadrian's

Wall could be considered reconstructions. For example, in
some places much of the wall was mined for building stone
in the post-Roman era. The extensive sections of Clayton's
Wall reconstructed in the nineteenth century (followed by
similar conservation in the twentieth century) consist of a
core of excavated and reassembled Roman-era dry-laid wall
with nineteenth-century course layered on the top. Few, if
r truly authentic segments of exposed wall survive.
Dto: Marta de la Torre
f
heritage c o n s e r v a t i o n interests, led at that
time
b y E H . Proposals for reconstruction are

e x p e c t e d to c o n t i n u e as c o n s e r v a t i o n
and
d e v e l o p m e n t activities p r o c e e d in the W o r l d
H e r i t a g e Site. T h e a b s e n c e o f c o n s e n s u s is s e e n
The private Vindolanda Trust pursues an active program of
excavation, research, conservation, and reconstruction with
a strong entrepreneurial visitor orientation. Some of the
Trust's initiatives have proven controversial. These include a
number of ex situ reconstructions, for example this temple
and segments of stone-and-turf wall. The Trust plans to
reconstruct a large Roman fort on its properties, in a loca
tion that would have a strong visual impact on the setting.
Photo: Marta de la Torre
as a n indicator o f the health o f the overall

partnership: partners can disagree on
specific
approaches even though they agree on the gen

eral f r a m e w o r k of values and their protection.
"Generally, there can be no objections
to
r e c o n s t r u c t i o n w h i c h is n o t i n s i t u p r o v i d e d
1984, p r i o r t o W o r l d H e r i t a g e
reconstruction
o f the W e s t G a t e at S o u t h Shields d i d n o t
188
s e t t i n g o f t h e W o r l d H e r i t a g e S i t e is p r o
designation,
approval of the proposal for the
the
come
tected," and, further, that principles of histori

cal accuracy a n d reversibility are
respected.
until after apublic inquiry, the last step in
H a d r i a n sW a l l policy therefore reflects a
resolving areconstruction
branching away from rigid ideological
pro
T h e i n t e r e s t s i n f a v o r o f r e c o n s t r u c t i o n a n d its
n o u n c e m e n t s against reconstruction
toward
economic-development benefits w o n out
a m o r e situational decision m a k i n g based
disagreement.
over
on
recognition o fthe multiplicity o f values

involved. Future proposals for reconstruction
present potentially divisive decisions for the
partnership.
In the end, the key question about reconstruc

t i o n i sw h e t h e r i tt h r e a t e n s t h e overall integrity
a n d authenticity o fthe W a l l a n d setting,
and
t h e r e f o r e t h e h e r i t a g e v a l u e s o f t h e e n t i r e site.
Decisions ultimately will b em a d e within the
planning controls s y s t e m t h e scheduled
mon
u m e n t s r e v i e w c o n d u c t e d b yE H t oadvise the
consent decisions o fthe
D C M S .
Notes
1.
ICOMOS, The Venice Charter, 1967.
2.
British Standard on the Principles of the Conservation

of Historic Buildings (BS7913,1998), cited in English
Heritage Policy Statement on Restoration, Reconstruction,
and Speculative Recreation of Archaeological Sites Including
Ruins, February 2001.
3.
English Heritage 2002,
65-66.
189
Understanding and Protecting the Values of the Site
Values Associated w i t h Hadrian's W a l l
W a l l , t h e d o c u m e n t s u g g e s t e d efforts t op r o t e c t a n d
e n h a n c e i t s l a n d s c a p e s e t t i n g . T h e f o u r p o i n t s o ft h e
HOW VALUING OF T H E WALL HAS EVOLVED

Since thedeparture o f theR o m a n legions centuries ago,
strategy are:
a. t os a f e g u a r d t h e s p l e n d i d h e r i t a g e o f R o m a n
local people a n dcommunities have valued and m a d e u s e
m o n u m e n t s a n d all a s s o c i a t e d r e m a i n s s ot h a t t h e y a r e
o f t h e W a l l i n av a r i e t y o f utilitarian w a y s : a s as o u r c e o f
n o t lost o r spoilt f o rfuture
q u a r r i e d stone, as field boundaries, a n ds o o n . A n t i q u a r i a n

interest i n H a d r i a n sW a l l , a n d t h e c o n s c i o u s u n d e r s t a n d
i n g o fa r c h a e o l o g i c a l a n d h i s t o r i c v a l u e , b e g a n a r o u n d
1600 a n d i n c r e a s e d t h r o u g h o u t t h e n i n e t e e n t h
century.
generations;
b. t op r o t e c t , a n d w h e r e p o s s i b l e e n h a n c e , t h e
q u a l i t y o f l a n d s c a p e setting o f t h e W a l l sites;
c. t oe n c o u r a g e a p p r o p r i a t e p u b l i c v i s i t i n g o f
the Wall area, w i t h convenient access and high-quality
T h u s , u s e v a l u e s and h e r i t a g e v a l u e s o f t h e W a l l s t r e t c h
e x p e r i e n c e a n d( f o r t h o s e w h o s e e k it) u n d e r s t a n d i n g
back over centuries.
o f t h e R o m a n m o n u m e n t a n d w a yo f life;
L e g i s l a t i o n p r o t e c t i n g t h e W a l l h a sb e e n
enacted
d. t o e n s u r e that local p e o p l e derive t h eb e s t possi
over time, reflecting t h e c h a n g i n g values attributed t ot h e
ble benefits
site. T h e o r i g i n a l legislation s c h e d u l i n g m o s t o f t h e W a l l
m e n t , whilst e n s u r i n g that all appropriate steps a r e t a k e n
as an a t i o n a l m o n u m e n t d a t e s
to m i n i m i s e t h e adverse effects o ftourism, particularly
from
1927 a n d f o c u s e d
exclusively o n t h eWall's R o m a n archaeological a n d his

t o r i c v a l u e s . T h i s s c h e d u l i n g w a s u p d a t e d b y t h e 1932
H a d r i a n sW a l l a n d V a l l u m P r e s e r v a t i o n S c h e m e , w h i c h
extended t h eprotected area.
from
on agriculture.
t o u r i s m b y w a yo f i n c o m e a n d e m p l o y
4 3
T h o u g h b o t h t h e D A R T r e p o r t a n d t h e Strategy
h a d little i m m e d i a t e , p r a c t i c a l effect, t h e y d i ds e t a p r e c e
d e n t f o rp a r t n e r s h i p b u i l d i n g a n dab r o a d e n e d v i e w o f t h e
T h e 1976 D a r l i n g t o n A m e n i t y R e s e a r c h T r u s t
Wall's values. B o t h acknowledged contemporary a n d her
report o n conservation a n d visitors services, organized b y
itage values, a n d v a l u e d t h eW a l l itself as w e l l as t h e sur
the Countryside C o m m i s s i o n , formulated
r o u n d i n g landscape. E q u a l l y important, these early initia
a s t r a t e g y t od e a l w i t h t h e W a l l i n ag e o g r a p h i c a l l y
com
tives l a u n c h e d a n e v o l u t i o n a r y p r o c e s s o fc o n c e i v i n g t h e
prehensive way. Italso addressed b o t h t h ethreats a n d
W a l l a n d i t s v a l u e s a s a whole entity c o m p r i s i n g t h e c o r e
o p p o r t u n i t i e s p r e s e n t e d b y tourists d r a w n t ot h e W a l l ,
archaeological resources aswell asthelandscape
and recognized real a n d potential constraints
M o n u m e n t s c h e d u l i n g u n d e r t h e 1979 Ancient
presented
setting.
Monuments
b y reconciling agricultural, tourist, a n dconservation uses
and Archaeological Areas Act r e v i s e d t h e o r i g i n a l d e s i g n a
o f t h eW a l l a n d itslandscape. T h e D A R T report w a st h e
tions. T h e W a l l is n o walmost entirely scheduled.
b a s i s f o r t h e 1984 d o c u m e n t Strategy for Hadrian's
Wall,
U N E S C O W o r l d Heritage inscription o f
p r o d u c e d b y t h e H a d r i a n sW a l l C o n s u l t a t i v e C o m m i t t e e ,
H a d r i a n s W a l l M i l i t a r y Z o n e i n 1987 w a s b a s e d o n
w h i c h c o n s i s t e d o faf e w d o z e n n a t i o n a l , r e g i o n a l ,
R o m a n - e r a heritage values. "Built under t h eorders o f
and local government agencies, aswell as nonprofit

groups representing aw i d e variety o f stakeholders.
E m p e r o r H a d r i a n i n a b o u t 122 A . D . o n t h e b o r d e r b e t w e e n
4 2
E n g l a n d a n d S c o t l a n d , t h e 118-kilometer l o n g w a l l is a
T h e balanced view o fresources a n d / o r conservation a n d
s t r i k i n g e x a m p l e o f t h e o r g a n i s a t i o n o fam i l i t a r y z o n e ,
development opportunities presented i ntheD A R T
w h i c h illustrates t h etechniques a n dstrategic a n d geo
report
w e r e e x t e n d e d b y t h e Strategy. T h e l a t t e r f o c u s e d o n s i t e s
political views o ft h eR o m a n s . "
4 4
T h e inscription w a sa
d i r e c t l y o n , o r r e l a t e d t o , t h e W a l l itself, a n d p r o p o s e d a
c a t a l y s t f o r u n d e r s t a n d i n g and managing t h e W a l l a s a
s t r a t e g y o fs t r e n g t h e n i n g t o u r i s m u s e o f l a r g e r , c e n t r a l
zone, n o tsimply a narchaeological resource.
sites a l o n g t h eW a l l ( C a r v o r a n , B i r d o s w a l d , C h e s t e r s ,
and Corbridge). W h i l e concentrating o n safeguarding the
190
HADRIAN'S W A L L W O R L D HERITAGE SITE
M a n a g i n g t h e site i n ac o m p r e h e n s i v e a n d
holistic w a yb e c a m e t h e m a j o r challenge. T h e p r i m a r y
v e h i c l e h a s b e e n t h e M a n a g e m e n t P l a n s o f 1996 a n d 2002.
extended, and eventually m o r e than two
hundred
T h e plans dealt w i t h contemporary-use values a n d the
responses were received. M o s t of the concerns were
long-recognized, iconic archaeological and historic values
expressed by the archaeological c o m m u n i t y and by
of the Wall. T h e y have stimulated the development of the
landowners and farmers, often channeled through local
partnership-based management model employed
authorities. T h e overall n u m b e r of responses w a s
today,
not
and in their formulation even embodied such an
large, a n d few w e r e hostile, but specific concerns w e r e
approach.
strongly articulated:
F e a r o fa d d i t i o n a l c o n t r o l s o n f a r m i n g t h r o u g h
CURRENT UNDERSTANDING OF VALUES

T h e c u r r e n t u n d e r s t a n d i n g o f t h e site's v a l u e s is explicitly
represented in the two M a n a g e m e n t Plans. T h e values are
n o t l i s t e d p e r s e i n t h e 1996 p l a n , b u t t h e s i t e ' s h i s t o r i c a l
a n d c o n t e m p o r a r y s i g n i f i c a n c e is w e l l s u m m a r i z e d as fol
l o w s : " T h e H a d r i a n s W a l l c o r r i d o r is i m p o r t a n t . . . b o t h
for the c o n c e n t r a t i o n o f R o m a n sites a n d for their s u r v i v a l
a n d effect o n today's landscape."
4 5
A n articulation of val
u e s is p r e s e n t e d i n t h e s i g n i f i c a n c e o f t h e H a d r i a n s W a l l
Military Zone:
archaeological values of the R o m a n Wall
r e m a i n s , as w e l l as its a s s o c i a t e d f e a t u r e s ( v a l l u m , etc.),
a n d outlier sites (e.g., fortlets a n d S t a n e g a t e features);
the historical values associated with the R o m a n
n o r t h e r n f r o n t i e r a n d its s u b s e q u e n t
influence;
t h e v a r i e d s u r r o u n d i n g l a n d s c a p e a l o n g t h e 80mile length of the Wall;

aesthetic a n d natural values of the surrounding
landscape are also n o t e d briefly; a n d
t h e a d d i t i o n a l l a y e r o f W o r l d H e r i t a g e v a l u e is
described.
Economic and other contemporary values were
n o t explicitly a r t i c u l a t e d as a c o n t r i b u t o r to t h e site's
s i g n i f i c a n c e i n 1996, t h o u g h t h e y a r e t a c i t l y a d d r e s s e d
in plan policies a n d through the partnerships formed.
I n s e c t i o n 3.1, " N e e d f o r a M a n a g e m e n t P l a n , " t h e c e n t r a l
m a n a g e m e n t c h a l l e n g e is c l e a r l y d e f i n e d as i n v o l v i n g
" f o u r m a j o r f a c t o r s w h i c h n e e d t o b e b a l a n c e d " : (1) c o n
serving archaeological resources (and associated land
s c a p e ) ; (2) p r o t e c t i n g t h e w o r k i n g a g r i c u l t u r a l l a n d s c a p e
s u r r o u n d i n g t h e W a l l ; (3) e n s u r i n g p u b l i c a c c e s s f o r v i s i
tors a n d local users, a n d m a k i n g this access sustainable;
a n d (4) r e c o g n i z i n g the i m p o r t a n t c o n t r i b u t i o n s o f the
W a l l to the local a n d regional economies.
A f i r s t - d r a f t p l a n w a s i s s u e d i n J u l y 1995 a n d
generated strong reactions during the public consultation
period, resulting in revisions a n d ap l a n m o r e
responsive
t o t h e c o n c e r n s o fa w i d e r r a n g e o f s t a k e h o l d e r s .
4 6
H u n d r e d s o f c o p i e s o f t h e d r a f t a n d 35,000 s u m m a r y
leaflets w e r e distributed to aw i d e r a n g e o f partners a n d
individuals. T h e three-month consultation period w a s
out aw i d e
zone
Fear of widespread enforced change t o farming

practices
Fear of increased bureaucracy and additional
English Heritage controls
C o n c e r n s o v e r t r a f f i c m a n a g e m e n t o n r o a d B6318
(the Military R o a d )
Fear of impact of tourism and of the National
Trail o n f a r m i n g activities a n d archaeological remains.
E n g l i s h Heritage's response, as c a p t u r e d i n the
revised plan, was described by lead planner Christopher
Y o u n g : " W e r e w r o t e the p l a n [after the public
comment
c y c l e ] a n d m a d e it m o r e a c c e s s i b l e . W e a l s o s p e n t a lot o f
time talking to people a n d groups w i t h concerns. I n the
end, apart
from
the boundaries, there w a s comparatively
little difference i n s u b s t a n c e b e t w e e n t h e policies set o u t

i n 1995 a n d 1996, b u t w e h a d a c h i e v e d b e t t e r u n d e r s t a n d
i n g o f w h a t w a s i n t e n d e d as aresult o f the
process."
consultation
4 7
T h e
final
1996 p l a n a d d r e s s e d t h e p r i m a r y
c o n c e r n s as follows:
It a d o p t e d atiered a p p r o a c h to land-use a n d m o n
u m e n t controls, using n o r m a l ancient m o n u m e n t
powers
for archaeological cores a n d appropriate planning policies

to protect the
setting.
It recognized the n e e d for change in the agricul

tural landscape (not the fossilization of particular f a r m i n g
methods), a n d the development of positive landscape
m a n a g e m e n t o n av o l u n t a r y basis w i t h appropriate grant
support.
It clarified that E H s o u g h t n o additional p o w e r s
in establishing the Co-ordination Unit; the role of the unit
w a s to p r o v i d e afocus o n the W a l l as aw h o l e , as w e l l as
coordination o f efforts a n d c a r r y i n g out o f tasks that did
n o t fall to o t h e r agencies.
It f o r m a l i z e d the b o u n d a r i e s o f the W o r l d
H e r i t a g e Site a n d d e f i n e d its setting.
It p u r s u e d "sustainability" o f t o u r i s m t h r o u g h
w o r k i n g with the H W T P and through maintenance
and
m a n a g e m e n t o f traffic t h r o u g h o u t the region.
191
T h e r e v i s e d 2002 M a n a g e m e n t P l a n i s n o t a
significant departure
from
Current m a n a g e m e n t and policy are clearly
t h e 1996 p l a n ; r a t h e r , i t i s a
focused on the archaeological values and associated
r e f i n e m e n t a n d c o n t i n u a t i o n o f i t . T h e 2002 p l a n i n c l u d e s
h i s t o r i c v a l u e s o ft h e W a l l . S e c o n d a r y t othis, b u t i n t e
a p o i n t - b y - p o i n t a n a l y s i s o ft h e p r o g r e s s a c c o m p l i s h e d
g r a t e d as bases for policy, are the aesthetic values o f the
on
t h e n i n e t e e n o b j e c t i v e s o f t h e 1996 p l a n . A d j u s t m e n t s t o
s e t t i n g a n d t h e e c o n o m i c v a l u e s . T h e l a t t e r is p e r h a p s t h e
"regulatory a n d administrative measures" for putting the
m o s t i m p o r t a n t c o n t e m p o r a r y v a l u e o fH a d r i a n s W a l l
p l a n i n t o effect w e r e c o n s i d e r e d t oh a v e b e e n l a r g e l y
a n d represents ad e p a r t u r e
achieved. F o r the m o s t part, objectives in the area o f con
from
t h e 1996 p l a n .
T h e l a t e s t M a n a g e m e n t P l a n d o e s n o t r e f l e c t all
s e r v a t i o n a n d r e s e a r c h w e r e e s t i m a t e d n o t t oh a v e b e e n
t h e v a l u e s h e l d b y all t h e p a r t n e r s . W h a t a r e r e p r e s e n t e d
a c h i e v e d . Finally, i n t h e a r e a s o fs u s t a i n a b l e t o u r i s m a n d
a r e t h e v a l u e s a n d p o l i c i e s o n w h i c h t h e r e is c o n s e n s u s ,
v i s i t o r access, it w a s d e t e r m i n e d t h a t significant p r o g r e s s
and which have emerged
h a d b e e n m a d e b o t h at specific sites a n d at the W a l l - w i d e
and negotiation that created the multipartner plan. E a c h
scale.
4 8
I n t h e 2002 p l a n , t h e a p p r o a c h t o v a l u e a r t i c u l a t i o n
from
the process o f consultation
o f t h e p a r t n e r o r g a n i z a t i o n s a n d / o r l a n d o w n e r s is l i k e l y
w a s r e v i s e d t os u g g e s t an e w b a l a n c e b e t w e e n h e r i t a g e
to have projects a n d h o l d values that are n o t a c c o u n t e d for
v a l u e s (the b a s i s o fc o n s e r v a t i o n p o l i c i e s ) a n d c o n t e m
in the plan.
porary-use values (the basis for access a n d d e v e l o p m e n t

policies).
E a c h p a r t n e r s e e s m a n a g e m e n t o ft h e site
from
t h e p e r s p e c t i v e o fits p a r t i c u l a r s t a k e i n t h e W a l l a n d its
T h e c o r e s t a t e m e n t o fs i g n i f i c a n c e m a k e s
value priorities. T h e core significance, range o f values,
the
connection b e t w e e n archaeological values a n d their uses,
a n d general policies for the W o r l d Heritage Site are shared
b o t h cultural a n d e c o n o m i c : " [ H a d r i a n sW a l l M i l i t a r y
b y all. A s e x p e c t e d , the v a l u e s are a r r a n g e d a n d p r i o r i t i z e d
Z o n e ] i so fs i g n i f i c a n t v a l u e i n t e r m s o fits s c a l e a n d i d e n
differently b y different p a r t n e r s as e a c h p u r s u e s its g o a l s
tity, t h e t e c h n i c a l e x p e r t i s e o fits b u i l d e r s a n d p l a n n e r s ,
within the M a n a g e m e n t Plan
its d o c u m e n t a t i o n , s u r v i v a l a n d rarity, a n d also i n t e r m s
t h e 2002 b i d f o r S i n g l e R e g e n e r a t i o n B u d g e t ( S R B )
framework.
For example,
o f its economic, educational and cultural contribution to
regional economic development funding highlights eco
today's
n o m i c values. These documents were submitted by the
world."
49
F o l l o w i n g a r e e l e m e n t s o f t h e 2002 S t a t e m e n t
Significance:
of
5 0
H W T P a n d reflect acollective d e c i s i o n b y the

of H W T P (which include EH).
members
5 1
Archaeological and historical values: tightly tied to Roman

period, with some acknowledgment of the nineteenth-
H o w M a n a g e m e n t Policies a n d S t r a t e g i e s
and twentieth-century values created by conservation . . .
Take V a l u e s i n t o C o n s i d e r a t i o n
although the values are clearly centered on the Roman, the

aboveground remains have (almost exclusively) been con
served, consolidated, and restored in situ over the last 150
years.
Natural values: seven key types of habitat are represented
T h i s s e c t i o n d e s c r i b e s h o w t h e e v o l v i n g v a l u e s o ft h e W a l l
have b e e n reflected a n d taken into consideration in the
p o l i c i e s a n d s t r a t e g i e s o ft h e W o r l d H e r i t a g e S i t e M a n a g e
m e n t P l a n s . T h e d i s c u s s i o n is o r g a n i z e d a r o u n d s e v e r a l
types of policies or m a n a g e m e n t issues that provide a per
in the World Heritage Site, many of them recognized as
spective o n the particularchallenges faced b y
significant ecological resources at the national and inter
ment. T h e s e challenges include the setting of boundaries;
national levels.
t h e v a l u e s h i f t s b e t w e e n t h e 1996 p l a n a n d t h e 2002 p l a n ;
Contemporary values: economic, recreational and educa

tional, social and political.
World Heritage values. The rationales for meeting WHC
criteria (ii), (iii), and (iv) stem exclusively from Roman fabric
manage
t o u r i s m s t r a t e g i e s a n d t h e c r e a t i o n o ft h e H W T P ;
agricul
tural policy; a n d the central role of partnerships in m a n

a g e m e n t o ft h e site.
SETTING BOUNDARIES
and associations. [Though stated last, these in fact are at the
B o u n d a r i e s for the site w e r e n o t i n c l u d e d i n the o r i g i n a l
center of articulated values for the Wall and its setting.]
n o m i n a t i o n o fH a d r i a n sW a l l t ot h e W o r l d H e r i t a g e L i s t
i n t h e mid-1980s. T h e b o u n d a r i e s w e r e s e t l a t e r , d u r i n g
f o r m u l a t i o n o f t h e 1996 M a n a g e m e n t P l a n . T h i s l a g g a v e
the multipartner collaboration the opportunity t o g r o w
192
and develop before thecontentious subject o f boundary
Site w o u l d lead to further controls. T h i s issue w a s taken
setting w a s addressed.
u p at senior levels o f g o v e r n m e n t , a n d t h e eventual deci
Primarily boundaries were determined in accord

with theparts o f theWall that h a d been scheduled as
sion o n b o u n d a r i e s w a sm a d e at t h eministerial level.

In t h e end, t h epractical m a n a g e m e n t effect o f
ancient m o n u m e n t s . Secondarily, t h e setting w a s estab
setting t h eb o u n d a r i e s w a sv e r y s m a l l t h e planners' orig
lished as av i e w s h e d o f t h eW a l l resources ( f r o m i t o 6
i n a l c o n c e p t i o n a n d t h e e v e n t u a l r e s u l t a r eq u i t e similar.
k i l o m e t e r s d i s t a n t ) a n da s t h e a r e a s t h a t p o t e n t i a l l y c o n
P s y c h o l o g i c a l l y , t h o u g h , m a n y p e o p l e felt m o r e
comfort
tained significant archaeological resources. T h e resulting
able w i t h a closely d e f i n e d Site a l o n g w i t h ab r o a d Setting,
discussions a n d negotiations revealed t h e different values
w h i c h m i g h t b e easier to alter i nt h e future.
h e l d b y v a r i o u s g r o u p s a n ds t a k e h o l d e r s .
Disagreements
arose w i t h local authorities o rl a n d o w n e r s about specific

properties t o b e i n c l u d e d i nt h e setting, a n dstrategic deci
sions h a dto b e m a d e to exclude particularagricultural,
t o w n , o r other lands lest l a n d o w n e r s perceive e v e n m o r e
regulatory controls and reviews were being
imposed.
T h e 1995 d r a f t p l a n p r o p o s e d b o u n d a r i e s t h a t
approximated roughly thearea n o wdefined asthe Setting
o f t h eW o r l d H e r i t a g e Site. A l s o p r o p o s e d , m o r e
tenta
tively, w a st h e i n c l u s i o n o f aw i d e z o n e d o w n t h e C u m
brian coast, d o w n t h en o r t h coast o f t h e S o l w a y estuary,
a n d t h r o u g h alarge area o f t h e T y n e River valley a r o u n d
Corbridge and north o f H e x h a m . This reflected a n
a p p r o a c h that v i e w e d t h eW o r l d Heritage Site v e r y m u c h
as acultural landscape.
I n p r a c t i c a l t e r m s , t h e 1995 d r a f t p l a n p r e s e n t e d
a tiered a p p r o a c h to t h e m a n a g e m e n t o f this b r o a d l y
d e f i n e d site. T h e i n n e r m o s t tier, t h e a r c h a e o l o g i c a l c o r e ,
would b e protected b ypowers under ancient
monuments
legislation since it consisted o f s c h e d u l e d sites only, w h i l e

d e v e l o p m e n t s i n t h e o u t e r p a r t o f t h e site w o u l d b e c o n
trolled through planning policies i nlocal authority plans.
T h i s w a seffectively t h eposition reached, after exhaustive
p u b l i c c o n s u l t a t i o n , i n t h e 1996 p l a n a t i g h t l y
defined
S i t e c o m p o s e d o f t h e a r c h a e o l o g i c a l c o r e a n da S e t t i n g
u n d e r l o c a l c o n t r o l . T h ee n dr e s u l t w a s v i r t u a l l y t h e s a m e .
S o m e a r g u e d i n t h e 1995-96 p u b l i c d i s c u s s i o n s
that t h eW o r l d Heritage Site s h o u l d n o tb e c o n c e r n e d
w i t h t h e l a n d s c a p e as aw h o l e since that l a n d s c a p e is n o t
R o m a n and therefore n o to f outstanding universal value.
T h i s a r g u m e n t d i d n o t w i no u t ,o w i n g t o t h e l o g i c t h a t
the W a l l is w h e r e it isb e c a u s e o f t h e landscape a n d h a s
greatly influenced thedevelopment o f thelandscape since
its c o n s t r u c t i o n .
T h e m o s t powerful arguments offered regarding
boundaries were n o tabout thecultural value o f the land
scape, b u trather about t h epotential i m p a c t o n m o d e r n
5 2
FROM T H E 1996 PLAN TO T H E 2002 PLAN

T h e r e a r es o m e s u b t l e b u tsignificant differences
between
t h e 1996 a n d 2002 M a n a g e m e n t P l a n s , w h i c h r e f l e c t o n t h e
c o n t i n u i n g e v o l u t i o n o f site values.
Conceptually, over t h e course o f this period,
focus shifted f r o m t h eMilitary Z o n e to "theW a l l a n d its
Setting." A l t h o u g h t h en o t i o n o f H a d r i a n sW a l l as a land
scape and n o tsimply as a narchaeological resource w a s
i n d i c a t e d i n t h e 1995 d r a f t a n d t h e 1996 p l a n , t h i s c e n t r a l
i d e a i s m u c h m o r e e v i d e n t i n t h e 2002 p l a n . T h i s s h i f t
reflects ab r o a d e n i n g o f t h e t y p e s o f v a l u e s t o w a r d a
g r e a t e r i n c l u s i o n o f a e s t h e t i c a n dc o n t e m p o r a r y v a l u e s
o f t h ew i d e r setting landscape. Italso w a saresponse t o
the F M D disaster a n d itsi m p a c t o n t h evalues o f t h e
W o r l d H e r i t a g e Site. I naddition, it s y m b o l i z e d a m o v e
t o w a r d ab r o a d e r - s c a l e a n d m o r e holistic a p p r o a c h t o
p l a n n i n g . O n ec o u l d s a yt h a t t h e o l d e r m o d e l o f p l a n n i n g
for a n archaeological resource h a d b e e n replaced b y a
m o d e l o f p l a n n i n g f o raliving landscape that counts t h e
1 1 8 - k i l o m e t e r (73-mile) a r c h a e o l o g i c a l r e s o u r c e
among
its d e a r e s t e l e m e n t s .
Access, tourism revenue, tourism impact, agricul
t u r a l v i a b i l i t y , a n de c o n o m i c d e v e l o p m e n t i s s u e s t h a t
f o r m t h esocial context o f conserving t h e W a l l h a v e
b e e n d i s c u s s e d a n d d e b a t e d s i n c e t h e 1970s. T h e M a n a g e
m e n t Plans have g r o w n progressively m o r e detailed a n d
proactive i ndealing w i t h these diverse issues that consti
tute t h esocial context o f t h eW a i f s conservation, a n d
integrating t h e m with them o r e heritage-centered values
a n d i s s u e s . T h e v a l u e s a r t i c u l a t e d i n t h e 2002 p l a n m o r e
explicitly recognize t h ei m p o r t a n c e o f contemporary-use
v a l u e s . C o r r e s p o n d i n g l y , t h e p o l i c i e s a r em o r e
strongly
s h a p e d b y c o n t e m p o r a r y v a l u e s i n t h e 2002 p l a n , t h o u g h
not at t h e sacrifice o f heritage values ( w h i c h already w e r e
w e l l a r t i c u l a t e d i n t h e 1996 p l a n ) .
T H E C E N T R A L R O L E OF PARTNERSHIPS
land m a n a g e m e n t a n d t h einterests a n d freedoms o f cur
R e c o g n i t i o n a n de n g a g e m e n t o f m a n y d i v e r s e s t a k e
rent l a n d o w n e r s . T h e r e w a sw i d e s p r e a d c o n c e r n that for
h o l d e r s a r ek e yt o v a l u e s - b a s e d m a n a g e m e n t . T h e
m a l l y designating s u c h alarge area as aW o r l d H e r i t a g e
H a d r i a n s W a l l p l a n s a r ei n c l u s i v e i n t h i s r e g a r d , t a k i n g
193
into consideration the interests of future generations, o f
m e n t a n d its benefits, a n d t o o o f t e n f o c u s e d o n
the w o r l d at large (universal value), o farchaeologists
m e n t s r a t h e r t h a n w h o l e l a n d s c a p e s a n d is a l i g n e d w i t h
researchers, o f tourists a n d visitors, a n d o f
and
government,
landowners, farmers, and local communities.
Develop
m e n t a n d implementation of m a n a g e m e n t policies have

relied strongly o n the formation of institutional partner
monu
similar efforts in other countries s e e k i n g to m a n a g e
large
heritage resources, complexes, or landscapes (for e x a m

ple, F r e n c h regional p a r k s a n d A m e r i c a n heritage areas).
T h r o u g h partnering and overlapping of responsi
ships, w i t h the H W C U , H W T P , or the C o u n t r y s i d e
bilities, the site's v a l u e s h a v e b e e n w e l l a c k n o w l e d g e d i n
A g e n c y playing the coordinating roles. A t o n e level, this
both depth and breadth. This acknowledgment
r e g i m e o f p a r t n e r s h i p s is a s t r a i g h t f o r w a r d r e s p o n s e t o
c o m e s m o r e easily w h e n the partners have diverse inter
the decentralized patterns o fownership and stewardship
ests a n d values t h a n in a case o fcentralized o w n e r s h i p
in the territory o f the Site a n d S e t t i n g n a m e l y the
and management. F o r instance, s o m e partnerships focus
h u n d r e d or so o w n e r s a n d dozens of g o v e r n m e n t
seven
and
probably
o n archaeological values, others o n natural values or

recreational use. W i t h these collaborations spread out
n o n p r o f i t a g e n c i e s w i t h a s t a k e i n t h e site.
Fragmented landownership remains a prevalent
a c r o s s t h e r e g i o n , a critical t a s k f o r m a n a g e m e n t is o n e
pattern. U n d e r the current partnership regime, there is
coordination. T h e Wall's status as aW o r l d H e r i t a g e Site
n o s i n g l e m a n a g e r f o r t h e w h o l e s i t e , b u t r a t h e r a fluid b u t
plays a n anchoring role, keeping archaeological values,
fairly stable g r o u p o forganizations led b y a s m a l l core o f
a n d historic value related to the R o m a n archaeology, a s
coordinating partners.
5 3
T h i s h a s b e e n called a
partnership
of
the focus o fall efforts. S u c h b u y - i n o n " R o m a n " v a l u e s
park m a n a g e m e n t m o d e l , i n c o n t r a s t t o t h e t r a d i t i o n a l
brings together all the s t a k e h o l d e r s n o t just the partners
m o d e l o f u n i f i e d site o w n e r s h i p .
for w h i c h W a l l - w i d e value understanding a n d m a n a g e
5 4
T h e core group
partners per force spends agreat deal o fenergy

the partnerships. T h e s e partnerships provide
beyond those that w o u l d accrue
from
of
managing
benefits
individual partners
benefits are seen as o u t w e i g h i n g the costs holds true e v e n

for s o m e individual partnersforemost, the V i n d o l a n d a
T r u s t w h o disagree w i t h s o m e of the m a i n policies
Plan.
B y m a k i n g it a p r i o r i t y t oc o o r d i n a t e a n d inte
grate the actions o f p a r t n e r s at all g e o g r a p h i c levels, the
M a n a g e m e n t P l a n s e r v e s t h e range o f t h e l a n d s c a p e ' s v a l
u e s w e l l . O n e r i s k o f s u c h a l a r g e p a r t n e r s h i p p a r k is t h a t
of uncoordinated action, w h i c h not only can
damage
resources a n d threaten values directly but also c a n send a

m e s s a g e t h a t t h e e n t i r e p a r t n e r s h i p is n o t f u l l y s u p p o r t e d
b y all partners. M a i n t a i n i n g a spirit o fcooperation
p a r t n e r s ' u l t i m a t e d e f e r e n c e t ot h e v a l u e s o f t h e
site, as d i s c u s s e d a n d r e c o r d e d i n t h e M a n a g e m e n t
and
whole
Plan,
is c e n t r a l t ot h e s u c c e s s o f t h e p a r t n e r s h i p .
T h e overriding goal of the Hadrian sWall part
n e r s h i p s h a s b e e n t oc r e a t e a b a l a n c e d p r o g r a m o f c o n s e r
vation a n d development, as evidenced in the collaboration
o f three different o r g a n i z a t i o n s l e a d i n g the effort: E H , a
conservation-driven agency; the H W T P , primarily an
economic development agency; and the Countryside
Agency, astatutory agency involved in m a n y countryside
issues a n d in developing the H a d r i a n sW a l l P a t h National
T r a i l . T h i s is a d e p a r t u r e
from
traditional conservation
p r a c t i c e w h i c h generally resisted or ignored
194
mandates, national government, and World Heritage

stakeholders.
acting alone and without coordination. That these
guiding the M a n a g e m e n t
m e n t is t h e p r i m a r y g o a l , b u t also l o c a l a u t h o r i t i e s , i n d i
v i d u a l h e r i t a g e sites, g o v e r n m e n t a g e n c i e s w i t h d i v e r g e n t
develop
TOURISM STRATEGY
T o u r i s m d e v e l o p m e n t activities a n d the e c o n o m i c
values
realized by tourism play astrong but not primary role in

site m a n a g e m e n t . T h e l e a d i n g t o u r i s m s t r a t e g y p u r s u e d
has been spearheaded by the tourism development
agency
H W T P . T h e H W T P is itself a p a r t n e r s h i p , w i t h a n e x e c u
tive a n d m o r e t h a n a d o z e n f u n d e r s a n d p a r t n e r s (govern
m e n t agencies, local councils, a n d others). T h e
agency
s e e k s t oi n c r e a s e t h e e c o n o m i c b e n e f i t s a n d s u s t a i n a b l e
uses o f the heritage resources a n d other amenities avail
able t o visitors.
S i n c e i t s f o r m a t i o n i n 1993, t h e H W T P ' s
efforts
have been closely coordinated w i t h those of the
H W C U
a n d other W a l l - r e l a t e d entities, as reflected i n the M a n a g e

ment Plan.
5 5
This integration of tourism and
activities is e v i d e n t i n t h e list o f H W T P
management
objectives:
T o develop ahigh quality tourism product w h i c h

meets the needs of identified target markets, within the
overall objectives of the W o r l d Heritage M a n a g e m e n t Plan;
T o generate a n d spread benefits for businesses in
the area, b y i m p r o v i n g c o m m u n i c a t i o n a n d access t o
markets, attracting m o r e high spending domestic
and
overseas visitors, a n d developing the 'shoulder' seasons;
T o e n c o u r a g e m o r e p e o p l e t ol e a v e t h e i r c a r s at
AGRICULTURAL POLICY, VALUES, AND USES
h o m e a n d t ot r a v e l i n t o a n d a r o u n d t h e a r e a b y p u b l i c
T h e p r a c t i c e o fa g r i c u l t u r e a n d a g r i c u l t u r a l p o l i c y h a s
transport a n d other m e a n s s u c h as cycling a n d w a l k i n g ;
a significant effect o n the H a d r i a n sW a l l landscape a n d

its m a n a g e m e n t , e s p e c i a l l y i n t h e c e n t r a l s e c t i o n s o f t h e
T o stimulate visitor interest in, a n d support

for, t h e m a n a g e m e n t a n d c o n s e r v a t i o n o ft h e W o r l d
site. A g r i c u l t u r e h a s s h a p e d t h e l a n d s c a p e for c e n t u r i e s
H e r i t a g e Site;
and plays an exceedingly important role in the regional
T o influence visitor b e h a v i o u r , t os p r e a d the l o a d
economy, rivalingtourism and tourism-related develop
i n s u p p o r t o fa g r e e d site m a n a g e m e n t o b j e c t i v e s , t o m a x
m e n t as the m o s t i m p o r t a n t c o n t e m p o r a r y - u s e values
imise benefits a n d minimise any adverse impacts o n
in the Setting.
host
community
the
T h e 2002 p l a n r e c o g n i z e s t h e
interdependency
between agriculture and heritage conservation. A s part of
T h e agency engages in traditional marketing

activities a n d plays a n i m p o r t a n t part in regional b r a n d i n g
t h e a r t i c u l a t i o n o fc o n t e m p o r a r y v a l u e s , t h e p l a n s state
a n d identity for both the Northeast a n d the
m e n t o fs i g n i f i c a n c e n o t e s t h e c o n t r i b u t i o n o f a g r i c u l t u r e
Northwest
(two governmental regions across w h i c h H W T P ' s
w o r k
to the W o r l d H e r i t a g e Site's e c o n o m i c
values.
6 0
Sustaining agriculture, difficult in itself given eco
s p a n s ) . It w o r k s w i t h l o c a l b u s i n e s s e s t oi m p r o v e t h e i r
u n d e r s t a n d i n g a n d c o n n e c t i o n s w i t h the site a n d also
n o m i c p r e s s u r e s a n d g l o b a l i z a t i o n , is y e t m o r e c o m p l e x i n
organizes the Wall-wide bus service.
t h e c o n t e x t o ft h e W o r l d H e r i t a g e S i t e . T h e m a i n t e n a n c e
5 7
T h e H W T P ' s i n v o l v e m e n t reflects the
attitude
that tourism values m u s t be integrated w i t h heritage val

ues. T h e agency takes the lead in tourism p r o m o t i o n
Wall-based economic regenerationwithin the
and
frame
o f t r a d i t i o n a l a g r i c u l t u r e ( e s p e c i a l l y p a s t u r a g e ) is a p o w e r
ful lever for m a n a g i n g the landscape, w h i c h has b e c o m e
a n i n c r e a s i n g l y v a l u e d p a r t o ft h e site, a s w e l l a s f o r c o n
s e r v i n g t h e a r c h a e o l o g i c a l r e s o u r c e s o ft h e W a l l itself.
w o r k o f the Site's c o n s e r v a t i o n m a n d a t e . It h a s l a u n c h e d
G r e a t aesthetic a n d historic v a l u e lies i n the l a n d s c a p e o f
a w i d e v a r i e t y o fs u c c e s s f u l s e r v i c e s a n d i n i t i a t i v e s ( f r o m
pasturage, stone walls, and sheep. Likewise, agricultureis
the a f o r e m e n t i o n e d b u s service t oaW e b site t o w i n n i n g
essentially a n e c o n o m i c activity, a n d e c o n o m i c
a n d administering alarge g o v e r n m e n t grant for tourism-
o n agriculture are addressed by an u m b e r of
l e d r e g i o n a l e c o n o m i c r e g e n e r a t i o n ) t ow o r k t o w a r d t h e s e
p r o g r a m s , s u c h as the C o u n t r y s i d e S t e w a r d s h i p S c h e m e ,
g o a l s , o p e r a t i n g o n t h e i d e a t h a t " h e r i t a g e is a d r i v e r o f
w h i c h provides grants a n d advice o n diversification.
e c o n o m i c regeneration." W h a t sets the H W T P

from
apart
o t h e r t o u r i s m a g e n c i e s is its c l o s e p a r t n e r s h i p w i t h
E H a n d its full b u y - i n t ot h e M a n a g e m e n t P l a n , i n c l u d i n g
the primacy of heritage conservation.
T h r o u g h its o b j e c t i v e s a n d activities, t h e
pressures
government
F a r m e r s t e n d t osee c o n s e r v a t i o n a n d t o u r i s m
a s c o s t s t ob e a r , a n d e v e n a s a t h r e a t t o e c o n o m i c s u s t a i n
ability. N e v e r t h e l e s s , t h e y a r e p a r t n e r s i n m a n a g i n g t h e
site as aheritage place. D E F R A ' s C o u n t r y s i d e S t e w a r d s h i p
H W T P
S c h e m e is o n e p r o g r a m u s e d t om a n a g e t h e t h r e a t s a n d
defines a n d p u r s u e s w h a t the M a n a g e m e n t P l a n calls sus-
o p p o r t u n i t i e s o fc h a n g i n g a g r i c u l t u r a l p r a c t i c e s a n d t h e i r
t a i n a b i l i t y Sustainable,
effect o n heritage places. T h e s c h e m e gives grants t o
as d e f i n e d b y t h e H W T P a n d its
W o r l d H e r i t a g e Site partners, m e a n s (i) staying w i t h i n the
f a r m e r s t oe n c o u r a g e the c o n s e r v a t i o n o f l a n d s c a p e a n d
overall (conservation) objectives of the W o r l d Heritage
ecological values. F o r example, b y helping start farm-stays
S i t e a n d (2) b a l a n c i n g t h e p u r s u i t o f t h e v a r i o u s v a l u e s
i n s t e a d o fc o n v e r t i n g p a s t u r a g e t ot i l l e d l a n d o r f o r e s t r y ,
recognized in the plan, both c o n t e m p o r a r y a n d historic.
stewardship grants help farmers m a n a g e their land t o con
A s t h e M a n a g e m e n t P l a n states o n its v e r y first p a g e , it is
serve valued environments a n d cultural features while
"to p r o v i d e a m e a n s for e s t a b l i s h i n g a n a p p r o p r i a t e bal
diversifying operations t oachieve greater financial stabil
a n c e b e t w e e n t h e n e e d s o fc o n s e r v a t i o n , a c c e s s , s u s t a i n
ity. T h e site is a t a r g e t a r e a f o r t h i s n a t i o n a l p r o g r a m , a n d
a b l e e c o n o m i c d e v e l o p m e n t , a n d t h e i n t e r e s t s o ft h e l o c a l
applicants
community."
5 8
I n d e e d , s u s t a i n a b i l i t y is a n c h o r e d i n v a l u e s :
from
w i t h i n the area receive preferential treat
m e n t . A n o t h e r b e n e f i t is t h e b a r n s c h e m e , t h r o u g h w h i c h
'A n u n d e r l y i n g p r i n c i p l e [ o f t h e p l a n ] i s t h a t o f ' s u s t a i n
f a r m e r s s e c u r e g r a n t s t oc o n s t r u c t b a r n s that are a p p r o
ability' w h i c h strikes ab a l a n c e b e t w e e n m a x i m i s i n g
p r i a t e t ot h e a e s t h e t i c v a l u e s o ft h e l a n d s c a p e a n d t h a t
e n j o y m e n t a n d u s e o ft h e W H S w h i l e still p r e s e r v i n g t h e
a l l o w t h e m t oshelter s t o c k d u r i n g w i n t e r a n d therefore
v a l u e s a n d f a b r i c o ft h e S i t e a n d its S e t t i n g a n d e n s u r i n g
manage am o r e lucrative operation. This p r o g r a m was
t h a t t h e i r u n i v e r s a l s i g n i f i c a n c e is n o t i m p a i r e d f o r f u t u r e
strongly promoted by Northumberland National Park
generations."
a n d is a g o o d e x a m p l e o f w h a t c a n b e a c h i e v e d t h r o u g h
5 9
UNDERSTANDING A N D PROTECTING
T H E VALUES
195
p a r t n e r s h i p ; i n d e e d , s u c h ap r o g r a m w o u l d n o t h a v e
created by any one organization working
been
independently
Foot a n d M o u t h Disease:
The Effects o f E x t e r n a l Forces
H e r i t a g e p r o t e c t i o n is a n i m p o r t a n t p u b l i c g o o d ,
a n d restricting s o m e of the rights of private property
T h e agriculturale c o n o m y and pastoral land
h o l d e r s is ar e a s o n a b l e t r a d e - o f f f o r g u a r a n t e e i n g p u b l i c
access to heritage. Heritage conservation o f a n y k i n d thus
has s o m e perceived disadvantages, for instance, the con
straints that m o n u m e n t scheduling m i g h t impose o n
use of one's land. Although W o r l d Heritage
free
designation
b r i n g s a d v a n t a g e s to s o m e f a r m e r s , o t h e r s see it as f u r t h e r
constraint.
T h e F M D c r i s i s o f 2001 r e d u c e d f a r m i n g i n c o m e s
s o m e 60 p e r c e n t i n t h e r e g i o n a n d p u s h e d a g r i c u l t u r a l v a l
ues to the forefront.
6 1
T h e i m p a c t o n tourism, access, a n d
the regional e c o n o m y a l o n g w i t h the direct threat to

a g r i c u l t u r e s h a p e d t h e c r e a t i o n o f t h e 2002 p l a n . T h e
2002 p l a n t a k e s a g r i c u l t u r a l v a l u e s i n t o c o n s i d e r a t i o n
more
seriously, g i v e n t h a t it w a s w r i t t e n w h e n this r e g i o n w a s
recovering a n d r e s p o n d i n g to the F M D disaster. E v e n
though the decimation of animal stocks threatened the
v e r y p r a c t i c e o f p a s t u r a g e i n t h e s e p l a c e s , t h e crisis is
thought to have accelerated the pressures o n agriculture
b u t not to have c h a n g e d t h e m fundamentally. E c o n o m i c
pressures o n f a r m i n g will continue to spur diversification,
changes in ownership (both
fragmentation
and amalgama
scape that predominate m u c h of the central

section of the Wall are important contributors
to c o n t e m p o r a r y values o f the W o r l d Heritage
Site a n d its setting. T h e s e c a m e u n d e r d i r e c t
t h r e a t i n 2001 w i t h t h e o u t b r e a k o f f o o t a n d
m o u t h disease ( F M D ) a m o n g livestock popula
t i o n s i n t h e U n i t e d K i n g d o m . F M D is a v i r a l
d i s e a s e t h a t is d e a d l y to s o m e l i v e s t o c k a n d
other m a m m a l s , i n c l u d i n g cattle, sheep, pigs,
goats, a n d deer. T h e outbreak h a d disastrous
1
e c o n o m i c effects in the area o f H a d r i a n s W a l l ,

a l o n g w i t h an u m b e r o f s e c o n d a r y effects o n
the values and m a n a g e m e n t of other
aspects
o f t h e site.
tion o f farms), a n d conversion o f f a r m l a n d to other uses

altogether.
T h e F M D crisis effectively closed large areas
A t the regional scale a n d in the long-view
time
frame, the interrelationship between agricultural policy
a r o u n d the W a l l for m o n t h s . It dealt a m a j o r
a n d m a n a g e m e n t o f t h e W o r l d H e r i t a g e Site is e v i d e n t i n
b l o w to the agricultural a n d t o u r i s m
s e v e r a l w a y s . C o n s i d e r as c e n a r i o i n w h i c h a g r i c u l t u r e
c e a s e d to b e v i a b l e i n its t r a d i t i o n a l m o d e s : o p e n l a n d
economies of the region and has h a d lasting
w o u l d likely revert to s c r u b o r forest, vastly c h a n g i n g the
effects o n the s u r r o u n d i n g c o m m u n i t i e s
and
a e s t h e t i c o f t h e l a n d s c a p e a n d t h e p e r c e p t i o n o f its v a l u e s .
Or, consider the wholesale transfer o f pasture l a n d to cul
landscape. C u m b r i a w a s the county hardest
t i v a t i o n ( a l t h o u g h it is u n l i k e l y f o r r e a s o n s o f c l i m a t e a n d
h i t : ' A p p r o x i m a t e l y 80% o f f a r m s w i t h i n t h e
soil). T h i s w o u l d result i n potentially d a m a g i n g effects o f

p l o w i n g o n several k i n d s o f site values, physically disturb
W o r l d H e r i t a g e Site a n d its s e t t i n g h a d t h e i r
ing archaeological remains, accelerating erosion, and,
stock destroyed."
Visitor traffic to m u c h o f
again, changing the look of the landscape.

In the end, economic decisions of individual
f a r m e r s m u s t b e reconciled w i t h local effects as w e l l as
t h e site c a m e to av i r t u a l h a l t as p a r t s o f t h e
c o u n t r y w e r e q u a r a n t i n e d , a l t h o u g h s o m e sites
r e g i o n a l effects, n o t o n l y o n the W a l l a n d Setting b u t also

o n e n v i r o n m e n t a l / e c o l o g i c a l values. A t the local level,
along the Wall remained open. Fear and nega
coordinated conservation of archaeological resources,
tive p e r c e p t i o n k e p t p e o p l e a w a y p e r h a p s as
ecological resources, and economically robust agricul

t u r a l p r a c t i c e s is difficult f o r s o f e w staff to
manage.
196
m u c h as the actual closures did.
Assisting farmers and rescuing the agricultural
a n d m a n a g e m e n t o f t h e site. F o r d e c a d e s
economy and landscapea fundamental part
W a l l h a d p r o v i d e d e c o n o m i c v a l u e as a tourist
of the W o r l d Heritage Setting and perhaps
attraction; balancing this w i t h conservation
k e y c o n t r i b u t o r to its w i d e l y p e r c e i v e d
thetic v a l u e w e r e the necessary,
the
heritage values w a s the central challenge
aes
immediate
responses to the crisis. I n the l o n g e r
the
F M D heightened partners' perceptions of
the
for
planning a n d m a n a g e m e n t . T h e external force

o f F M D threatened this balance b y
term,
of
focusing
attention o n economic values. T o u r i s m (which
importance of agriculture in managing
the
s u f f e r e d i t s o w n 40 p e r c e n t d r o p i n a c t i v i t y i n
landscape. Farmers, w h o are important
stew
the aftermath of the outbreak)
became
ards of historic a n d aesthetic values, are eco
identified m o r e fully as the " r e p l a c e m e n t "
n o m i c operators and key participants in the
n o m i c development strategy for agriculture,
p r o d u c t i o n a n d e n j o y m e n t o f t h e site's c o n
m u c h as it h a d b e e n f o r i n d u s t r y a g e n e r a t i o n
t e m p o r a r y values. T h u s , threats to their liveli
earlier. C o n s e r v a t i o n o f cultural values
h o o d translated into threats to their steward
n o t directly u n d e r m i n e d b y the F M D crisis,
ship roles: if they c o u l d n o longer f a r m ,
t h o u g h d a m a g e s to the t o u r i s m e c o n o m y
h o w
eco
was
high
w o u l d that i m p a c t the m a n a g e m e n t o f the site?
lighted the vulnerability of the cultural sector
A n e w agricultural farming economy based
to fluctuations in t o u r i s m - m a r k e t revenue.
tillage o r forestry instead o f pasturage, o r
on
n e w
T h e most relevant lesson was learned

kinds of commercial or industrial
through
development
the difficulty e n c o u n t e r e d in r e s p o n d i n g to this
s e e n as alternatives to pasturage, c o u l d drasti

k i n d o f " s l o w - b u r n " disaster, given the
cally affect the c h a r a c t e r o f the setting.
m u c h
T h e
decentralized p o w e r structure of the partner
Countryside Stewardship Scheme,
developed
ship. A q u i c k a n d sure response w a s
hindered
by the D e p a r t m e n t of Environment, Food, and

Rural Affairs ( D E F R A ) , has been
addressing
these types of transitions for adecade,
but
F M D dramatically emphasized h o w serious
the
effects c o u l d be.
T h e F M D crisis also highlighted the i m p o r

tance of t o u r i s m to the regional
e c o n o m y
particularly in rural areas along the W a l l a n d

the relationship between agricultural practices
Visitation to major sites near Hadrian's Wall. There was a significant

decrease in the number of visitors as a result of foot and mouth
disease affecting the area during 2 0 0 0 - 2 0 0 1 . However, the number
of visitors increased quickly once the crisis had passed.
197
b y the need for consultation a n d coordination
agriculture as w e l l as for heritage t o u r i s m , the
a m o n g the partners. This factor w o u l d also
heritage v a l u e s o f the site a n d setting w e r e
c o m e into play in the w a k e of similar natural
p r o t e c t e d . T h e b a s i c s t r u c t u r e o f t h e site's
disasters, e n v i r o n m e n t a l accidents, or eco
m a n a g e m e n t regimeflexible policies a n d a
n o m i c dislocations. T h o u g h the F M D disaster
w i d e latitude for the actions of individual part
is still q u i t e r e c e n t a n d a d j u s t m e n t s a r e still
ners, held together b y am u t u a l
being m a d e by landowners, organizations,
to a c o m m o n core o f v a l u e s a l l o w e d partici
communities, a n d other groups, afew insights
pants to r e s p o n d the w a y they did. A t the
can be drawn
time, the decentralized partnership structure
from
the experience.
commitment
same
prevented aswifter response. T h e n e e d for

T h e 2002 M a n a g e m e n t P l a n w a s g r e a t l y
partners to act in concert a n d i n f o r m one
i n f l u e n c e d b y t h e fact t h a t it w a s w r i t t e n d u r
another takes time a n d resources. C o m i n g to
ing the F M D recovery periodillustrating that
an agreement o n novel, contentious,
unex
t h e c o n d i t i o n s u n d e r w h i c h a p l a n is f o r m u
pected issues also causes delays. T h e r e w a s
l a t e d h a v e a s t r o n g i m p a c t o n it. T h e e m p h a s i s
m u c h debate, for instance, o n the pros a n d
o n economic recovery and, consequently,
on
cons of w h i c h W a l l venues w o u l d stay o p e n
contemporary-use values has been the most

d u r i n g the crisis. A n d a g r e a t d e a l o f effort w a s
o b v i o u s i m p a c t o f t h e F M D crisis. P l a n n e r s a n d
put into informational campaigns a n d discus
partners have participated a n d continue to par
sions a m o n g agencies a n d institutions, w h i c h
ticipate in determining the adjustments n e e d e d
helped foster am u t u a l understanding b e t w e e n
to find an e w balance o f diversified, sustainable
institutions w i t h v e r y different m a n d a t e s a n d
agriculture that d o e s n o t h a v e adverse effects
m i s s i o n s (e.g., D E F R A , H W T P , i n d i v i d u a l
o n t h e h e r i t a g e r e s o u r c e s o f t h e site.
f a r m e r s , a n d heritage site operators).
This balance of values has changed in response
Brought on by F M D , the heightened
awareness
to the F M D tragedy a n d the resulting stresses

of the connection between agricultural
o n the Hadrian sWall landscape and
use/policy a n d m a n a g e m e n t of the Wall and
stakeholders. T h e M a n a g e m e n t Plan goals
setting has b e e n alearning experience for the
remain focused o n sustainable
management
m a n a g e m e n t group of the Hadrian s Wall
w h i c h is to say, d e v e l o p m e n t w i t h i n a c o n s e r v a
W o r l d H e r i t a g e Site. M a n a g e m e n t has a c c o m
tion
frameworkbut
this sustainability has

m o d a t e d a shift t o w a r d e m p h a s i z i n g the eco
been redefined by F M D . B y bolstering the

n o m i c values of the Wall in the context of
e c o n o m i c use of the landscape for diversified
198
conserving the core heritage values. In the
n e w
c l i m a t e , t h e f o c u s is n o w o n t o u r i s m r a t h e r
t h a n o n the crippled agricultural sector.
Notes
I m p a c t o f M a n a g e m e n t Policies
a n d Decisions o n t h e Site's V a l u e s
a n d Their P r e s e r v a t i o n
This section outlines s o m e of the impacts that the
Man
a g e m e n t Plans, policies, a n d decisions have h a d o n
the
site's v a l u e s . T h e d i s c u s s i o n h i g h l i g h t s m a j o r i n n o v a t i o n s
of, a n d l e s s o n s l e a r n e d
from,
t h e H a d r i a n sW a l l experi
ence a n d identifies issues relevant to m a n a g e r s o f similar

1.
Accessed at http: / / www.defra.gov.uk/footandmouth/

about/index.htm (5 April 2003).
2.
Accessed at http: / / www.24hourmuseum.org.uk/nwh/

ART13762.html (10 July 2003).
sites a n d projects. I n reality, o f c o u r s e , the effects o f the

site's m a n a g e m e n t e x t e n d b e y o n d w h a t is c o v e r e d h e r e .
T h e topics selected for discussion in this section are the
impact of W o r l d Heritage designation o n values; the bal
ance between the values of the Wall and the values of the
w i d e r landscape; the effects o f the partnership-driven
m o d e l of management; and the nature of
Management
Plan policies.
IMPACT OF WORLD HERITAGE DESIGNATION
ON VALUES
W o r l d Heritage designation has reinforced, and even
h e l p e d e x p a n d , t h e v a l u e s o f H a d r i a n sW a l l . It h a s g e n e r
a t e d p l a n n i n g p r o c e s s e s that h a v e e n g a g e d afull r a n g e o f
values and integrated these into the m a n a g e m e n t of the
s u r r o u n d i n g l a n d s c a p e . A s ap o l i c y d e c i s i o n t a k e n b y t h e
government, the W o r l d Heritage nomination has directly
affected the perception a n d assessment of the values of
this l a n d s c a p e a n d its r e s o u r c e s . I n p r i m a r y w a y s , it h a s
clearly a r t i c u l a t e d t h e site's " u n i v e r s a l v a l u e , " a n d i n m y r
i a d s e c o n d a r y w a y s it h a s p r o m p t e d v a l u e
planning, and management
assessment,
action.
W o r l d H e r i t a g e status functions as b o t h a con

s e r v a t i o n s t r a t e g y a n d am a r k e t i n g s t r a t e g y a n d f u r t h e r s
the efforts o f existing local, regional, a n d national bodies.
It d o e s so b y c r e a t i n g t h e m e c h a n i s m s for W a l l - w i d e
management through partnerships, w h i c h have resulted
in aseries o f affirmative relationships a n d
development
opportunities, while reinforcing existing statutory con

trols a n d refraining f r o m i m p o s i n g additional ones.
B y adding a n explicit layer of universal value,
W o r l d Heritage status continues the
decades-long
evolution of the understanding and m a n a g e m e n t

t h e W a l l a n d its l a n d s c a p e . It facilitates m o v i n g
of
from
n a r r o w focus o n the R o m a n archaeological remains t o

a m o r e holistic, e n c o m p a s s i n g v i e w o f the heritage
v a l u e s . B e c a u s e it h a s e n a b l e d a n d f o s t e r e d r e g i o n a l
cooperation, World Heritage designation has indeed
added value in each of the categories articulated in the
Management
Plan.
199
T h e m a n a g e m e n t p l a n n i n g activities have
resulted in ab r o a d articulation of the values of Site a n d
S e t t i n g (i.e., i n c l u d i n g n a t u r a l , c o n t e m p o r a r y , a n d n o n -
Limits of Acceptable Change

Conference
R o m a n cultural values along with the core R o m a n / u n i

versal values). B y institutionalizing the
connection
b e t w e e n t h e m a n a g e m e n t o f t h e s i t e and t h e
A n u m b e r of resource-, project-, a n d place-
setting,
W o r l d H e r i t a g e status h a s r e i n f o r c e d the v a l u e s o f the liv

ing landscape, s u c h as e c o l o g y a n d nature, visual qualities,
and contemporary use.
T h e designation has also b r o u g h t prestige to the
W a l l and probably helped attract the substantial
amounts
o f g o v e r n m e n t f u n d i n g d e v o t e d to projects at the site
specific plans have b e e n initiated u n d e r the

rubric of the M a n a g e m e n t Plan, including a
local interpretive p l a n at Gilsland a n d conser
v a t i o n plans for the R o m a n fort sites o f
Chesters and Housesteads. T h e plans have
(10 m i l l i o n t o 12 m i l l i o n f r o m t h e H e r i t a g e L o t t e r y
F u n d , f o r i n s t a n c e ; m o r e r e c e n t l y , 3.6 m i l l i o n i n r e g i o n a l
S R B g r a n t s ) . T h e result h a s b e e n am o r e p r o a c t i v e , i n c e n
tive-based attitude t o w a r d site d e v e l o p m e n t , as o p p o s e d
to the traditional regulatory, restrictive approach.
been spearheaded by the particular partners

involved, but, dictated by the
Management
Plan, efforts h a v e b e e n m a d e to i n c o r p o r a t e
W o r l d Heritage designation has been a unifying

force, creating incentives (and in s o m e w a y s require
m e n t s ) for collaboration. Projects s u c h as the H W T P
pro
t h e m into the larger regional f r a m e w o r k of

significance, values, a n d general policies.
g r a m s o r the N a t i o n a l Trail benefit all a n d p r o v i d e addi

t i o n a l o p p o r t u n i t i e s to enjoy, u s e , a n d u n d e r s t a n d t h e site.
I n s c r i p t i o n o f t h e site is s e e n as t h e f o r c e b e h i n d t h e c o n
tinuing exchange b e t w e e n different
stakeholdersfrom
different parts o f the Wall, a n d f r o m different
perspectives
o n the value of the Wall. G i v e n the fragmented
T w o overarching implementation issues
must
b e a d d r e s s e d . T h e first is h o w to s p e c i f y a n d
i m p l e m e n t the b r o a d insights a n d decisions
ownership
pattern, the n u m b e r of government and other agencies
of the regional planning and
involved with land management, and the competition
s c h e m e a t al o c a l l e v e l , o r f o r s p e c i f i c r e s o u r c e s .
tourism and grant revenue in times of economic
for
stress,
management
it is r e a s o n a b l e to t h i n k t h a t t h e r e w o u l d n o t h a v e b e e n a
T h e s e c o n d is h o w to m o n i t o r v a l u e s at s u c h
W a l l - w i d e p l a n or m a n a g e m e n t s c h e m e w i t h o u t the des
local, empirical scales that their i m p r o v e m e n t
i g n a t i o n . O p i n i o n s o n this i n t e r p r e t a t i o n differ, h o w e v e r .
S o m e o f t h o s e i n v o l v e d feel that s o m e regional s c h e m e
w o u l d still h a v e e m e r g e d w i t h o u t the designation's cat
(or erosion) "on the ground" can be gauged

and management can respond.
a l y z i n g effect.
All these benefits s h o u l d not lead o n e to t h i n k that
W o r l d Heritage status has b e e n apanacea. T h e
has not eliminated divisiveness a n d competition
designation
among
stakeholders in the Site a n d Setting. Conflicts b e t w e e n

o w n e r s a n d regulatory agencies r e m a i n , as d o
b e t w e e n conservation-driven interests a n d
conflicts
development-
driven interests. T h e essential n a t u r e o f this place's heritage

and contemporary valuesextraordinarily rich and very
d i v e r s e m a k e s such disagreements inevitable, a n d a plan
n i n g s y s t e m i n w h i c h t h i s is r e c o g n i z e d a n d d e a l t w i t h c o l
l e c t i v e l y is a p r o d u c t i v e a r r a n g e m e n t . V a r i o u s a g e n c i e s w i l l
continue to c o m p e t e for resources. Indeed, various
groupsthe Roman archaeology community, or
the
200
T o address both these challenges, the C o u n t r y

side A g e n c y a n d E n g l i s h Heritage are leading
a n e f f o r t t o c o m p l e t e al i m i t s o f
acceptable
c h a n g e ( L A C )s t u d y f o r t h e m o s t h i g h l y v i s i t e d
and traveled stretch of the
WallHousesteads
to S t e e l R i g g . T h i s a r e a is u n d e r t h e
1
most
i n t e n s e u s e a n d p r e s s u r e , a n d it a l s o h a s a c o m
plicated, overlapping stewardship a n d owner-
ship pattern involving an u m b e r of
institutions,
goals. W i t h the points for unacceptable
including E H ,the National Trust, and
h a v i n g b e e n defined, a series o f
Northumberland National Park. A n
p r e s c r i p t i o n s " is d r a w n u p to g u i d e
adaptation
assessment, L A Cmethods acknowledge
"management
to specific c h a n g e s (e.g., w h o m to
of carrying-capacity planning and impact

the
change
responses
consult
before constructing afence around a scheduled
reality of landscape change a n d focus o n identi
m o n u m e n t , o r w h e n it is a c c e p t a b l e to c l o s e
fying acceptable ranges of change. T h e y are
certain parts of the walking path).
b a s e d o n m a n a g i n g o u t c o m e s so that the differ

A s w i t h o t h e r plans i n the W o r l d H e r i t a g e Site,
ent values and functions of alandscape remain
the linchpin o f the L A C a p p r o a c h to microlevel
b a l a n c e d , as o p p o s e d to setting particular
h e r i t a g e l a n d s c a p e m a n a g e m e n t is n o t
values as apriori targets for protection.
the
These
specific limits or actions described in the plan
tolerances are not b a s e d o n scientific studies,

but the system of collaboration. T h e
House-
but rather are established through extensive

steads L A C "brings together organisations
consultation a m o n g the
and
stakeholders.
individuals w i t h diverse interests
(subsequently
T h e H o u s e s t e a d s L A C conference l o o k e d at
referred to as the C o n f e r e n c e ) to agree o n lim
five factors, e a c h relating l o o s e l y to the h e r
its o f a c c e p t a b l e c h a n g e for specific p a r a m e
itage a n d c o n t e m p o r a r y values articulated
ters, h o w t h e y s h o u l d b e m o n i t o r e d a n d the
for the W o r l d H e r i t a g e Site: a r c h a e o l o g i c a l
m e a s u r e s to be t a k e n to prevent t h e m
r e s o u r c e quality; n a t u r a l r e s o u r c e quality; dis
reached or if they are reached." W i t h the con
turbance to farming; recreational p a t h quality;
ference d o n e a n d the plan in place, the actual
a n d quality o f visitor experience. F o r e a c h fac
w o r k o f m o n i t o r i n g a n d r e p o r t i n g is s h a r e d b y
tor, clear b e n c h m a r k s are o u t l i n e d as l i m i t s
the m a i n stakeholder
being
agencies.
for example, "no deterioration in the archaeo

T h e L A C stresses collaboration a m o n g part
l o g i c a l r e s o u r c e " o r " a m a x i m u m o f 40 c o m
ners as the k e y to b a l a n c i n g the values o f
plaints
from
the
farmers per annum." Monitoring

landscape, while also demonstrating
detailed
is b u i l t i n : " T h e L A C p r o c e s s relies u p o n a sys

understanding of the resources a n d their use.
tem of continual environmental
monitoring
that demonstrates w h e n aquality threshold has

b e e n b r e a c h e d o r is a b o u t to b e b r e a c h e d . "
criti
c i s m for being too exhaustive, intensive,
and
T h e five e l e m e n t s c h o s e n for m o n i t o r i n g corre

late w e l l w i t h W o r l d Heritage Site values
T h i s effort has n o n e t h e l e s s e n g e n d e r e d
and
expensive to b e p r a g m a t i c a n d useful as a
widely adopted management
method.
201
Notes
o w n e r s o fo n e o r a n o t h e r s i t e / a t t r a c t i o n , f o r
example
h a v e s e l e c t i v e l y u s e d t h e s t a t e m e n t o fs i g n i f i c a n c e t o
a d v a n c e their o w n interests. T h i s study, however,
suggests
1.
The source for much of the information on the LAC efforts

is Rimmington and McGlade 2001.
that W o r l d Heritage designation and the
2.
Ibid., 4.
a n d potential conflicts. T h e W o r l d Heritage efforts have
management
efforts that have resulted substantially o u t w e i g h these real

l e d t o e f f e c t i v e m a n a g e m e n t o f t h e f u l l r a n g e o ft h e W a l l ' s
values.
BALANCING WALL VALUES AND
LANDSCAPE VALUES
T h e W a l l a n d its l a n d s c a p e a r e c l o s e l y r e l a t e d b u t a l s o dis
tinct. T h e W a l l is p r i m a r i l y a n a r c h a e o l o g i c a l r e s o u r c e ,
6 2
w h e r e a s t h e S e t t i n g is aw o r k i n g l a n d s c a p e d e f i n e d b y e c o
n o m i c production, ecological values, aesthetic judgments,
a n d so on. Site a n d Setting are v a l u e d differently yet m a n
aged in concert.
F r o m the onset of m o d e r n historical interest in
the eighteenth and nineteenth centuries, the values of the
Wall were overwhelmingly construed in terms o fR o m a n era archaeological a n d historic remains. M o r e recently, the
perceived values have evolved and broadened quite dra
matically to e n c o m p a s s arichly layered historic landscape
representing m a n y periods and narratives and carrying
important contemporary values. W i t h o u t diminishing the
value of the Wall, the clear trend over the past thirty years
o r s o h a s b e e n t o v a l u e t h e W a l l and i t s s u r r o u n d i n g l a n d
scape for both their heritage values a n d their c o n t e m p o
rary-use values. This broader conception represents the
c o n s e n s u s t o d a y t h a t t h e R o m a n W a l l is t h e c o r e b u t n o t
t h e totality o f w h a t is s i g n i f i c a n t a b o u t this p l a c e a n d t h e
diversity of values presents achallenge for
management.
A two-tiered geographic scheme was

from
devised
the beginning of W o r l d Heritage inscription, identi
fying the core archaeological resources (including s o m e

associated resources n o t o n the line o f the W a l l itself) as
w e l l as asubstantial buffer z o n e (the Setting). S u c h a terri
torially b r o a d c o n c e p t i o n n e c e s s i t a t e s ab r o a d c o n s i d e r a
t i o n o f v a l u e s , g i v e n t h a t m u c h o f t h e l a n d is i n active,
nonconservation use a n d under the control of m a n y sepa
r a t e o w n e r s . T o d a y , t h e site is u n d e r s t o o d a n d d e s c r i b e d
p r i m a r i l y as al a n d s c a p e , t h o u g h it is c l e a r t h a t t h e r o o t s o f
t h e site's v a l u e lie i n t h e a r c h a e o l o g y a n d o v e r t i m e h a v e
evolved to include the landscape.
T h e k e y e l e m e n t o f H a d r i a n ' s W a l l a n d the set
o f values leading to the various legal protections
and
official r e c o g n i t i o n i s clearly the h i s t o r y o f the W a l l a n d

its a s s o c i a t e d f e a t u r e s as a R o m a n i m p e r i a l frontier. I n t h e
y e a r s f o l l o w i n g t h e 1987 i n s c r i p t i o n a n d t h e n e w
202
manage-
m e r i t s t r u c t u r e s a n d i n i t i a t i v e s f o r m e d i n t h e 1990s, t h e
the conserved archaeological and historic values of the
strict focus o n R o m a n archaeological a n d historic values
W a l l as avisitor attraction h a s b e e n ad r i v i n g force n o t
h a s e v o l v e d to i n c o r p o r a t e ab r o a d e r r a n g e o f values. T h i s
only in the Wall-wide m a n a g e m e n t scheme committed
e x p a n d e d range includes other heritage values (post-
paper but also in the creation of partnerships (especially
to
R o m a n uses o f the Wall, or the nineteenth-century agri
with the H W T P and with national and local govern
cultural landscape) as w e l l as c o n t e m p o r a r y - u s e values
m e n t s ) a n d the attraction o f f u n d i n g to sustain all activi
(associated with the practice of agriculture or tourism
ties associated w i t h the W a l l ( f r o m strict c o n s e r v a t i o n t o
development). Today's management scheme endeavors t o
more development-oriented
schemes).
W h a t h a s b e e n the i m p a c t o f the shift t o w a r d
m a i n t a i n ab a l a n c e a m o n g the different k i n d s o f values.

F o r instance, historic values related to the agricul
v a l u i n g the setting as w e l l as the site? H i g h l i g h t i n g W o r l d
tural landscape created in the nineteenth century s e e m to
H e r i t a g e valuesexplicitly " u n i v e r s a l " s e e m s largely to
b e o f little c o n s e q u e n c e i n t h e p l a n n i n g a n d
have bolstered the a d v a n c e m e n t of local a n d regional val
management
ues associated with the landscape. T h e current manage
of the landscape, though these values are reflected in

m u c h of the territory. Features related to these values
m e n t r e g i m e a c k n o w l e d g e s that the W a l l has s h a p e d this
f o r m alarge p o r t i o n o f the l a n d s c a p e p a s t u r a g e ,
landscape for the last n i n e t e e n h u n d r e d years, a n d that a
stone
b r o a d e r s t o r y o f l a n d s c a p e e v o l u t i o n a n d ab r o a d e r r a n g e
field w a l l s , f a r m h o u s e s , a n d b a r n s a n d t h e r e is a m p l e
evidence of ongoing medieval habitation along and on
Wall.
6 3
the
T h e R o m a n focus on conservation and manage
m e n t can w o r k against understanding and m a n a g i n g
o f v a l u e s a r e t h e b a s i s f o r its c u r r e n t v a l u e to society.
W h i l e the expansion of geographic scope and universal
significance of the values to be conserved m a y have intro
t h e s e p o s t - R o m a n values. D e f i n i n g the l a n d s c a p e as a "set
d u c e d m o r e complexity a n d conflict, the m o r e i m p o r t a n t
t i n g " f o r t h e R o m a n / W a l l r e s o u r c e s p u t s it i n a s e c o n d a r y
r e s u l t is p o s i t i v e : ag r e a t e r r a n g e o f v a l u e s is a s s e s s e d a n d
p o s i t i o n . W h i l e this is r i g h t l y s e e n as n e c e s s a r y i n t e r m s
conserved, a n d am o r e holistic f r a m e w o r k for recognizing
of prioritizingvalues (identifying the ones of universal
the significance of different kinds of values has b e c o m e
v a l u e a n d putting t h e m at the center o f
broadly accepted. T h e M a n a g e m e n t Plans reflect a bal
management),
the implications as to h o w the other, n o n - R o m a n historic
a n c e d a p p r o a c h to m a n a g i n g the core heritage values
values are recognized are not clear.
(those associated w i t h the Wall) a n d the other, often
C o n t r a r y examples are evident in the several lay

ers of p o s t - R o m a n historic values that are well preserved
a n d represented. T h e B i r d o s w a l d site h a s m a i n t a i n e d
buildings dating f r o m the sixteenth to nineteenth
cen
turies, carrying out conservation a n d interpretation

w i t h i n this context. T h e efforts to develop access a n d
i n t e r p r e t a t i o n at this site are h e l d u p as am o d e l i n the
f r a m e w o r k of the M a n a g e m e n t Plan. T h e n e e d for sensi
tivity a n d s u b t l e t y i n b a l a n c i n g v a l u e s is w e l l - r e c o g n i z e d ,
a n d w r e s t l e d w i t h , a c r o s s t h e site.
These values coexist almost everywhere in the
landscape. F o r example, the R o m a n historic values relate
directly to c o n t e m p o r a r y values t h r o u g h tourism: the
W a l l is t h e s o u r c e o f m a n y k i n d s o f v a l u e a n d is p e r h a p s
the m o s t important resource for regional e c o n o m i c
devel
o p m e n t and regeneration. T h e values are protected

explicitly as am a t t e r o f policy, a n d m a n y o f the c u r r e n t
a n d p l a n n e d efforts to i m p r o v e m a n a g e m e n t are focused
o n the visual a n d other experiential qualities of the W a l l
setting. T h e s e have b e e n the subject o f the "limits o f
acceptable change" analyses d o n e b y the National Trail,
the National Trust, a n d N o r t h u m b e r l a n d National P a r k to
m a n a g e the H o u s e s t e a d s area at am o r e local scale. U s i n g
e q u a l l y i m p o r t a n t , v a l u e s o f t h e c o n t e x t (i.e., t h e S e t t i n g ) .
THE
E F F E C T S OF A PARTNERSHIP MODEL
ON VALUES
T h e partnership m a n a g e m e n t structure used for
H a d r i a n sW a l l has a n important impact o n values.
6 4
In
a general sense, involving m o r e partners of varied kinds

broadens the values that are being championed. F o r
instance, including private landowners along with conser
vation groups and archaeologists places economic
and
other contemporary-use values o n par with historic and

r e s e a r c h values. S o m e p a r t i c u l a r e x a m p l e s arise i n the fol
lowing discussion.
T h e M P C e m e r g e d i n t h e 1996 p l a n , b u t s u c h
cooperation a n d collaboration c a n be traced b a c k to
r e p o r t s a n d p l a n s f o r m u l a t e d i n t h e 1970s a n d 1980s. S i m i
lar arrangements have b e e n e m p l o y e d elsewhere in the
world over the past twenty years, but they reach a high
level of articulation a n d refinement in the
of Hadrians Wall.
management
6 5
T h e institutionalized partnership of these agen

cies constitutes ac o m p r e h e n s i v e effort to m a n a g e a r a n g e
of values larger than that held by any one partner. This
203
r a n g e is c l e a r l y r e f l e c t e d i n t h e M a n a g e m e n t P l a n s as w e l l :
Partnership models in general, and the Hadrian s
archaeological, historic, aesthetic, economic, a n d other
W a l l efforts i n particular, are n o t w i t h o u t their inherent
c o n t e m p o r a r y - u s e values are all a c c o u n t e d for at the
difficulties. T h e r e is n o s i n g l e a c c o u n t a b i l i t y f o r t h e site's
regional scale. S u c h a t h o r o u g h l y horizontal process o f
overall well-being. T h e organizations with sitewide m a n
m a n a g e m e n t , i tc o u l d b e s a i d , l e a d s t o a c o n t i n u o u s r e b a l
date are c o o r d i n a t i n g o r d e v e l o p m e n t entities, n o t m a n
a n c i n g o f v a l u e s a n d t h u s t op l a n s w e l l a d j u s t e d t o a c h i e v
a g e m e n t units. S o m e p a r t n e r s a r e i n v o l v e d i n s e v e r a l dif
i n g l o n g e r - t e r m stewardship goals as w e l l as s h o r t e r - t e r m
ferent aspects at o n c e a s o w n e r , regulatory agency,
d e v e l o p m e n t g o a l s . A t o n e level, this a p p r o a c h is a
financially interested party, n e i g h b o r l e a v i n g
r e s p o n s e t ot h e m o s a i c o fc o m p l i c a t e d o w n e r s h i p a n d
r o o m for conflicts o f interest t odevelop, or the perception
ample
s t e w a r d s h i p responsibilities. A g e n e r a t i o n ago, t h e list o f
of them. O n e organization, or core of partners, has t o
potential partners was smaller ( E H and landowners), but
t a k e t h e l e a d y e t m u s t n e v e r a p p e a r t o o f a r o u t i n front o f
under the current regime the n u m b e r has increased dra
the consensus o n various issues. R e c o g n i z i n g individual
m a t i c a l l y . T h e t e r r i t o r y is c o n t r o l l e d b y m o r e t h a n six
partners w h o are taking uncoordinated actions or follow
h u n d r e d o w n e r s a n d d o z e n s o fdifferent o r g a n i z a t i o n s
ing divergent policies requires constant vigilance. S u c h
a n d agencies. T h e only sensible m a n a g e m e n t
difficulties a n d c o m p l i c a t i o n s are best resolved n o t b y
model
depends o n partnership a m o n g the existing owners
and
e x e r c i s e s o fr a w p o w e r t h o u g h s o m e t i m e s t h e
need
a r i s e s b u t rather b y a continuing series o f discussions,
stakeholders.
H o w does the partnership-dependent
exchanges, negotiations, compromises, a n d dispute reso
manage
m e n t structure affect values? R e g i o n a l c o o r d i n a t i o n w o r k s
lution, all o f w h i c h d e m a n d a great deal o f resources
in at least t w o w a y s . First, raising awareness o f the
(staff time, energy, m a t e r i a l costs, etc.). I n d e e d , o n l y
i n t e g r i t y o ft h e w h o l e W a l l a s a R o m a n a r c h a e o l o g i c a l
landowners a n d E H have a n d exercise r a w power. T h e
resourcenot the individual, excavated sitesabets
partnership model operates under the hypothesis
the
that
c o n s e r v a t i o n o ft h i s o v e r a r c h i n g , r e g i o n a l - s c a l e c u l t u r a l
the t i m e a n d effort n e e d e d t om a n a g e c o m p l e x p a r t n e r
value, w h i c h o t h e r w i s e w o u l d b e difficult t o achieve
ships are worthwhile.
u n d e r a p i e c e m e a l a r r a n g e m e n t o fd i s p a r a t e sites. S e c o n d ,
m a r k e t i n g t h e W a l l as a w h o l e t ov i s i t o r s i n c r e a s e s e c o
T h e b e n e f i t s o ft h e p a r t n e r s h i p m o d e l
speak
directly t oother issues that have arisen vis-a-vis values a n d
n o m i c values. A collaborative m a r k e t i n g effort c a n create
m a n a g e m e n t o ft h e s i t e f o r i n s t a n c e , s t r i k i n g a b a l a n c e
a n i m a g e f o r t h e r e g i o n as a w h o l e , r e n d e r i n g it m o r e dis
b e t w e e n W a l l values a n d setting values. D E F R A a n d the
t i n c t i v e t ov i s i t o r s i n d i s t a n t m a r k e t s . R e g i o n a l c o o r d i n a
Countryside A g e n c y wield the influence and have the
t i o n also is s p r e a d i n g v i s i t o r s e l s e w h e r e a l o n g t h e W a l l ,
incentive t om a n a g e the b r o a d e r l a n d s c a p e , w h e r e a s
g u i d i n g t h e m t ol e s s e r - k n o w n places. I n s o m e sites this i s
p o w e r o fE H is fairly w e l l f o c u s e d o n t h e W a l l a n d its
perceived as "reducing t o u r i s m pressure" a n d in others a s
i m m e d i a t e s u r r o u n d i n g s . T o m a n a g e the site a n d setting
"siphoning off visitors."
together requires acollaborative partnership.
U n d e r l y i n g t h e p l a n s is a n e t h i c o f c o o p e r a t i o n ,
a n d t h e r e is m u c h e v i d e n c e o fc o o p e r a t i v e w o r k o n
the
tacted for this study reported s o m e k i n d o f partnership a s

e s s e n t i a l t oits c u r r e n t activities a n d goals. T h e p a r t n e r
ship m o d e l has also b e e n successful in securing funds for
n e w initiatives a n d cooperative projects. B u t the partner
a m o n g
p a r t n e r s for f u n d i n g , visitors, credit a n d visibility, c o n t r o l

over l a n d use, a n d other issues. A cooperative
ticketing
s c h e m e w i t h several participating sites w a s i n t r o d u c e d b u t

failed, as s o m e o p e r a t o r s felt t h e c r o s s - p r o m o t i o n w a s
not
w o r k i n g a n d opted out. T h e r e are indications that the

older, p r e v a i l i n g attitude o fc o m p e t i t i o n a m o n g sites h a s
n o t faded, a l t h o u g h n e w m a n a g e r s t e n d t ofall i n line w i t h
t h e c o o p e r a t i v e p h i l o s o p h y o ft h e M a n a g e m e n t
204
Plan.
MANAGEMENT PLANS AND T H E I R POLICIES

It h a s a l r e a d y b e e n p o i n t e d o u t w h i c h v a l u e s a r e articu
g r o u n d as w e l l . N e a r l y e v e r y o r g a n i z a t i o n a n d site c o n
ship structure also leaves r o o m for competition
the
lated in the M a n a g e m e n t Plans for Hadrian'sWall. T h e

i n t e n t h e r e is t od e s c r i b e h o w t h e a p p r o a c h t o m a n a g e
m e n t a n d p l a n n i n g (i) is r e f l e c t i v e o ft h e b r o a d e r , m o r e
inclusive attitude t o w a r d values that has evolved,
and
(2) i s a r e s p o n s e t o t h e l a r g e s c a l e o f t h e r e s o u r c e s a n d
the n e e d t ofoster local a n d resource-specific c o n t r o l
over resources and their values.
M a n a g e m e n t P l a n policies set the vision a n d p r o
vide direction, but they do not prescribe or proscribe
actions. T h e p l a n differs
from
w h a t is t r a d i t i o n a l l y s e e n as
a m a s t e r p l a n i n t h a t it e s t a b l i s h e s p r i n c i p l e s o f o p e r a t i o n
a n d general guidelines but does not chart out the specific
w o r k to be done. Instead, the plan creates a
framework
f o r
a n d anticipates the creation of the regional- a n d local-level

plans a n d contributions to d e t e r m i n i n g local land-use pol
icy. Specific r e g u l a t o r y c o n t r o l s r e m a i n i n t h e h a n d s
local authorities and, for national scheduled
of
monuments
t h e m s e l v e s , w i t h E H . F o r i n s t a n c e , t h e p l a n is d e s i g n e d
to
be i m p l e m e n t e d through adoption in existing local plans

a n d r e g u l a t i o n s a n d to a large extent, local a n d regional
authorities have endorsed the M a n a g e m e n t Plan and
i n c o r p o r a t e d its p r o v i s i o n s i n t o t h e i r o w n p l a n n i n g poli
cies a n d
schemes.
6 6
T h e M a n a g e m e n t P l a n s for the site c a r r y n o

s t a t u t o r y a u t h o r i t y a n d a r e n o t t a b l e d i n P a r l i a m e n t (i.e.,
p a s s e d o r e n d o r s e d officially b y the g o v e r n m e n t ) .
T h e
2002 p l a n i s " e n d o r s e d " b y t h e M P C a n d " a d o p t e d " b y t h e

individual partners. In other words, the plan gains author
ity o n l y to t h e e x t e n t to w h i c h it is a d o p t e d o r i m p l e
m e n t e d b y local authorities. T h e s e local controls,
the
a d o p t i o n o f w h i c h is n e g o t i a t e d a n d n o t r e q u i r e d , a r e
c o m p l e m e n t e d b y existing national statutory
( c f . PPG
controls
15 a n d 16; s c h e d u l e d m o n u m e n t s r e v i e w s ) a n d
are s e e n as sufficient legal protection. B y e n d o r s i n g
the
W o r l d H e r i t a g e listing o f t h e site, h o w e v e r , t h e n a t i o n a l
g o v e r n m e n t tacitly endorses the provisions o f the plan.
A s a result, the intentions o f the plan are b a c k e d b y vari
ous statutory authorities, but these are neither centralized
in a n y particular institution or agency n o r tied directly to
the M P C .
T h e p r i m a r y f o c u s is o n t h e m e a n s ( t h e p r o c e s s )
o f continuing to w o r k together, p u r s u e c o m m o n
goals,
and/or pursue individual goals within the bounds of
the
a g r e e d - u p o n f r a m e w o r k . S o m e typical results o f this
flexi
ble policy a p p r o a c h include the use of L A C m e t h o d s to

m a n a g e access to the Housesteads-Steel R i g g s e g m e n t of
the Wall, a n d the different approaches taken to creating
local/small-area interpretive plans, carried out under the
rubric of the regional scheme but performed by the local
partners themselves. I n all these types o f local planning,
t h e k e y v a l u e a d d e d b y t h e M P C is t h e c o o r d i n a t i o n
of
actions so that consistency a n d cooperation lead directly

to leveraging all investments for positive, W a l l - w i d e
impact.
U N D E R S T A N D I N G A N D P R O T E C T I N G T H E V A L U E S 205
Conclusions
T h e H a d r i a n sW a l l m a n a g e m e n t a n d planning s c h e m e
m e t a p h o r i c ) . Its significant a c h i e v e m e n t s h a v e i n c l u d e d
represents ahighly developed, t h o r o u g h l y consultative,
t h e f o u n d i n g o f t h e H W T P a n d its W a l l - w i d e p r o g r a m s
a n d thoughtful s y s t e m o f values-based conservation. It
of marketing, transportation, a n d education; the estab
h a s t w o h a l l m a r k s o f sustainability: it e n c o m p a s s e s
lishment o f the National Trail; the attraction o f substan
the
m a n y types of values associated with the core resources
tial g r a n t funds; a n d the s u c c e s s f u l c o n s e r v a t i o n a n d inter
a n d t h e i r c o n t e x t s , a n d its i m p l e m e n t a t i o n is b a s e d o n
pretation o f alarge a n d c o m p l e x set o f cultural resources.
p a r t n e r s h i p s . T h e s c h e m e is e x p l i c i t l y d r i v e n b y t h e
T h e M a n a g e m e n t Plan provides af r a m e w o r k a n d guid
identification of heritage a n d other values, a n d b y actions
a n c e for all partners a n d actors to carry o u t their w o r k .
u n d e r t a k e n to ensure their existence a n d sustained use.
T h e partnership m o d e l has several features abun
T h e current scheme has evolved over the past thirty years
dantly in evidence for Hadrian's W a l l a n d contributing to
t h r o u g h the efforts o f m a n y organizations a n d has b e e n
its s u c c e s s :
strengthened b y W o r l d Heritage designation a n d the

U n i t e d K i n g d o m ' s efforts to generate at h o r o u g h
manage
m e n t response to this recognition o f universal value.

O v e r the generation or so of planning a n d m a n
a g e m e n t e x a m i n e d in this case study, there has b e e n a
clear a n d progressive recognition of the breadth of values
T h e positive results of the partnership since the

mid-1990s a r e c l e a r . W i t h t h e p a r t n e r s w o r k i n g i n c o n c e r t ,
a n u m b e r of objectives have b e e n achieved which, in the
opinion of those o n the ground, w o u l d not have been
reached by organizations w o r k i n g independently.
M a n a g i n g b y c o n s e n s u s is a n e x c e e d i n g l y i m p o r
to be m a n a g e d for this heritage place. W h a t w a s o n c e con
t a n t p r i n c i p l e a n d a m a j o r l e a r n i n g p o i n t . It is a r e p l a c e
sidered a n archaeological resource tracing aline across the
m e n t , o n e c a n say, f o r m a n a g e m e n t b y r e g u l a t i o n a n d
country has been transformed in afew decades into a
d i r e c t s t a t u t o r y c o n t r o l . T h e r e is a r e m a r k a b l y w i d e b u y -
complex, layered cultural landscape rich in both heritage
in a m o n g partners o n the protection o f the setting as well
and contemporary values. M a n a g e m e n t practices and
as the Wall.
plans h a v e evolved as w e l l a n d h a v e h e l p e d shift attitudes
T h e r e are alot of "calculated ambiguities" in
t o w a r d v a l u e s at e v e r y step. Overall, the r e c o g n i t i o n o f
planning and management. T h e planning has remained
partners' collective interests outweighs the i m p o r t a n c e of
at astrategic level, avoiding the prescription o f particular
individual goals. T h e partnership has c o m e to a n agree
a c t i o n s f o r p a r t i c u l a r sites. T h i s is a p p r o p r i a t e g i v e n t h e
m e n t t h a t H a d r i a n ' s W a l l is al a n d s c a p e a n d n o t a d i s c r e t e
extensive scale o f the w h o l e venture a n d the n e e d to rec
m o n u m e n t . T h e t w o - t i e r e d s t r u c t u r e o f b o u n d a r i e s fol
ognize (and perhaps decentralize) the distribution of
lows the partnership m o d e l for m a n a g i n g the landscape:
power a m o n g the various partners and individuals w h o
t h e c o r e is a g r e e d u p o n a n d p r o t e c t e d tightly a n d u n i
w i e l d u l t i m a t e c o n t r o l o v e r l a n d a n d r e s o u r c e s . It is also
f o r m l y , a n d t h e s e t t i n g is m a n a g e d a c c o r d i n g to t h e w i s h e s
flexible a n d allows the partnership to r e s p o n d to c h a n g i n g
of the local jurisdictions or owners, w h o have differing
external forces, w h e t h e r those forces are w e l c o m e
views of what should be protected and how. In seeking
tunities (regional regeneration funds) or
i n c l u s i o n a n d r e c o g n i t i o n o f t h e site's policies i n l o c a l
threats (the ravages of F M D ) .
land-use policies a n d plans, the w h o l e s c h e m e
recognizes
oppor
unwelcome
A n integrated planning and management
regime
the limits o f ap a r t n e r s h i p m o d e l . Ultimately, c o n t r o l over
has b e e n i m p l e m e n t e d at Hadrian's W a l l that addresses a
the resources resides w i t h the individual partners.
variety o f situations a n d sets af r a m e w o r k for integrating
T h e collaborative, "horizontal" m a n a g e m e n t
s c h e m e s e e m s w e l l suited to the resources a n d the pat
policies a n d actions at different g e o g r a p h i c scales. T h e

a p p r o a c h u s e d is also a " l e a r n i n g " s y s t e m , as s e e n i n t h e
terns of landownership and control, and has resulted in
evolution
b e n e f i t s e q u a l to (if n o t e x c e e d i n g ) its costs (real a n d
b y n o m e a n s af i n i s h e d p l a n ; it explicitly calls f o r t h e
206
from
t h e 1996 p l a n t o t h e 2002 p l a n . T h e l a t t e r i s
i m p l e m e n t a t i o n o fpolicies ( w h i c h necessarily relate t o
5.
Details on the archaeological remains and extant remains in

the site can be found in the Management Plans, in particular
section 1.2.6 of the 2002 plan [and guidebooks].
6.
Hadrian s Wall World Heritage Site is situated at a latitude

of 4N.
t h e r e g i o n a n d t h e w h o l e r e s o u r c e ) a tal o c a l , a c t i o n a b l e
scale. Further, the partnership recognizes that o n e
goal
over the next several years should b ethe creation o f

monitoring m e c h a n i s m s w a y s t ounderstand and track
h o w values are b e i n g shaped, a n d t ouse this i n f o r m a t i o n
7.
McKnight 2 0 0 1 , 2 2 4 - 2 6 .
in the m a n a g e m e n t o fthe W a l l a n d Setting.
8.
A detailed time line appears in the appendix.
9.
For a detailed history and description of the Wall, see Birley

1961; de la Bedoyere 1999; Breeze and Dobson 2000; and
T h e institutional arrangements s e e m well suited

t o m a n a g i n g v a l u e s a sw e l l a sc o n s e r v a t i o n a n d d e v e l o p
Ewin2ooo.
m e n t activities. T h e H a d r i a n sW a l l s c h e m e s e e m s n e i t h e r
centralized n o r decentralized. A n effective center exists i n
10.
Watson 1997, 23. Today, the Military Road is known as B6318.
the combination o fthe H W C U and the H W T P . This c o m
11.
Ewin 2000, 41.
bination also includes partners
12.
English Heritage 2002,13.
13.
Ewin 2000, vii.
14.
Ibid., 2.
15.
Hadrian's Wall Tourism Partnership, "Hadrian's Wall

World Heritage Site: Research and Archaeology: Rev.
Dr. John Collingwood Bruce, 1998-99." http:/ /
from
the private sector but
is n o t s o p r i v a t i z e d a st o b e o v e r l y s u s c e p t i b l e t o m a r k e t
fluctuations.
E H h a s au n i q u e a n d c o m p l i c a t e d set o f
roles: f o r t h e r e g i o n , i ti sac o o r d i n a t o r , c o n v e n e r , a n d c o n
s u l t a n t ; f o r t h e W a l l a s a n a r c h a e o l o g i c a l r e s o u r c e , i ti sa
r e g u l a t o r y a g e n c y ; for c e r t a i n sites, i ti sad a y - t o - d a y m a n
ager; a n d for o t h e r sites, i ti salso t h e o w n e r . A s s u c h , E H
is p o t e n t i a l l y a to d d s w i t h s o m e o f its o w n p a r t n e r s , b u t
www.hadrians-wall.org/randa/jcb.htm (16 May 2002).
16.
Ibid.
17.
18.
Ewin 2000,44. The archaeological protection acts passed

during this period were the Ancient Monuments Protection Act
of 1882, the Ancient Monuments Act of 1910, the Ancient Monu
ments Consolidation and Amendment Act of 1913, and the
Ancient Monuments Act of 1932.
19.
h a v e r e l i e d o nl a r g e i n f u s i o n s o f f u n d s ; i ft h e i n c e n t i v e s
English Heritage, "Hadrian s Wall Museums." http: / /

www.eng.-h.gov.uk/ ArchRev/rev95_6/hwmuseum.htm
for f u n d i n g a n d m a r k e t i n g d r y u p , t h e r e w o u l d b e little
(23 May 2002).
t h i s h a s n o t p r o v e n t o b e aliability. I t i sn o t c l e a r , h o w e v e r ,
w h e t h e r this m a k e s E H m o r e o r less effective i n p l a y i n g
the lead coordinating role.
T h e p a r t n e r s h i p m o d e l i sn o t w i t h o u t its d o w n
side. C o m p e t i t i o n a m o n g partners r e m a i n s . T h e r e is
little c e n t r a l i z e d o rs t a t u t o r y a u t h o r i t y t o f o r c e r e s o l u t i o n
of issues w h e n necessary. T h e partnership's successes
m o r e than the p o w e r o fg o o d ideas t ohold together the

whole partnership. Persuasion and perseverance are
Hadrian s Wall Tourism Partnership, "Research and

Archaeology: Wall Recording Project." http: / /
a m o n g the most important managers' tools i nsuch a
www.hadrians-wall.org/ (23 May 2002).
20.
scheme, and these require enormous investments o f
21.
English Heritage 1996, paragraph 9.4.2.
time a n d h u m a n capital.
22.
Ewin 2000,31.
23.
This concern was based on the perception that more walkers

would come and have a negative impact. Once formal counts
of footpath traffic were conducted, fears of overuse by walk
ers proved unfounded, illustrating the notion that accurate
information and monitoring are essential for site manage
ment. Christopher Young, English Heritage, e-mail corre
spondence, 19 June 2003.
24.
Quotedfromhttp: / / whc.unesco.org/nwhc/pages/doc/
mainf3.htm. World Heritage List criteria for natural heritage
properties are also available at this URL.
25.
Jane Brantom, Hadrian s Wall Tourism Partnership, e-mail

correspondence, 19 June 2003.
26.
Kate Clark, personal communication, 2001, citing Mynors
Notes
1.
English Heritage 2002, 2 and part 5, "Maps."
2.
Reiterating what is noted in the introduction, site refers

throughout to the World Heritage Site in totalitythe Wall,
associated remains, and the setting.
3.
4.
These include forts, fortlets, and other monuments to the

south of Bowness (the western end of the Wall) along the
Cumbrian coast, and other Roman sites near, but not adja
cent to, the line of the Wall.
The Clayton Wall was rebuilt not to its original height but to
that sufficient to serve as a barrier to keep out livestock and
create a property boundary.
1999.
NOTES
207
27.
If such consent is denied, the applicant has therightto public
47.
inquiry or informal hearing prior to afinalruling concerning

the application.
28.
PPG 16: Archaeology and Planning, Department of the Envi

ronment, 1990. Her Majesty's Stationery Office, London.
May be found at http: / / www.planning.odpm.gov.uk/ppg/
48.
English Heritage 2002, section 2.1.1,33-42.
49.
Ibid., 28, emphasis added.
50.
See English Heritage 2 0 0 2 , 2 8 - 3 2 , for the full text of the

statement of significance.
ppgi6/index.htm (May 2003).

29.
PPG 15: Planning
and the Historic
Environment,
51.
section 6.10.
Department of the Environment and Department of
Partnership.
London. Found at http: / / www.planning.odpm.gov.uk/
52.
drawnfromcorrespondence with Christopher Young,
found at http: / / wwwplanning.odpm.gov.uk/circulars/
English Heritage.
UNESCO
Convention
tural and Natural
53.
Concerning
Heritage:
the Protection
Operational
of the World
Guidelines,
Cul
54.
part I.21.B.
tion of authority and funding through the inclusion of pri

vate, public, and nonprofit partners in the management of
museums, and galleries; licensing for the export of cultural
parks and historic sites. As an example, see the press release
goods,film,broadcasting, and the royal estate; and regula
at http: / / data2.itc.nps.g0v/release/Detail.cfm?ID=355.
Accessed at www.english-heritage.org.uk.
33.
See http: / / www.nationaltrust.org.uk/main /.
34.
These measures are summarized in appendix 4 of the 2002
55.
Available at http: / / www.hadrians-wall.org/.
56.
Available at http: / / www.hadrians-wall.org/. Click on

Hadrian s Wall Tourism Partnership.
57.
Management Plan.
Park, which underwrites any losses.
a c t s i 9 9 0 / Ukpga_i9900009_en_2.htm#mdivi.
58.
English Heritage 2 0 0 2 , 1 .
PPG 15, explanatory note, http: / / www.planning.odpm.
59.
Ibid.
60.
Ibid., 57.
61.
Ibid., 26.
Amenity societies in the United Kingdom include the

Ancient Monuments Society, the Council for British Archae
ology, the Georgian Group, the Society for the Protection of
62.
sites not technically part of the Wall itself.
Century Society.
38.
PPG 16, introduction.
63.
39.
English Heritage 1996, section 9.4.2.
64.
It should also be noted that this change is congruent with
value contexts of what are traditionally seen as historic
English Heritage 2002, 2 0 - 2 1 .
42.
Strategy
43.
Ibid., 9.
44.
1984.
Accessed at http: / / whc.unesco.org/sites/430.htm (5 April

2003).
45.
46.

Accessed at http: / / www.eng-h.gov.uk/ ArchRev/rev95_6 /
hadrian.htm.
208
Similar kinds of partnership-driven models have been used

ships in all types of planning has been an area of innovation
for at least the last thirty years.
65.
In the United Kingdom, such partnership arrangements

involving different national agencies as well as local and
resources.
41.
English Heritage 2002, section 1.2.4.

in other countries, and the increasing reliance on partner
philosophical shifts in the heritage field and related disci

plines that more seriously recognize the geographic and
It should be noted that "the Wall," as used here and through

out, also encompasses related archaeological resources and
Ancient Buildings, the Victorian Society, and the Twentieth
40.
The operation of the bus is funded by a number of bodies

not solely HWTPincluding Northumberland National
This document is found at http: / / www.hmso.gov.uk/acts/
gov.uk/ppg/ppg15/pdf/ ppg15.pdf.
37.
This term is used increasingly, for instance, in the U.S.

National Park Service to refer to the increasing decentraliza
arts, sport, and recreation; the National Lottery; libraries,
32.
36.
The core of the partners group is represented by the MPC.
This department is also responsible for matters related to the
tion of the press.
35.
The source for much of the information in this section is
ppg/ppgi5 /pdf/ppg15.pdf. Recent amendment may be

0101/09.htm (May 2003).
31.
This document is available at http: / / www.

hadrians-wall.org/. Click on Hadrian s Wall Tourism
National Heritage, 1994. Her Majesty's Stationery Office,
30.
Christopher Young, English Heritage, e-mail correspon

dence, 11 April 2003.
regional partners are quite common now, but those involv

ing Hadrian's Wall have been a trendsetter.
66.
Appendix 4 of the 2002 Management Plan lists the specific

local plans and policies through which the plan is already
being implemented.
of the Wall. A second pilgrimage took place in
A p p e n d i x A : Time Line for H a d r i a n ' s

W a l l d u r i n g H e r i t a g e Status
1599
AntiquarianW i l l i a m C a m d e n visited the
1851
J o h n Collingwood Bruce published the
e d i t i o n o f The Roman Wall, w h i c h s u m m a r i z e d
to its d a n g e r o u s c o n d i t i o n . T h e f o l l o w i n g y e a r
he published his survey a n d explanation of the
Chesters R o m a n Fort and publicizedJohn Hodg
W a l l a n d its s t r u c t u r e s i n t h e
son's theory of the Wall's construction u n d e r the
fifth
edition of
emperor Hadrian.
Britannia*
T h e R e v . J o h n H o r s l e y ' s w o r k Britannia
Romana,
1863
J o h n C o l l i n g w o o d B r u c e published his
of the Roman Wall, w h i c h h a s s i n c e s e r v e d a s a n
was published.
i m p o r t a n t g u i d e to the W a l l . Its t h i r t e e n t h edition
T h e MilitaryRoad was constructed
of Hadrian sWall between Newcastle

Sewingshields.
between
m e t e r s (30 m i l e s ) o f t h e r o a d w a s b u i l t o n
1811
Handbook
t h e first s y s t e m a t i c s t u d y o f H a d r i a n s W a l l ,
N e w c a s t l e a n d C a r l i s l e . A p p r o x i m a t e l y 48 k i l o
1801
first
the results o f J o h n Clayton's excavations at
w a s p u b l i s h e d i n 1978.
ca. ljjo
of H a d r i a n sWall except the central sector due
his
1J32
length
1886, a n d s i n c e t h a t t i m e t h e g r o u p s h a v e l e d s u c h
pilgrimages every ten years.
1875
T h e S o u t h Shields U r b a n District C o u n c i l estab

lished the R o m a n R e m a i n s P a r k at S o u t h Shields,
top
m a r k i n g t h e first p u b l i c a c q u i s i t i o n a n d d i s p l a y o f
and
a part of the Wall.
W i l l i a m H u t t o n w a l k e d the length of the Wall
1896
T h e m u s e u m at C h e s t e r s R o m a n Fort, w h i c h
and wrote an account, n o w published under the
h o u s e d J o h n Clayton's collection of objects, w a s
t i t l e The First Man to Walk Hadrian's
o p e n e d to the public.
Wall
1927
W i l l i a m H u t t o n saved asection of the Wall

at Planetrees
field
walls.
from
A first s e c t i o n o f t h e W a l l w a s s c h e d u l e d a s a
monument.
being pillaged to m a k e
1932
T h e Ancient Monuments
Act w a s e n a c t e d i n p a r t a s
a result o f threats to the Wall.
1832-90 I n 1832, J o h n C l a y t o n i n h e r i t e d o w n e r s h i p o f
1 0
T h e Hadrian's
Chesters R o m a n Fort. F r o m that time until his
Wall and Vallum Preservation Scheme
d e a t h i n 1890, C l a y t o n e x c a v a t e d a n d p r o t e c t e d
a d o p t e d . T h e B r i t i s h g o v e r n m e n t a c q u i r e d its
remains of the Wall and amassed acollection of
parts of the Wall."
R o m a n objects
from
various locations along the
Wall. O n e conservation technique C l a y t o n devel
1935
d r y s t o n e f a c e w o r k t o p p e d w i t h turf. Sections o f
1970
first
T h e Housesteads M u s e u m w a s o p e n e d to the
public.
oped w a s encasing the surviving Wall remains in
was
1 2
T h e Vindolanda Trust, an independent
archaeo
the W a l l built over in this fashion are today
logical charitable trust, w a s f o u n d e d to excavate,
k n o w n as the C l a y t o n Wall.
preserve, and present the R o m a n remnants
associated w i t h l a n d o w n e d b y the trust at

1840
J o h n H o d g s o n p u b l i s h e d h i s History of
Northum
Vindolanda.
berland, t h e first w o r k t o a r g u e c o n v i n c i n g l y t h a t
the Wall h a d been constructed under the R o m a n
1972
e m p e r o r H a d r i a n . H o d g s o n a l s o w a s t h e first t o
k n o w n as C a r v o r a n , located 8 m i l e s to the w e s t
record thoroughly a n d in detail the structure
Vindolanda.
o f t h e W a l l a n d its a s s o c i a t e d forts i n t h e c e n t r a l
sector.
1973
of
Tourist visitation to the W a l l peaked.
1976
1849
T h e V i n d o l a n d a T r u s t a c q u i r e d the R o m a n site
Darlington Amenity Research Trust report was
T h e Newcastle Society of Antiquaries and the
published, articulating the n e e d for a Wall-wide
Cumberland and Westmoreland Antiquarian and
conservation strategy, t o u r i s m s c h e m e , a n d m a n
Archaeological Society, led b y J o h n C o l l i n g w o o d
agement
B r u c e , h e l d t h e i r first p i l g r i m a g e a l o n g t h e
attention.
length
APPENDIX A
209
1984
T h e d o c u m e n t Strategy for Hadrian's Wall w a s
M u s e u m s , included aw o r k i n g reconstruction o f
published, proposing aregionwide
a R o m a n b a t h h o u s e a n d av i e w i n g t o w e r approxi
framework
m a t e l y 34 m e t e r s (112 f e e t ) i n h e i g h t .
for conservation a n d tourism.

English Heritage opened the Corbridge
M u s e u m
T h e H a d r i a n sW a l l region w a s severely
2001
b y the foot a n d m o u t h disease
at C o r b r i d g e R o m a n site.
T h e C u m b r i a C o u n t y Council acquired the
M a n a g e m e n t P l a n 2002-2007 w a s
2002
damaged
epidemic.
released.
Birdoswald estate for the purpose o f developing

the remains o fthe R o m a n fort a n d other archae
ological features t h e r e a saheritage site that
Notes
w o u l d b eopen t othe public.

198J
E n g l i s h H e r i t a g e b e g a n its W a l l R e c o r d i n g P r o j
ect, w h i c h p r o v i d e d the first detailed r e c o r d o f
t h e visible r e m a i n s o f t h e W a l l a n d its
associated
features. T h e finished drawings are u s e d in the

m a n a g e m e n t a n d conservation o fthe Wall.
1986
T h e Tyne and W e a r Museums completed
1 3
1.
English Heritage 2002, 23.
2.
Watson 1 9 9 7 , 3 -
3.
4.
English Heritage 1999, 4 2 - 4 3 .
5.
Hadrian s Wall Tourism Partnership, "Hadrian s Wall

World Heritage Site: Research and Archaeology: Rev. John
Hodgson." http: / /wvvrw.hadrians-wall.org/ (23 May 2002).
6.
English Heritage 2002, 24.
7.
Hadrian's Wall Tourism Partnership, "Hadrian's Wall World

Heritage Site: Research and Archaeology: Rev. Dr. John
Collingwood Bruce, 1 9 9 8 - 9 9 . " http:/ /www.hadrians-wall.
recon
struction o fthe W e s t G a t e at A r b e i a R o m a n F o r t
at S o u t h Shields.
1987
H a d r i a n sW a l l Military Z o n e inscribed b y
U N E S C O a saW o r l d H e r i t a g e Site u n d e r criteria
C (ii), (iii), a n d (iv).
1990
org/randa/jcb.htm (16 May 2002).
T h e first visitor c e n t e r o p e n e d a t B i r d o s w a l d
8.
Ibid.
R o m a n Fort.
9.
10.
11.
12.
English Heritage, "Hadrian s Wall Museums." http: / /

www.eng-h.gov.uk/ ArchRev/rev95_6/ hwmuseum.htm
T h e Senhouse M u s e u m Trust opened
the
Senhouse R o m a n M u s e u m , which houses
the
N e t h e r h a l l collection o fR o m a n artifacts, i n
Maryport.
(23 May 2002).
1993
T h e H a d r i a n sW a l l T o u r i s m Partnership w a s
created.
1994
14.
T h e Hadrian's W a l l W o r l d Heritage Site
Manage
m e n t P l a n f o r t h e p e r i o d 1996-2001 w a s
published
after extensive consultation. T h e p l a n
established
the W o r l d Heritage Site M a n a g e m e n t P l a n C o m

m i t t e e "to a c t a st h e p r i m a r y f o r u m f o r i s s u e s
concerning the m a n a g e m e n t o fthe W o r l d H e r
itage Site."
1 4
English Heritage established
the
H a d r i a n sW a l l Co-ordination Unit, based in

H e x h a m , t ooversee implementation o fthe plan.
2000
T h e Segedunum R o m a n Fort, Bath House
and
M u s e u m in Wallsend opened t othe public. T h e

development,
210
operated by the T y n e and W e a r
Hadrian's Wall Tourism Partnership, "Research and Archaeol

ogy: Wall Recording Project." http: / / www.hadrians-wall.org/
(23 May 2002).
T h e secretary o fstate a p p r o v e d proposals for the

H a d r i a n sW a l l Path, an e w National Trail.
1996
13.
References
Bidwell, P., ed. 1999. Hadrian's Wall 1989-1999: A Summary of Recent

Excavations and Research Prepared for The Twelfth Pilgrimage of Hadrian's
Wall, 14-21 August 1999. Carlisle: The Cumberland and Westmoreland
Antiquarian and Archaeological Society and the Society of Antiquaries
of Newcastle upon Tyne.
Birley, E. 1961. Research on Hadrian's Wall. Kendal, England: T Wilson.
Breeze, D. J., and B. Dobson. 2000. Hadrian's Wall. 4 t h ed. New York:
Penguin.
Hadrian s Wall Tourism Partnership/SRB Steering Group. 2000. Enrich

ment and Enterprise. Round 6: Single Regeneration Budget Bid. 23 May.
Historic Buildings and Monuments Commission for England. N.d.
World Heritage Convention, Cultural Properties: UK Nomination Hadrian's
Wall Military Zone.
Johnson, J. S. 1999. Chesters Roman Fort. 1990. Reprint. London: English
British Standard on the Principles of the Conservation of Historic

Buildings (BS7913,1998). In English Heritage Policy Statement on Restora
tion, Reconstruction, and Speculative Recreation of Archaeological Sites
Including Ruins, February 2001.
Darlington Amenity Research Trust. 1976. Hadrian's Wall: A Strategy for
Conservation and Visitor Services. DART Publication no. 25, August.
de la Bedoyere, G. 1999. Hadrian's Wall: History and Guide. London:
Tempus Publishing Ltd.
Dore, J. N. 2001. Corbridge Roman Site. 1989. Reprint. London: English
Heritage.
Heritage.
Land Use Consultants (in association with Heritage Site and Landscape
Surveys Ltd). 1995. Hadrian's Wall Landscape and Planning Study: Final
Report. June.
Mason, R., ed. 1999. Economics and Heritage Conservation. Los Angeles:
The Getty Conservation Institute, http: / / www.getty.edu/
conservation/ publications/pdf_publications/ econrpt.pdf.
McKnight, T 2001. Physical Geography: A Landscape Appreciation. 4 t h ed.
Englewood Cliffs, N.J.: Prentice Hall.
Mynors, C. 1999. Listed Buildings, Conservation Areas and Monuments. 3 r d
English Heritage. "Hadrian s Wall Museums." http: / / wwweng-h.gov.

uk/ ArchRev/ rev95_6/hwmuseum.htm (23 May 2002).
English Heritage. 1996. Hadrian's Wall World Heritage Site Management
Plan. London: English Heritage.
. 1999. Chesters Roman Fort. London: English Heritage.
. 2002. Hadrian's Wall World Heritage Site Management Plan,
2002-200J.
. "Research and Archaeology: Rev. John Hodgson."

http: / /www.hadrians-wall.org/ (23 May 2002).
Available as a pdf file at http: / / www.hadrians-wall.org/
HWTPMgmtPlan2002.pdf.
Ewin, A. 2000. Hadrian's Wall: A Social and Cultural History. Lancaster:
Centre for North-West Regional Studies/University of Lancaster.
Fairclough, G., G. Lambrick, and A. McNab. 1995. Yesterday's World,
ed. London: Sweet and Maxwell.

Ordnance Survey 1975. Map of Hadrian's Wall. 2 d ed. Southampton:
Ordnance Survey Publication.
Pearson, M., and S. Sullivan. 1995. Looking After Heritage Places: The
Basics of Heritage Planningfor Managers, Landowners. Melbourne:
Melbourne University Press.
Rimmington, N., and D McGlade. 2001. "Limits of Acceptable Change
Conference: Defining and Managing QualityHousesteads Roman Fort
to Steel Rigg Section of Hadrian s Wall." Consultation draft, 5 November.
The Strategy for Hadrian's Wall. 1984. Hadrian s Wall Consultative
Committee.
Tomorrow's Landscape: The English Heritage Historic Landscape Project,
UK. Department of the Environment. 1990. Planning Policy Guidance 16:
1992-94. London: English Heritage.
Archaeology and Planning. Her Majesty's Stationery Office, London.
Hadrian's Wall Tourism Partnership. 2002. Beyond the Final Frontier:
Found at http: / / www.planning.odpm.gov.uk/ppg/ppgi6/
Projects in Progress and Proposed, Hadrian's Wall World Heritage Site.
index.htm (May 2003).
January.
UK. Department of the Environment and Department of National
. "Hadrian s Wall World Heritage Site: Research and

Archaeology: Rev. Dr. John Collingwood Bruce, 1998-99."
http: / / www.hadrians-wall.org/randa/jcb.htm (16 May 2002).
. "Research and Archaeology: Wall Recording Project."
http: / /www.hadrians-wall.org/ (23 May 2002).
Heritage. 1994. Planning Policy Guidance ly. Planning and the Historic Envi
ronment. Her Majesty's Stationery Office, London. Found at
http: / / www.planning.odpm.gov.uk/ppg/ppg15/pdf/ppg15.pdf.
Recent amendment may be found at http: / / www.planning.odpm.
gov.uk/circulars/ 0101/ 09.htm (May 2003).
REFERENCES
211
UNESCO
Convention
Concerning
the Protection
of the World Cultural
and
Natural Heritage. Accessed at http: / / whc.unesco.org/nwhc/pages/

doc/ mainf3.htm.
UNESCO
Natural
Convention
Heritage:
Concerning
Operational
World Heritage Convention.
the Protection
Guidelines
of the World Cultural
for the Implementation
and
of the
Accessed at http: / / whc.unesco.org/
opgulist.htm.
Watson, 1.1997. Hadrian's
Wall: A Teacher's
Handbook.
Heritage.
212
London: English
Julian
David
Acton
Murray
Northumberland
Cumbria
Lindsay
Karen Parker
Allason-Jones
Director of Archaeological
M u s e u m of
Administration and Newsletter Editor
Museums
Antiquities
English Heritage Co-ordination
Unit
University of Newcastle
Georgina
Plowright
Curator
Paul Austen
H a d r i a n sW a l l W o r l d Heritage Site
English Heritage Co-ordination
Patricia and Robin
Co-ordinator
Unit
Birley
English
Heritage
Corbridge R o m a n
Andy Poad
Directors
Property
The Vindolanda Trust
T h e National Trust
Jane
Neil
Brantom
Manager
Rimmington
Manager
Earthworks Officer
H a d r i a n sW a l l T o u r i s m Partnership
English
Bill
Brian
Griffiths
Curator
Museums/Segedunum
Heddon-on-the-Wall
Senior Lecturer
Archaeology
Tyne and Wear Museums/South
Shields
Lazari
Project
Selman
Peter Stone
Hodgson
Principal Keeper of
Paget
Heritage
Parish Council
Tyne and Wear

Nick
Newcastle University
Lynn
Manager
Turner
Chief Leisure and T o u r i s m Officer
Northumberland National Park
Tynedale Council
David
Elaine
McGlade
Watson
Hadrian's W a l l Path National Trail Officer
General
Countryside
Birdoswald
Emma
Site
Agency
Manager
Moody
Sustainable Transport Officer

H a d r i a n sW a l l T o u r i s m P a r t n e r s h i p
PERSONS C O N T A C T E D D U R I N G T H E D E V E L O P M E N T O F T H E CASE
PART THREE
Issues Raised by the Case Studies

T h e four case studies included in this publication illustrate
a g e m e n t o f all the units in the systems to assure consistent
h o w different organizations have dealt w i t h the
practices of conservation and management.
challenges
Justification a n d rationale for planning are clearly
o f m a n a g i n g sites w i t h m u l t i p l e values. T h e cases s h e d

light o n the approaches dictated b y the administrative a n d
explained in the two N o r t h A m e r i c a n systems. T h e U.S.
political environments of each organization, a n d the solu
National P a r k Service ( N P S ) d o c u m e n t s state that the
tions they f o u n d to a c c o m m o d a t e the specific resources
agency "plans for one p u r p o s e t o ensure that the deci
a n d c i r c u m s t a n c e s o f t h e sites.
s i o n s it m a k e s a r e as effective a n d efficient as p o s s i b l e i n
c a r r y i n g o u t t h e N P S m i s s i o n . T h a t m i s s i o n is to p r e s e r v e
This section compares h o w s o m e of the issues

a n d c h a l l e n g e s w e r e h a n d l e d at t h e different sites. E v e r y
unimpaired the natural and culturalresources and values
aspect of m a n a g e m e n t illustrated in the cases could be the
of the national park system for the enjoyment,
subject o f these comparisons. H o w e v e r , this section
a n d inspiration o f this a n d future generations a n d to
education,
focuses o n those issues that s e e m to illustrate the chal
cooperate w i t h partners to extend the benefits o f resource
lenges o f m a n a g e m e n t particularlywell. T h o s e selected
conservation a n d o u t d o o r recreation t h r o u g h o u t this
for consideration are: the m a n a g e m e n t planning require
country and the world." Current N P S guidelines
m e n t s a n d t h e g u i d a n c e a v a i l a b l e f o r it a n d f o r its i m p l e
the d e v e l o p m e n t o f aseries o f s e q u e n t i a l plans, starting
mentation; the application o f these guiding principles to
w i t h aG e n e r a l M a n a g e m e n t P l a n that will "ensure that
i n d i v i d u a l sites; t h e t r e a t m e n t o f v a l u e s , i n c l u d i n g h o w
the p a r k h a s aclearly d e f i n e d direction for r e s o u r c e s
they are recognized and the role played by stakeholders;
preservation a n d visitor use." Guidelines indicate that
the h a n d l i n g o f the often difficult subject o f
" g e n e r a l m a n a g e m e n t p l a n n i n g w i l l constitute the first
economic
specify
value; the resolution of conflicting values and the tensions
p h a s e o f tiered p l a n n i n g a n d decision-making. It will
b e t w e e n local, national, a n d international values; the
focus o n w h y the park w a s established, a n d w h a t manage
recognition o f the l a n d s c a p e as acultural value; the
m e n t p r e s c r i p t i o n (i.e., r e s o u r c e c o n d i t i o n s , v i s i t o r e x p e r i
importance o f the fabric; the concept of "quality of the
ences, a n d appropriate types of m a n a g e m e n t
visitors' experience"; a n d the m o n i t o r i n g o f values.
should be achieved and maintained over time."
actions)
3
In the C a n a d i a nsystem the preparation of m a n

Management Planning
a g e m e n t p l a n s is m a n d a t e d b y t h e a c t t h a t e s t a b l i s h e d
Parks Canada.
T h e organizations involved in this study operate in c o m
that "[E]ffective p l a n n i n g sets out the w a y s a n d m e a n s
processes to assure that they m o v e a h e a d in a concerted
by
w h i c h cultural resources will be cared for a n d presented.
m a n n e r to fulfill their m a n d a t e s . I n all s y s t e m s the p l a n
P l a n n i n g activities flow
n i n g processes are intended to result in written docu
from
policy objectives a n d adhere
to policy principles. T h r o u g h these activities Parks
m e n t s u s e d to guide a n d explain decisions a n d actions.
C a n a d a ensures that the elements of g o o d cultural
T h e n u m b e r of documents available a n d their currency
r e s o u r c e m a n a g e m e n t practice are i n place i n all s y s t e m s
manage
m e n t guidelines called for p r i m a r y a n d s e c o n d a r y plans, as

w e l l as i m p l e m e n t a t i o n a n d r e p o r t i n g d o c u m e n t s .
and processes."
It further specifies that "the goal o f m a n
a g e m e n t p l a n n i n g f o r n a t i o n a l h i s t o r i c sites is t o e n s u r e
the c o m m e m o r a t i v e integrity o f n a t i o n a l historic sites
PLANNING GUIDELINES
T h e C a n a d i a n a n d U.S. sites are p a r t o f n a t i o n a l s y s t e m s
agency's
G u i d i n g Principles a n d O p e r a t i o n a l Policies, w h i c h states
plex environments and engage in elaborate planning
v a r i e d a m o n g t h e sites, b u t i n all i n s t a n c e s t h e
T h i s o b l i g a t i o n is r e f l e c t e d i n t h e
and the application of culturalresource

of
parks a n d historic places. Their governing agencies have

developed policies a n d guidelines to be applied in the m a n
principles and practice."
management
Port A r t h u r Historic Site M a n a g e m e n t A u t h o r i t y

( P A H S M A ) is ag o v e r n m e n t b u s i n e s s e n t e r p r i s e ( G B E )
217
established b y aministerial charter of the State of T a s m a
f o l l o w e d t o a c h i e v e it. I n t h i s t h e y d i f f e r
n i a . A s s u c h , it is a b l e to set its m a n a g e m e n t
p l a n s p o p u l a r a f e w d e c a d e s ago, w i t h t h e i r l o n g lists o f
policies
within the parameters specified in the charter but without

Charter for the Conservation
of Cultural Significance
(the B u r r a Charter), w h i c h
endorses v e r y specific planning processes.
of Places
the master
specific actions a n d activities.
the guidance o f ahigher authority P A H S M A adheres to

t h e Australia ICOMOS
from
Chaco Culture National HistoricalPark ( C C N H P )

has the m a n a g e m e n t p l a n o f longest standing a m o n g all
t h e s i t e s s t u d i e d . I t s 1985 G e n e r a l M a n a g e m e n t P l a n i s n o t
c o n s i d e r e d b y site staff to reflect c u r r e n t policies o f t h e
In England, responsibility for the protection of
N P S even t h o u g h the plan proposed "a course of action for
r e c o g n i z e d h e r i t a g e sites is a s s i g n e d to v a r i o u s levels o f
m a n a g e m e n t a n d u s e o f C C N H P f o r t h e n e x t 10-15 y e a r s . "
g o v e r n m e n t , to b o t h public a n d private agencies, a n d to
Since the plan w a s constructed a r o u n d v e r y specific issues
private citizens. W o r l d H e r i t a g e Sites, registered p a r k s
c o n s i d e r e d c r i t i c a l i n 1985, s u c h a s m i n i n g a n d d e v e l o p
a n d gardens, a n d battlefields are protected t h r o u g h inte
m e n t o f s u r r o u n d i n g l a n d s , it b e c a m e o b s o l e t e s o o n after
g r a t e d p l a n n i n g processes a d m i n i s t e r e d at the local to dis
w h e n the anticipated threats did not materialize. T h e use
trict levels b y national legislation to protect
fulness of the plan has been limited since then. Currently
designated
sites a n d b y policies i n land-use d e v e l o p m e n t plans. T h e
t h e p l a n is u s e d m a i n l y as a c h e c k l i s t o f " a c t i o n i t e m s "
Office of the D e p u t y P r i m e Minister issues Planning Pol
from
icy Guidance notes (or PPGs, currently being replaced by
those that are considered relevant and ignore those that are
P l a n n i n g Policy S t a t e m e n t s P P S s ) , w h i c h set o u t govern
not, awaiting the development of an e w General M a n a g e
m e n t policy o n the relevant legislation a n d give detailed
m e n t Plan in accordance w i t h current N P S policies. C u r
guidance for decision makers. T h e s e planning guidelines
rently, the directives a n d regulations established for the
define t e r m s a n d direct all p l a n n i n g activities a n d are
N P S s y s t e m as aw h o l e s e e m to b e m o r e i m p o r t a n t for the
m e a n t to consider ascope of concerns m u c h broader than
management of C C N H P , and Park management
t h e v a l u e s a n d c i r c u m s t a n c e s o f a specific c u l t u r a l site.
considerable resources o n " c o m p l i a n c e " activities.
PPG
clarifies that "the plan
1: General Policy and Principles
w h i c h the authorities select for i m p l e m e n t a t i o n
spends
T h e first m a n a g e m e n t p l a n for the N a t i o n a l H i s
ning system regulates the development and use of land in
t o r i c Site o f G r o s s e lie w a s s t a r t e d s h o r t l y after its desig
the public interest. T h e s y s t e m as aw h o l e a n d the prepa
n a t i o n as a n a t i o n a l h i s t o r i c site. T h e p r e s e n t a t i o n o f a
r a t i o n o f d e v e l o p m e n t p l a n s i n p a r t i c u l a r , is t h e
most
d e v e l o p m e n t c o n c e p t t o t h e p u b l i c i n 1992 l a u n c h e d a n
development
important phase of public consultation detailed in the
effective w a y o f reconciling the d e m a n d for
a n d t h e p r o t e c t i o n o f t h e e n v i r o n m e n t . T h u s it h a s a k e y
case study
role to play in contributing to the G o v e r n m e n t ' s strategy
w h e n t h e p l a n w a s p u b l i s h e d i n 2001, i t f o c u s e d o n e n s u r
for sustainable d e v e l o p m e n t b y helping to provide for nec
i n g t h e c o m m e m o r a t i v e i n t e g r i t y o f t h e site. F r o m
essary development in locations w h i c h do not
m a n a g e m e n t plan flow aseries o f d o c u m e n t s ,
compro
1 3
I n accordance w i t h Parks C a n a d a policy,

the
which
m i s e the ability o f future generations to m e e t their
study the values a n d the resources in detail a n d formulate
needs."
specific strategies a n d identify actions to preserve t h e m .
1 0
T h e r e are currently twenty-five PPGs,
1 1
all o f
w h i c h m u s t be taken into consideration w h e n planning in
T h e 2000 C o n s e r v a t i o n P l a n i s t h e l a t e s t i n a
historic sites; h o w e v e r , o n l y t w o relate specifically to h e r
series o f m a n a g e m e n t d o c u m e n t s that have b e e n pre
i t a g e s i t e s : PPG ly. Planning and the Historic Environment
p a r e d over the years for P o r t A r t h u r H i s t o r i c Site. T h e
PPG
16: Archaeology and
and
Planning.
12
preparation o f the latest p l a n w a s led b y external consult

ants a n d followed closely the guidelines provided in the
SPECIFIC PLANS
I n the sites studied, the m a i n m a n a g e m e n t d o c u m e n t s
are
called m a n a g e m e n t plans, general m a n a g e m e n t plans, or

conservation plans. W h i l e their content and organization
vary
from
site to site, t h e s e d o c u m e n t s u s u a l l y i n c l u d e
s t a t e m e n t s a b o u t t h e l e g a l s t a t u s o f t h e site, its signifi

cance, a n d m a i n m a n a g e m e n t objectives. Today, these pri
m a r y p l a n s are strategic d o c u m e n t s , a n d site authorities
see t h e m as a tool for c h a n g e c o n t a i n i n g avision o f the
future and outlining the rules and principles that will be
218
ISSUES R A I S E D B Y T H E C A S E S T U D I E S
1 4
B u r r a Charter. T h e staff w a s v e r y involved w i t h the devel

o p m e n t o f t h e p l a n , s i n c e t h e p r o c e s s is s e e n as t h e
means
o f transmitting a n d institutionalizing the policies set o u t

i n t h e p l a n . M o r e so t h a n at a n y o f t h e o t h e r sites,
P A H S M A staff constantly referred to the C o n s e r v a t i o n
P l a n as justification for m a n a g e m e n t
decisions.
T h e 2001 M a n a g e m e n t P l a n o f H a d r i a n s W a l l i s
the s e c o n d o n e p r e p a r e d for this W o r l d H e r i t a g e Site. It
reflects the b r o a d social considerations m a n d a t e d b y the
United Kingdom's planning guidelines, a n d considers the
protection of heritage resources in the context of societal
m a n a g e r s t oa d d r e s s t h e n e e d s o f t h e i r sites. M o s t inter
n e e d s . T h i s is d i f f e r e n t
ventions on archaeological remains within Hadrian s Wall
from
t h e t h r e e o t h e r sites, w h e r e
the p u r p o s e o f p l a n n i n g w a s the p r o t e c t i o n o f the sites
W o r l d Heritage Site are g o v e r n e d b y principles established
t h e m s e l v e s a n d t h e i r v a l u e s . A g r e a t e r p u r p o s e is r e c o g
for English Heritage, including reconstructions. Neverthe
n i z e d i n t h e p l a n f o r H a d r i a n s W a l l , w h e r e it is s t a t e d t h a t
less, as i n d i c a t e d i n t h e c a s e study, t h e r e is a g r e a t v a r i e t y
" [ M a n a g e m e n t Plans provide the m e a n s for establishing
in the a p p r o a c h to reconstruction a n d the extent to w h i c h
an appropriate balance between the needs of conserva
it is u s e d b y d i f f e r e n t o w n e r s . I n s h o r t , t h e s t u d y f o u n d
tion, access, sustainable e c o n o m i c d e v e l o p m e n t a n d the
instances w h e n the guidelines, policies, a n d directives
interests of the local community."
a p p e a r e d to h a v e left so m u c h l e e w a y to local authorities
1 5
I n c o n t r a s t to t h e o t h e r t h r e e sites, this m a n a g e
m e n t p l a n does not have "statutory status," since H a d r i a n s
that s o m e o f their decisions s e e m e d to be outside the

p a r a m e t e r s set b y the prescribing d o c u m e n t s .
In acouple of instances, policies a n d regulations
W a l l a n d its S e t t i n g exist as a u n i t o n l y i n t h e c o n t e x t o f t h e
W o r l d H e r i t a g e C o n v e n t i o n . N e v e r t h e l e s s , i n s p i t e of, o r
w e r e seen to b e asource o f conflict. S o m e o f the directives
p e r h a p s b e c a u s e of, its e x c l u s i v e s t r a t e g i c n a t u r e , t h e p l a n
of the N P S h a v i n g b e e n formulated independently to deal
has e n o r m o u s i m p o r t a n c e for the d e v e l o p m e n t o f activi
w i t h specific issuesprovided contradictory guidance. F o r
ties i n the area o f the W o r l d H e r i t a g e Site, a l t h o u g h
not
example, the directives guaranteeing respect of traditional
l e g a l l y b i n d i n g . "Its p u r p o s e is t od r a w t o g e t h e r i n t o
one
uses o f the p a r k s b y Native A m e r i c a n s , particularlyin rela
d o c u m e n t the description a n d significance o f the Site, t o
tion to religious ceremonies, a n d the system-wide prohibi
identify the organisations a n d individuals w i t h a n interest
tion to r e m o v e a n y materials
in the Site, i n c l u d i n g the existing relevant
ated ad i l e m m a for authorities. T h e N P S ' s recently updated
frameworks
that
from
the national parks cre
c a n b e u s e d t o p r o t e c t it, t oi d e n t i f y t h e p r e s s u r e s o n t h e
m a n a g e m e n t policy d o c u m e n t s attempt to address these
values o f the Site a n d to set o u t a n a g r e e d overall g u i d i n g
inconsistencies through m o r e comprehensive
s t r a t e g y for t h e p a r t n e r o r g a n i s a t i o n s , t oa d d r e s s t h e i s s u e s
and considerations of management
approaches
issues.
w h i c h are of concern through their individual remits and

by w o r k i n g cohesively together."
Values
1 6
T h e m a n a g e m e n t s y s t e m s u s e d i n all f o u r sites
rely o n aprimary planning d o c u m e n t that records the mis
sion of the place and the mandate of the governing author
ity a n d establishes general principles o f operation. T h e s e
conservation plans or m a n a g e m e n t plans are supported by
secondary or tertiary plans that focus o n
implementation
m e t h o d s a n d w o r k plans. I n the N P S system, strategic,

implementation, and annual performance plans constitute
the next tiers o f d o c u m e n t s . P a r k s C a n a d a staff has pre
T h e case studies s h o w that the m a n a g e m e n t
approaches
u s e d i n all four sites are b a s e d o n the c o n s e r v a t i o n o f val

ues a n d the significance of the places, a n d
demonstrate
that values-based m a n a g e m e n t c a n take different forms.

T h e m a i n differences lie i n the w a y s i n w h i c h v a l u e s are
prioritized, h o w values are considered during the plan
ning and m a n a g e m e n t processes, and the m e a n s t o
resolve conflicts b e t w e e n t h e m .
SIGNIFICANCE
pared plans dealing w i t h visitor experience a n d care of the

resources; business plans; a n d periodic reports for G r o s s e
T h e official significance o f the sites i n c l u d e d i n this study
l i e a n d t h e I r i s h M e m o r i a l N a t i o n a l H i s t o r i c S i t e . T h e 2000
stems
C o n s e r v a t i o n P l a n for P o r t A r t h u r Historic Site specifies a
resources. Until recent times, few documents elaborated
c o m p l e x set o f s e c o n d a r y a n d tertiary plans that deal w i t h
o n t h e v a l u e s o f a site, s i n c e it w a s a s s u m e d t h a t t h e i r
specific buildings as w e l l as areas o f operations. Finally, the
antiquity or history, their beauty, their scientific potential,
M a n a g e m e n t P l a n for H a d r i a n sW a l l W o r l d Heritage Site
and in m a n y instances, their uniqueness w e r e
acts as a n u m b r e l l a for m o r e specialized
the values of their archaeological or historic
self-evident.
However, the arrival of n e w stakeholders w i t h
management
p l a n s for the v a r i o u s places that exist w i t h i n the site as w e l l
demands
t h a t o t h e r v a l u e s also b e r e c o g n i z e d b r o u g h t w i t h it t h e
realization that values c a n b e in conflict a n d that, at times,
as business a n d t o u r i s m plans for the region.

O n e of the questions raised in the study w a s
from
h o w
m u c h latitude did system-wide directives allow local
protecting all o f t h e m s i m u l t a n e o u s l y c a n b e
impossible.
All four cases illustrate h o w the values o f the sites
a u t h o r i t i e s t ot a i l o r d e c i s i o n s t ot h e i r o w n c i r c u m s t a n c e s .
have evolved over time and h o w n e w values have
T h e a n s w e r s e e m s to be that the C a n a d i a n a n d the U.S.
T h e significance o f w h a t is t o d a y C h a c o C u l t u r e N a t i o n a l
national parks systems give sufficient discretion to local
Historical Park w a s recognized in apresidential proclama-
emerged.
219
t i o n i n 1907 t h a t m e n t i o n e d t h e i m p o r t a n c e o f t h e a r c h a e o
u e s . T h e p r o c e s s o f c r e a t i n g t h e 2000 C o n s e r v a t i o n P l a n
l o g i c a l r e m a i n s d u e , s e e m i n g l y , t ot h e i r scientific, a e s t h e t i c ,
started w i t h aseries o f values identified in the B u r r a C h a r
a n d age values. A t that time, the site a l r e a d y h a d v a l u e for
ter a n d established their existence in Port Arthur, resulting
other groups, b u t these values w e r e n o t r e c o g n i z e d as
i n t h e l o n g e s t list o f v a l u e s o f a n y o f t h e sites s t u d i e d .
being sufficiently i m p o r t a n t to m a k e the place significant
T h e n o m i n a t i o n o f Hadrian's W a l l for W o r l d
for the e m e r g i n g nation. T o this day, the official " p u r p o s e o f
Heritage listing focused o n the universal value o f the
t h e p a r k " r e m a i n s a n c h o r e d t o its a r c h a e o l o g i c a l a n d aes
R o m a n r e m a i n s as t e s t i m o n y o f the technical a n d archi
thetic significance. H o w e v e r , i n m a n a g i n g t h e site, t h e
t e c t u r a l a c c o m p l i s h m e n t s o fa n a n c i e n t c i v i l i z a t i o n . T h e
National P a r k Service m u s t take into consideration also the
site's m o s t r e c e n t m a n a g e m e n t p l a n specifically m e n t i o n s
ecological value a n d the spiritual a n d cultural values t o
the archaeological and historical values of the Wall and
Native A m e r i c a n and other groups. W i t h i n the N P S , n e w
associated features, a n d the i m p o r t a n c e of the landscape
values are recognized mainly through legislation that often
a n d setting i n w h i c h t h e y exist. T h i s strict definition o f the
is n o t d i r e c t l y r e l a t e d to t h e site o r e v e n to t h e n a t i o n a l
v a l u e s is d i c t a t e d b y its W o r l d H e r i t a g e s t a t u s a n d is p r o b
parks. F o r instance, the natural value of C h a c o b e c a m e
ably salutary, since the other, nonheritage values o f the
m o r e p r o m i n e n t a s t h e r e g u l a t i o n s e s t a b l i s h e d b y t h e Envi
p l a c e s u c h as its e c o n o m i c v a l u e t h r o u g h t o u r i s m a r e
ronmental Protection Act w e r e e n f o r c e d , a n d N a t i v e A m e r i
s i g n i f i c a n t , a n d a t t e m p t s c o u l d b e m a d e t og i v e t h e m p r i
can values (and the involvement of these groups with the
ority w h e n m a k i n g certain decisions. H o w e v e r , as a place
s i t e ) w e r e s t r e n g t h e n e d b y t h e p a s s a g e o f t h e Native
can Graves Protection and Repatriation
Ameri
Act (NAGPRA) i n 1990.
T h e v a l u e s o fG r o s s e lie a n d t h e I r i s h M e m o r i a l
c o m p o s e d o f m a n y individual sites a n d
encompassing
l a r g e u r b a n a n d r u r a l areas, it h a s a c o m p l e x set o f v a l u e s .
A s the case s t u d y o fthe E n g l i s h site explains, the t e n s i o n
w i t h a shorter history as aheritage p l a c e h a v e yet to fully
b e t w e e n the values a n d interests o f m a n y varied stake
e v o l v e . Its s i g n i f i c a n c e is b a s e d o n t h e island's i m p o r t a n c e
h o l d e r s is o n e o f t h e c h a l l e n g e s o f
to the h i s t o r y o f i m m i g r a t i o n to C a n a d a ; as a site o f the

great tragedies of Irish immigrants, especially due t o the
1847 t y p h u s e p i d e m i c ; a n d f i n a l l y a s a q u a r a n t i n e s t a t i o n
for the port o f Q u e b e c . T h e statement o f
commemorative
i n t e n t o f t h e site m e n t i o n s t h e s e t h r e e a s p e c t s o f its his

t o r y H o w e v e r , e v e n i n its s h o r t h i s t o r y as a n a t i o n a l his
t o r i c site, t h e island's a s s o c i a t i o n w i t h D r . F r e d e r i c k M o n t i z a m b e r t w h o r a n the quarantine station a n d did impor
tant w o r k i n the field o f preventative m e d i c i n e a n d public
h e a l t h i n C a n a d a h a s b e e n r e c o g n i z e d as a n additional
element o fsignificance. F u r t h e r m o r e , Parks Canada's con
cept o f c o m m e m o r a t i v e integrity requires that all heritage
values o faplace be identified so that they c a n be pro
t e c t e d . T h u s , G r o s s e lie is r e c o g n i z e d as h a v i n g o t h e r his
toric values a n d natural values as aspecial habitat.
P o r t A r t h u r h a s h a d ah i s t o r y as aheritage site
t h a t s p a n s m o r e t h a n a c e n t u r y , a n d its s i g n i f i c a n c e h a s
fluctuated during that time in accordance with the
valuepositive or negativeattributed by Australianst o
their convict past. Similar changes c a n be seen in the
a t t e n t i o n p a i d to t h e e c o n o m i c v a l u e o f t h e site, deter
m i n e d in this instance b y the availability o fexternal sup
p o r t o r the n e e d to rely o n e a r n e d i n c o m e . Today, as a gov
e r n m e n t b u s i n e s s e n t e r p r i s e t h a t is n o t d e p e n d e n t o n a
government
agency, P o r t A r t h u r Historic Site M a n a g e
m e n t A u t h o r i t y s e e m s t oh a v e the m o s t flexibility to recog

nize a n d take into consideration the largest n u m b e r of val
220
management.
STAKEHOLDERS
It is e v i d e n t t h a t t h e b r o a d i n v o l v e m e n t o f p u b l i c g r o u p s
provides legitimacy to the results o f the p l a n n i n g process
a n d c a n assist authorities i n the i m p l e m e n t a t i o n o f the
p l a n s . H o w e v e r , t h e i n v o l v e m e n t o f n e w g r o u p s is n o t
a l w a y s a n e a s y process. I n the sites studied, as authorities
s o u g h t t oi d e n t i f y t h e v a l u e s o f a site, t h e i d e n t i f i c a t i o n o f
stakeholders presented an u m b e r o fchallenges, including
determining the legitimate spokesperson for ag r o u p
maintaining abalance a m o n g
and
stakeholders.
T h e c a s e o fG r o s s e lie a n d t h e I r i s h M e m o r i a l
N a t i o n a l H i s t o r i c Site illustrates the difficulties o f the
former. Early in the planning process, Parks C a n a d a rec
o g n i z e d that Irish C a n a d i a n s have a special affinity t o the
i s l a n d t h r o u g h w h i c h m a n y o ft h e i r a n c e s t o r s
entered
t h e c o u n t r y . I n d e t e r m i n i n g t h e v i e w s o ft h e p l a c e d u r
ing the initial planning phases, the authorities
consulted
individuals w h o h a d along-term involvement with the

place a n d w h o m they t h o u g h t c o u l d speak to the values
o f this g r o u p . Nevertheless, w h e n the plans w e r e set
to the public for consultation, other Irish g r o u p s
out
across
C a n a d a felt that the p r o p o s e d i n t e r p r e t a t i o n d i d n o t

reflect their values. T h e strong reaction that
ensued
caught Parks Canada by surprise and threatened t o derail

t h e c o n s u l t a t i o n p r o c e s s b y t u r n i n g it i n t o a c o n f r o n t a
tion. T h e p o s i t i o n t a k e n b y s o m e Irish C a n a d i a n s a n d it
is n o t c l e a r e v e n t o d a y w h e t h e r it w a s a g r o u p r e p r e s e n t a
an abstract garden surrounding the ruins of the Cafe, and
tive o f the w h o l e c o m m u n i t y o r o n l y a f a c t i o n r e s u l t e d
i n t e r p r e t a t i o n t ot h e v i s i t o r is l o w - k e y . I n a d d i t i o n , P o r t
i n a n a m e c h a n g e for the historic site a n d a d e l a y i n the
A r t h u r is n o w c l o s e l y a s s o c i a t e d at t h e n a t i o n a l l e v e l w i t h
planning process. This episode illustrates h o w
important
strict g u n c o n t r o l l a w s that w e r e p a s s e d after the m a s
it is t oi d e n t i f y t h e s p o k e s p e r s o n f o r a s t a k e h o l d e r g r o u p .
sacre. T h e s e v a l u e s a r e v e r y r e c e n t , a n d it c a n b e antici
H o w e v e r , u n l e s s a g r o u p is s t r u c t u r e d f o r m a l l y a n d c a n
p a t e d that t h e y w i l l evolve as t i m e g o e s by. T h i s n e w e r
d e s i g n a t e a s p o k e s p e r s o n (as c o u l d b e t h e c a s e o fa t r i b e
tragic value o fPort A r t h u r a n d the national significance
o r a r e l i g i o u s g r o u p ) , it w i l l c o n t i n u e t ob e d i f f i c u l t t o
of the g u n control legislation are likely t obe interpreted
i d e n t i f y a l e g i t i m a t e r e p r e s e n t a t i v e w h o is c a p a b l e o f
differently b y generations t o c o m e .
speaking o n behalf of the whole
group.
T h e foot a n d m o u t h disease ( F M D ) that infected

h e r d s i n t h e U n i t e d K i n g d o m i n 2001 o r i g i n a t e d i n f a r m s
EVOLUTION OF VALUES
T h e r e are heritage places w h o s e values appear to r e m a i n
unchanged. However, the evolution of values over time is
a n i m p o r t a n t c h a r a c t e r i s t i c o fs i t e s s t u d i e d . T h e c a s e s o f
P o r t Arthur, C h a c o , a n d H a d r i a n sW a l l illustrate this well.
W h e n H a d r i a n s W a l l lost its u t i l i t a r i a n v a l u e as a
m i l i t a r y d e f e n s e i n R o m a n t i m e s , it r e t a i n e d utility as its
material components were reused in other constructions.
Starting in the eighteenth century, antiquarians a n d histo
rians b r o u g h t forth a different set o f values, a n d today,
the
e c o n o m i c ( a n d t h u s u t i l i t a r i a n ) v a l u e o f t h e W a l l is a g a i n
r e c o g n i z e d b y all stakeholders. P o r t A r t h u r s significance
shifted
from
akey element in the T a s m a n i a n e c o n o m y t o
a n i m p o r t a n t c u l t u r a l site for all A u s t r a l i a n s o v e r a p e r i o d

of a century
be appreciated by n e w groups. In the mid-twentieth cen
t u r y , N e w A g e r s s t a r t e d t of i n d s p i r i t u a l v a l u e i n C h a c o
included the destruction of m a n y herds and the closure of

t h e r e g i o n t ov i s i t o r s . T h e s e m e a s u r e s h a d a t e r r i b l e
i m p a c t o n t h e e c o n o m y o ft h e a r e a . T h e s e e v e n t s , w h i c h
coincided with the development of the second
m e n t P l a n for the W o r l d H e r i t a g e Site, resulted i n a n

a l t e r e d p e r c e p t i o n o f t h e v a l u e s o f t h e site. F o r o n e ,
the
risks i n h e r e n t i n h e r d i n g l e d t h e f a r m e r s t od i s c u s s alter
native uses for the lands a r o u n d the archaeological
resources. T h o s e discussions m a d e evident the important
c o n t r i b u t i o n a n d v a l u e o f t h e l a n d s c a p e i n its p r e s e n t
c o n d i t i o n t o the integrity o f the W o r l d H e r i t a g e Site.
S e c o n d , t h e i m p o r t a n c e o f H a d r i a n s W a l l t ot h e
econ
past, b u t i n t h e crisis c r e a t e d b y F M D it w a s c r u e l l y h i g h
l i g h t e d . (It is c o n c e i v a b l e t h a t t h e r o l e t h a t G r o s s e lie
logical w a r f a r e , a n d later as a q u a r a n t i n e station, m i g h t
spiritually significant t oN a t i v e A m e r i c a n g r o u p s for c e n

coexist
acquire special significance through societal changes
or
special circumstances.)
Age
ECONOMIC VALUE
groups, and with expanding ecological values.

Important events or situations c a n also
Manage
p l a y e d after W o r l d W a r II as a research center for bacterio
Culture National HistoricalPark, aplace that h a d been
w i t h spiritualvalues for Native A m e r i c a n a n d N e w
infection
o m y and welfare of the region h a d been recognized in the
S o m e t i m e s , a p a r t i c u l a r v a l u e o fa site c o m e s t o
turies. Today, the aesthetic a n d scientific values
around HadriansWall. T h e measures taken by govern

m e n t a n d f a r m e r s t oa v o i d t h e s p r e a d o f t h e
T h e r e is g r e a t c o n c e r n i n t h e c u l t u r a l w o r l d t h a t c o n s i d e r
modify
the values attributed to aplace. This w a s the case for Port
ation o f the e c o n o m i c v a l u e o f heritage sites c o u l d lead t o
Arthur, w h e r e ag u n m a n r a n d o m l y killed thirty-five peo
o v e r e m p h a s i z i n g this aspect o f the place at the e x p e n s e o f
p l e a t a n d a r o u n d t h e s i t e i n 1996, c r e a t i n g a n e w s i g n i f i
the culturalvalues. However, although none of the plan
c a n c e for P o r t A r t h u r as aplace o f m o u r n i n g . I m m e d i
n i n g processes c a r r i e d o u t at the sites i n this project c o n
ately after the tragic killings, m a n y questions w e r e a s k e d
siders e c o n o m i c values o n par w i t h cultural ones,
a b o u t t h e f u t u r e o f t h e site,
planning and management documents contain some
from
possible closure t o h o w
to i n t e r p r e t the tragedy, if at all. T h e individuals w h o
were
most
f o r m o fa c k n o w l e d g m e n t o f t h e e c o n o m i c v a l u e o f t h e
m o s t touched b y the tragedy in m a n y cases lived nearby
site t os t a k e h o l d e r s . It w o u l d b e i m p o s s i b l e n o t t od o so i n
o r w o r k e d at t h e site, a n d h a d g r e a t i n f l u e n c e o v e r t h e re-
a w o r l d w h e r e c u l t u r a l a n d n a t u r a l sites, like m a n y
evaluation process that followed the tragedy T h e initial
public goods, are increasingly being asked to cover their
reaction o f w a n t i n g to obliterate evidence of the event,

tearing d o w n the B r o a d A r r o w Cafe where most of the
by
o w n
other
costs.
Tourism and visitor-generated income are gener
killings took place, later evolved into adesire t o r e m e m
ally b e h i n d t h e e c o n o m i c v a l u e o f m o s t c u l t u r a l sites. T h e
b e r t h e lost lives. T o d a y , t h e m a s s a c r e is m e m o r i a l i z e d i n
e c o n o m i c c o n t r i b u t i o n o f t h e site o f P o r t A r t h u r to t h e
221
local e c o n o m y w a s q u i c k l y r e c o g n i z e d w h e n shortly after
carefully m o n i t o r e d a n d c o o r d i n a t e d so as n o t to
t h e c l o s u r e o ft h e p e n a l c o l o n y p e o p l e s t a r t e d t ov i s i t t h e
t h e c u l t u r a l significance o f t h e sites, a n d t h e site a u t h o r i t i e s
place. T h e T a s m a n i a n T o u r i s t A s s o c i a t i o n w a s the first
are intimately involved w i t h their operations. T h e roles of
g r o u p t o e x p r e s s i n t e r e s t i n p r o t e c t i n g t h e r u i n s i n 1913.
these agencies are discussed in the case studies.
T h e 2000 C o n s e r v a t i o n P l a n f o r t h e s i t e d o e s n o t
consider
e c o n o m i c value w h e n establishing the significance of the
t h e m a n y v a l u e s a t t r i b u t e d t oa n y g i v e n c u l t u r a l site. A s
an
i m p o r t a n t c e n t r e o fe c o n o m i c a c t i v i t y a n d w o r k i n t h e
T a s m a n P e n i n s u l a a n d T a s m a n i a i n i t i a l l yas a convict
workplace, later at o w n a n d p r e m i e r tourist destination."
1 7
E c o n o m i c considerations are important in Port Arthur,

n o t o n l y b e c a u s e o f its c o n t r i b u t i o n t ot h e r e g i o n b u t also
because the act that created the P A H S M A
specifically
m e n t i o n s t h a t it s h o u l d o p e r a t e " w i t h a v i e w o f
commercially viable."
1 8
becoming
Similarly, the M a n a g e m e n t
Plan
o f G r o s s e lie a n d the Irish M e m o r i a l N a t i o n a l H i s t o r i c
before,
study, the e c o n o m i c a n d cultural values are kept separate

c o n c e p t u a l l y a n d t oa large extent also i n p l a n n i n g a n d
m a n a g e m e n t . T h e r e s u l t o ft h i s s e p a r a t i o n i n t h e c a s e o f
the
ever, the conflicts are irreconcilable, a n d o n e o r a n o t h e r o f

t h e v a l u e s h a s t ob e g i v e n p r i o r i t y . T h e s e a r e s o m e o f t h e
m o s t difficult decisions that cultural m a n a g e r s
must
m a k e , a n d for this r e a s o n the g o v e r n i n g agencies
often
provide guidance.
management of natural resources."
1 9
In Parks Canada,
m a i n t a i n i n g t h e i n t e g r i t y o ft h e c o m m e m o r a t i v e
intent
o f a site (i.e., t h e v a l u e s t h a t m a k e t h e p l a c e s i g n i f i c a n t
i n C a n a d i a n h i s t o r y ) is t h e p r i m a r y m a n a g e m e n t
objec
tive. C o m m e m o r a t i v e integrity m e a n s h e a l t h y r e s o u r c e s
s u p p o r t i n g national significance a n d effective
Conservation Plan provides detailed guidelines for the
communi
c a t i o n o ft h e c o m m e m o r a t i v e i n t e n t , a n d it a l s o r e q u i r e s
" c u l t u r a l " d e c i s i o n s o n t h e site, it d o e s n o t a d d r e s s t h e

the overrid
ing policy that commercial decisions m u s t not impact
that "the site's h e r i t a g e v a l u e s ( i n c l u d i n g t h o s e
not
related t othe reasons for designation as a n a t i o n a l

historic site) are r e s p e c t e d i n all decisions a n d actions
a d v e r s e l y t h e c o n s e r v a t i o n o ft h e site.
affecting the site."
T h e e c o n o m i c v a l u e o fC C N H P is c o m p l e t e l y
different. It is n o t b a s e d o n t o u r i s m o r o n e c o n o m i c activ
ity g e n e r a t e d b y t h e site, b u t r a t h e r o n alternative u s e s
of
economic
p o t e n t i a l o ft h e e n e r g y r e s o u r c e s t h a t l i e u n d e r t h e p a r k
a n d s u r r o u n d i n g lands. I n c o n t r a s t w i t h t h e o t h e r sites,
w h e r e t h e s t a k e h o l d e r s c a n r e a l i z e t h e b e n e f i t s o ft h e c u l
tural and economic values simultaneously, in Chaco,
how
t h e s e i n s t a n c e s , g i v e n t h e l e g i s l a t e d p u r p o s e o ft h e p a r k ,
I n t h e m a n a g e m e n t o fall t h e sites i n c l u d e d i n t h i s
the land. T h e case study discusses in detail the
conflict. S o m e t i m e s , these conflicts c a n find resolution

through compromises and adaptations. O t h e r times,
m a n a g e m e n t o fc u l t u r a l r e s o u r c e s w i l l b e f a v o r e d o v e r
great importance.
from
into
compatible, they m a y be in conflict in s o m e situations. I n
c o n s i d e r t h e e c o n o m i c d i m e n s i o n o f t h e site t ob e o f
" e c o n o m i c " a c t i v i t i e s o ft h e p l a c e , a p a r t
w h e n
cultural a n d natural p r e s e r v a t i o n efforts are generally
region, particularly as a result o f increased t o u r i s m .
P o r t A r t h u r is t h a t i n a m a n a g e m e n t s e t t i n g w h e r e
the case studies demonstrate, there are instances

values held b y different stakeholder groups c o m e
C C N H P d o c u m e n t s state that "while b o t h
S i t e a c k n o w l e d g e s t h e e c o n o m i c v a l u e o ft h e site t o t h e
H a d r i a n sW a l l partners, as h a s b e e n m e n t i o n e d
C O N F L I C T RESOLUTION
T h e p u r p o s e o f v a l u e s - b a s e d m a n a g e m e n t is t o r e s p e c t
place. Nevertheless, the current statement o f significance

a c k n o w l e d g e s that t h e site "has traditionally b e e n
damage
the
e x p l o i t a t i o n o fe n e r g y r e s o u r c e s w o u l d c e r t a i n l y h a v e a
v e r y n e g a t i v e i m p a c t o n t h e c u l t u r a l v a l u e s o ft h e site.
In Port Arthur a n d Hadrian sWall, w h e r e the
i m p o r t a n c e o f t h e e c o n o m i c v a l u e f o r t h e r e g i o n a n d its
inhabitants has b e e n explicitly recognized, stakeholders a n d
site authorities h a v e c r e a t e d s e p a r a t e entities to p u r s u e t h e
benefits o f tourism. Port A r t h u r Regional M a r k e t i n g L t d .
and Hadrian sWall Tourism Partnership are independent
from
t h e sites. H o w e v e r , t h e i r objectives a n d a c t i o n s a r e
222
2 0
(It s h o u l d b e n o t e d that a m o n g
the
sites studied, o n l y P a r k s C a n a d a considers c o m m u n i c a

t i o n o fs i g n i f i c a n c e a n i n t e g r a l p a r t o ft h e
protection
o f t h e v a l u e s o fa site.)
In C C N H P s o m e of the practices introduced by
the N e w A g e stakeholders were seen by s o m e Native
A m e r i c a n g r o u p s to violate their religious beliefs. F a c e d
w i t h this conflict a m o n g stakeholders' values, the N P S pro
hibited all religious c e r e m o n i e s i n places considered sacred.
This decision eliminated the conflict
from
park grounds but
affected the spiritualvalue the place h a d for b o t h groups.

It c a n b e a r g u e d that N P S h a d o n l y t w o alternatives: t o
a l l o w e v e r y g r o u p t oc a r r y o n their p r a c t i c e s a n d rituals o r
to b a n t h e acts c o m p l e t e l y . A c c o r d i n g t ot h e C o n s t i t u t i o n
o f the U n i t e d States, favoring o n e g r o u p over another
w o u l d have constituted discrimination o n the basis
of religion.
T h e r e have b e e n attempts to enlarge the W o r l d
S o m e conflicts have simpler solutions. A t G r o s s e

lie, t h e p r o t e c t i o n o f t h e v e r y i m p o r t a n t L a z a r e t t o r e q u i r e d
H e r i t a g e guidelines to include all the values o f a n o m i
eliminating bat colonies in the eaves. Bats, however, are a
n a t e d site, n o t o n l y t h o s e t h a t a r e c o n s i d e r e d o f i n t e r n a
protected species in C a n a d a , a n d closing access to their
t i o n a l significance. I f this w e r e to h a p p e n , all o f t h e site's
habitat w o u l d have inflicted damage. T h e solution
values w o u l d b e protected b y the W o r l d H e r i t a g e listing.
found
b y t h e a u t h o r i t i e s w a s t oc l o s e t h e e a v e s b u t t o c o n s t r u c t
H o w e v e r , this c h a n g e has b e e n o p p o s e d b y s o m e state par
small structures n e a r b y to w h i c h the colonies
ties w h o d o n o t w a n t to b e subject to international over
could
sight w i t h respect to local or national issues a n d values.
m i g r a t e . T h e s e s t r u c t u r e s a r e m o v e d f u r t h e r from t h e
Lazaretto each year, leading the bats a w a y
from
A l t h o u g h t h e d e s i g n a t i o n as W o r l d H e r i t a g e is
the his
c o n s i d e r e d i m p o r t a n t b y U . S . a n d E n g l i s h a u t h o r i t i e s , it
toric building.
Sometimes aparticularvalue can be given
more
has b e e n u s e d v e r y differently i n e a c h case. P a r k staff at
o r less i m p o r t a n c e i n different decisions. T h e r u i n s o f
C C N H P i n d i c a t e d t h a t t h e site's W o r l d H e r i t a g e status is
the church of Port Arthur have acquired iconic m e a n i n g
i n v o k e d usually to obtain resources or special considera
for t h e site, a n d t h e c h u r c h h a s r e m a i n e d u n r o o f e d for
tion.
2 3
In Hadrian'sWall, o n the other hand, the
U N E S C O
decades. M e a n w h i l e , plans are proceeding to reconstruct
l i s t i n g is t h e f o r c e b e h i n d , a n d o f t e n t h e j u s t i f i c a t i o n for,
p a r t s o f t h e M o d e l P r i s o n to m a k e it m o r e easily c o m p r e
planning and coordination.
hensible to the visitors. Clearly, the aesthetic a n d historic

values are considered v e r y i m p o r t a n t in relation to the
church, w h i l e at the M o d e l Prison, the educational value
a n d probably the architecturalf o r m s s e e m to be given pri
ority over the others.
The V a l u e o f the
Landscape
T h e values recognized b y the criteriaof the W o r l d Her

itage C o n v e n t i o n a n d national heritage schemes are tradi
tional ones, generally historic, archaeological o r scientific,
L O C A L VERSUS NATIONAL AND
artistic a n d aesthetic. Social values have started to be rec
INTERNATIONAL VALUES
ognized in the heritage
T w o o f the sites studied i n this p r o j e c t C h a c o C u l t u r e
field
only lately a n d have b e e n
subject of important recent research.
the
2 4
T h e expansion of the concept of w h a t can consti
National HistoricalPark and Hadrians W a l l w e r e

i n s c r i b e d i n t h e W o r l d H e r i t a g e L i s t i n 1987, a n d t h e n o m i
tute "heritage" h a s l e d to the r e c o g n i t i o n o f the signifi
nation of athirdPortA r t h u r i sin preparation. T h e
cance of landscapes. T h e natural values of the environ
c h o i c e o f j u s t i f i c a t i o n f o r t h e l i s t i n g is left t o t h e c o u n t r y
m e n t have been part of the natural conservation
n o m i n a t i n g t h e site, b u t t h e site m u s t m e e t t h e c r i t e r i o n
s i n c e its i n c e p t i o n . H o w e v e r , t h e c o n c e p t t h a t l a n d s c a p e s
field
or criteria selected at auniversal level. T h i s restriction, b y
are also cultural heritage e m e r g e d in recent decades. Start
definition, w i l l n o t a l l o w all v a l u e s o f a site to b e p a r t o f
ing
the W o r l d H e r i t a g e N o m i n a t i o n , as m e n t i o n e d earlier,
t h e s e t t i n g o f t h e t r a d i t i o n a l " m o n u m e n t s , " it h a s
a n d c o u l d b e s e e n as g i v i n g less i m p o r t a n c e to s o m e
e x p a n d e d to include vast areas that e n c o m p a s s b o t h natu
of
from
a n increased awareness o f the n e e d to protect
ral resources a n d h u m a n creations. This extension of the
the values that do not have "universal importance."

C h a c o w a s listed as aplace that "bear[s] a u n i q u e
s c o p e o f h e r i t a g e is l e a d i n g to r e c o g n i t i o n o f s o c i a l a n d
o r at least exceptional t e s t i m o n y to a cultural tradition o r to
e c o n o m i c values as " n o n m o n u m e n t a l , " a n d utilitarian
a c i v i l i z a t i o n w h i c h is l i v i n g o r w h i c h h a s d i s a p p e a r e d . "
areas are included in heritage resources. This w a s the case
2 1
H a d r i a n sW a l l w a s inscribed u n d e r b r o a d e r criteria, w h i c h ,
in P o r t A r t h u r Historic Site a n d Hadrian's W a l l W o r l d
in addition to the criterion u s e d for C h a c o , included
H e r i t a g e Site, w h e r e , o n c e the "site" w a s r e c o g n i z e d as
"exhibit(ing) a n important interchange o f h u m a n values,
r e a c h i n g b e y o n d the strict confines o f the m o n u m e n t s t o
over aspan of time or within acultural area of the world,
i n c l u d e l a n d , villages, a n d cities, n e w social a n d
o n developments in architecture or technology,
considerations c a m e into play.
monumen
t a l a r t s , t o w n - p l a n n i n g o r l a n d s c a p e d e s i g n " a n d "beQng) a n
economic
At the same time, landscapes are acquiring
outstanding example of atype of building or architectural
i m p o r t a n c e in a n d of themselves, a n d different
or technological ensemble or landscape w h i c h illustrates
for their protection c a n b e seen in the cases o f this study.
(a) significant stage(s) i n h u m a n history."
A s this has h a p p e n e d , the "setting" o f the cultural
2 2
Evidently,
t h e s e criteria leave o u t i m p o r t a n t v a l u e s o f t h e sites.
strategies
resources often extends b e y o n d the official b o u n d a r i e s
223
o f t h e site, a n d c h a n g e s i n t h e u s e o f t h o s e l a n d s c o u l d
i m p o r t a n t historical, cultural, scientific, o r technological
affect t h e o t h e r v a l u e s o f t h e h e r i t a g e site. I n C C N H P ,
a s s o c i a t i o n s a n d it m u s t m a n i f e s t t h o s e a s s o c i a t i o n s i n its
t h e s i g n i f i c a n c e o f t h e s e t t i n g a n d t h e n e e d t o p r o t e c t it
physical substances. P u t another way, the significance of
c r y s t a l l i z e d i n t h e 1970s a s a r e s u l t o f a n t i c i p a t e d e x p a n
c u l t u r a l r e s o u r c e s is b a s e d o n t w o i n t e r r e l a t e d qualities. A
sion o f m i n i n g activities a r o u n d the park. It w a s
c u l t u r a l r e s o u r c e c o n s i s t s o f an u m b e r o f p h y s i c a l , c h e m i
feared
that coal and u r a n i u m mining and the exploitation
of
cal, o r b i o l o g i c a l features; at t h e s a m e t i m e , it c o n s i s t s o f
natural gas w o u l d create atmospheric pollution that
ideas, events, a n d relationships. T h e physical a n d social
w o u l d o b s c u r e t h e v i e w s f r o m t h e site, a n d at t h e
d i m e n s i o n s o f ac u l t u r a l r e s o u r c e a r e i n s e p a r a b l y inter
time bring an increase in the population and
same
develop
w o v e n . F o r ar e s o u r c e t o b e s i g n i f i c a n t , its m e a n i n g m u s t b e
m e n t a r o u n d t h e site. I n m a n y p l a c e s o f H a d r i a n s W a l l
W o r l d H e r i t a g e Site, t h e h o r i z o n is v i s i b l e f o r m a n y k i l o
meters b e y o n d the protected areas. T h e importance
of
indelibly
fixed
in f o r m and fabric."
2 5
T h e B u r r a C h a r t e r also clearly states that

" [ C J u l t u r a l s i g n i f i c a n c e is e m b o d i e d i n t h e p l a c e itself, its
these landscapes and views had been recognized well
fabric, setting, use, associations, meanings, records,
b e f o r e t h e F M D c r i s i s f o c u s e d n a t i o n a l a t t e n t i o n o n it.
related places a n d related objects." It m a k e s a distinction
I n b o t h p l a c e s it is a c k n o w l e d g e d t h a t l e g a l p r o t e c
tion of such vast extents of land w o u l d be
b e t w e e n "conservation," defined as "all the processes

l o o k i n g a f t e r a p l a c e s o a s t o r e t a i n i t s cultural
unreasonable
of
significance"
a n d impossible. E n g l i s h Heritage, as the national a g e n c y
a n d "preservation," said to m e a n "maintaining the fabric o f
m a n d a t e d to p r o t e c t t h e h e r i t a g e o f H a d r i a n sW a l l , h a s
a p l a c e i n its e x i s t i n g state a n d r e t a r d i n g d e t e r i o r a t i o n . "
2 6
reserved the right to c o m m e n t o n d e v e l o p m e n t in places
V o l u m e 2 o f t h e 2000 C o n s e r v a t i o n P l a n o f P o r t A r t h u r
w i t h ah i g h i m p a c t o n t h e s e t t i n g . I n r e c e n t y e a r s , f o r
H i s t o r i c Site l o o k s at the r e s o u r c e s o f the site i n relation to
e x a m p l e , it o p p o s e d ap r o p o s a l t o e s t a b l i s h w i n d f a r m s i n
the values identified a n d the significance established for
the hills visible
the place.
from
parts o f the site a n d f o u n d a n u n e x
p e c t e d ally: m i l i t a r y a u t h o r i t i e s i n an e a r b y a i r b a s e w h o
T h e C a n a d i a n system highlights the importance of
s a w t h e w i n d m i l l s a s ah a z a r d t o m i l i t a r y flights.
m a k i n g the connection b e t w e e n fabric a n d values b y speci
C h a c o a u t h o r i t i e s h a v e a d o p t e d am o r e passive
a p p r o a c h to the protection of the views
from
fying that "[I]n order to guide design decision-making in
t h e site.
practical fashion, heritage character m u s t be clearly defined
O n c e t h e e n e r g y c r i s i s o f t h e 1970s p a s s e d a n d w i t h i t t h e
b y linking the p r i m a r y areas o f heritage value to related
threat of mining, N P S has carefully avoided raising ques
character-defining elements, patterns a n d relationships."
tions a b o u t t h e u s e o f l a n d s a r o u n d t h e site. T h e r a t i o n a l e ,
2 7
I n a c c e p t i n g the intangible d i m e n s i o n o f signifi
as e x p l a i n e d b y t h e f o r m e r s u p e r i n t e n d e n t , is t h a t restric
cance, s o m e organizations have developed n e w
t i o n s o n l a n d u s e i n t h a t r e g i o n o f t h e U . S . a r e av e r y sensi
to establish the c o n n e c t i o n s b e t w e e n values a n d the site
tive issue, a n d e v e n d i s c u s s i n g it w o u l d p o l a r i z e factions.
itself a n d are m a k i n g these connections b e t w e e n values
A s l o n g as the potential threats d o n o t b e c o m e real, the
a n d f a b r i c v e r y explicit. A n e x c e l l e n t e x a m p l e o f this is t h e
N P S is f o l l o w i n g ap o l i c y o f " l e t t i n g s l e e p i n g d o g s lie."
analysis c a r r i e d o u t for the r e s o u r c e s o f G r o s s e lie, w h i c h

e x a m i n e d the various aspects of the
The I m p o r t a n c e o f Fabric
Another big challenge presented by values-based
manage
values identified a n d their protection in the operations
of
t h e site. T h e f o u r cases illustrate different m e a n s o f inte

grating values into practice, and various degrees of suc
cess. T h e old c o n u n d r u m o f access versus c o n s e r v a t i o n
e m e r g e d as p e r h a p s the m o s t c o m m o n conflict o f values,
leading several o f the site authorities to u s e ac o n c e p t
of
"quality o f the visit" as a n a r e n a for tradeoffs.

T h e tangible/intangible duality of the concept
of
s i g n i f i c a n c e is r e c o g n i z e d i n g u i d a n c e d o c u m e n t s . T h e N P S
states that "to b e significant, ac u l t u r a l r e s o u r c e m u s t h a v e
commemorative
intent (significance) in relation to w h a t w a s on-site a n d
m e n t has been establishing the connection b e t w e e n the
224
methods
w h a t the visitor w o u l d see.
2 8
A t C C N H P the p r o t e c t i o n o f the v a l u e s a n d sig

nificance o f the site h a s b e e n e q u a t e d for a l m o s t a c e n t u r y
with the physical protection of the resources. According
to N P S mission, the resources s h o u l d be m a i n t a i n e d
u n i m p a i r e d . I n fact, s i n c e b e c o m i n g an a t i o n a l
monument
a n d l a t e r ap a r k , t h e r e s o u r c e s h a v e b e e n c h a n g e d b y
excavations a n d e n h a n c e m e n t s for interpretation a n d the
e n j o y m e n t o f visitors. S o m e values, s u c h as those attrib
uted to the ruins b y Native A m e r i c a n s , c a n be denied or
receive less recognition if they are s e e n to have a n i m p a c t
on the physical materials of the ruins.
I n G r o s s e lie, ab a l a n c e d e m p h a s i s o n v a r i o u s fac
Heritage agencies use different m e a n s to deter

m i n e w h e r e "values" reside. Traditionally, w o r k w a s con
tors s u c h as access, facilities on-site, interpretation, a n d
d u c t e d as if values resided i n a n y m a t e r i a l that w a s
c o n s e r v a t i o n is t h e h a l l m a r k o f t h e d e f i n i t i o n o f a q u a l i t y
"authentic" a n d a n y structure that h a d "integrity." T h e
visitor experience. A s dictated b y the elements of c o m
values-based p l a n n i n g process calls for t w o steps that
m e m o r a t i v e integrity, successful c o m m u n i c a t i o n o f the
focus o n the physical aspects o f the site.

stepsdocumentation
2 9
These
s i g n i f i c a n c e o f t h e site is g i v e n al o t o f i m p o r t a n c e . O f all
two
the sites studied, G r o s s e lie h a d the m o s t c o m p l e t e analysis
o f the site a n d a s s e s s m e n t o f the
conditions o f the r e s o u r c e s p r o v i d e aclear u n d e r s t a n d
o f the visitors' experience, w h i c h considered issues s u c h as
i n g o f t h e p l a c e , w h i c h is f u n d a m e n t a l to t h e
transportation, t i m e n e e d e d on-site, a n d o p t i m a l itinerary.
connection
O n t h e o t h e r h a n d , C C N H P is t h e site t h a t s e e m s
b e t w e e n "values" a n d fabric.
to m o s t frequently use the "quality o f the visitors' experi

Quality of the Visitors
e n c e " as am a n a g e m e n t a n d m o n i t o r i n g tool. T h e a u t h o r i
Experience
T h e m a n a g e m e n t d o c u m e n t s i n all four sites address the

i m p e r a t i v e o f p r o v i d i n g ah i g h - q u a l i t y e x p e r i e n c e t o visi
tors. S o m e o f the factors seen to influence that quality are
c o m m o n to all f o u r sites, s u c h as i n t e r p r e t a t i o n o f t h e sig
nificance of the place. Nevertheless, there are differences
in emphasis, w h i c h reflect the m a n a g e m e n t
philosophies
o f t h e i n d i v i d u a l sites.
T h e Conservation Plan of Port Arthur Historic
Site determines that m a n a g e m e n t will "endeavor to pro
ties at C h a c o h a v e identified the visitors' ability to b e i n

d i r e c t c o n t a c t w i t h t h e r e s o u r c e s , areflective
atmosphere,
a n d ap r i s t i n e e n v i r o n m e n t as t h e e l e m e n t s t h a t p r o v i d e
quality to the visitors.
3 4
I n this instance, g o o d facilities o n -
site are n o t afactor c o n t r i b u t i n g quality. A s am a t t e r o f fact,

d e v e l o p m e n t o f facilities is s e e n as p o t e n t i a l l y h a v i n g a n e g
ative i m p a c t o n the e n v i r o n m e n t a n d the
atmosphere.
M o n i t o r i n g Values
vide high quality visitor experience, consistent w i t h the
T h e effort to identify a n d protect values w o u l d be i n c o m
conservation requirements a n d enabling visitors a n
plete if the condition of these values could not be moni
understanding of the meanings a n d significance of PA."
3 0
It t h e n g o e s o n to m e n t i o n that n o n e s s e n t i a l facilities that
tored. M o n i t o r i n g , the final stage in m a n y
management
p l a n n i n g p r o c e s s e s , s e e m s a l w a y s to b e left last w h e n it
c o u l d have adverse effect o n cultural significance will be
c o m e s to devoting time a n d resources to
avoided, but that those that are provided will be
M a n y m a n a g e r s a d m i t the n e e d to put m o r e thought
"consis
management.
and
tent w i t h industry best practice." T h e s e directives clearly
r e s o u r c e s into m o n i t o r i n g values. A t the e n d o f the day,
echo the priority of protection and conservation. A t the
g o o d m a n a g e m e n t is e v i d e n t i n h e a l t h y a n d s u s t a i n a b l e
s a m e t i m e , " i n d u s t r y b e s t p r a c t i c e " s e e m s t o r e f e r to its
v a l u e s . M o n i t o r i n g t h e p h y s i c a l r e s o u r c e s is t h e
m a n d a t e t o " c o n d u c t its affairs w i t h av i e w o f
c o m m o n m e t h o d o f m o n i t o r i n g sites, b u t this is u s e f u l
commercially viable."
becoming
most
o n l y i f t h e r e l a t i o n b e t w e e n v a l u e s a n d f a b r i c is estab
3 1
H a d r i a n sW a l l ' s p l a n calls for " p r o v i d i n g visitors
lished and well understood. Although there are today very
w i t h a n o v e r a l l e x p e r i e n c e o f t h e W H S w o r t h y o f its spe
sophisticated tools that can detect minute changes in the
cial values a n d significance."
material, this does not guarantee that the u n d e r l y i n g val
3 2
T h e plan, however,
never
fully defines w h a t aquality experience w o u l d be,
ues of the place are not being eroded. F o r example,
a l t h o u g h it m e n t i o n s e x c a v a t i o n s a n d d i s p l a y o f a r c h a e o
a site m i g h t r e t a i n t o t a l i n t e g r i t y o f its fabric, it m i g h t l o s e
while
logical r e m a i n s ; g o o d interpretation, b o t h i n sites a n d i n
s o m e values t h r o u g h intense (but w e l l - m a n a g e d ) visita
m u s e u m s ; access, s u c h as that p r o v i d e d b y the
tion, noise pollution, or i m p r o p e r use of the place. M o n i
new
National Trail; conservation of the archaeological
t o r i n g i n t a n g i b l e v a l u e s is difficult a n d c a n o n l y b e d o n e
resources; a n d better facilities. A m o n g the facilities m e n
indirectly. T h e organizations involved in this study are
t i o n e d are w e t - w e a t h e r facilities, shops, visitor centers,
employing m e t h o d s that hold promise.
refreshments, a n d toilets sited adjacent to car parks. T h e r e
Parks Canada's concept of
commemorative
is s p e c i a l i m p o r t a n c e a t t a c h e d to t h e q u a l i t y o f t h e s e facil
i n t e g r i t y w a s d e v e l o p e d i n t h e 1990 S t a t e o f t h e P a r k s
ities, e x p r e s s e d i n t h e p l a n as: " I t is i m p o r t a n t t h a t v i s i t o r s
R e p o r t "as af r a m e w o r k to e v a l u a t e a n d r e p o r t o n t h e
to the W H S are w e l c o m e d b y facilities that i m m e d i a t e l y
h e a l t h a n d w h o l e n e s s o f n a t i o n a l historic sites."
c o m m u n i c a t e to t h e m the significance o f the Site t h r o u g h
the process of preparing the c o m m e m o r a t i v e
their quality."
statement includes an in-depth analysis of the relationship
3 3
3 5
Part of
integrity
225
o f t h e c o m m e m o r a t i v e i n t e n t (i.e., t h e v a l u e s a n d signifi
toring for the entire W o r l d H e r i t a g e Site, t h o s e involved i n
c a n c e o f the site) a n d the p h y s i c a l place. I n addition,
p l a n n i n g a n d m a n a g i n g the overall site m a i n t a i n that
the
p r o c e s s i n c l u d e s t h e p r e p a r a t i o n o fo b j e c t i v e s r e l a t e d t o
m o n i t o r i n g is o n e o f t h e i r f o r e m o s t p r i o r i t i e s i n
e a c h o ft h e t h r e e e l e m e n t s o f t h e s t a t e m e n t . T h e s e o b j e c
ing the m a n a g e m e n t s c h e m e after recently revising the
tives s h o u l d u p h o l d "the d e s i r e d state o f t h e site, its
Management
Plan.
Other systems are based o n the use of indicators,
resources a n d their historic values," "describe the ideal

field
develop
conditions sought through management," and "pro
w h i c h provide quantitative data. All these
approaches
v i d e af r a m e w o r k for m a n a g e m e n t activities a n d p e r f o r m
attempt to m e a s u r e change or success. Often,
a n c e i n d i c a t o r s for m e a s u r i n g t h e state o fasite's c o m
the baselines against w h i c h measures are taken are
m e m o r a t i v e integrity."
3 6
Periodically, the agency issues a
however,
frag
m e n t e d t h e y d e a l o n l y w i t h o n e a s p e c t o f t h e site, o r
report o n the conditions of the heritage areas, w h e r e vari
have n o correlation to the values o f the place. T h e r e is
ous indicators associated w i t h the objectives of the
considerable interest in identifying indicators o f sustain-
m e n t are examined and evaluated.
state
ability. T h i s s t u d y s u g g e s t s that t h e significance o f t h e site
3 7
T h e N P S regularly monitors a n d carries out peri
a n d t h e p r o t e c t i o n o f its v a l u e s c o u l d b e t h e b a s e l i n e
could start the
o d i c r e v i e w s o f its u n i t s b u t h a s n o t d o n e a c o m p r e h e n
that
process.
s i v e , s y s t e m - w i d e e v a l u a t i o n o f t h e m . I n 1999, t h e
National Parks Conservation Association launched a fourNotes
y e a r p r o g r a m t h a t " a s s e s s e s t h e h e a l t h o fo u r n a t i o n a l
parks by objectively examining the resource
and threats in selected park units."
3 8
conditions
A s part o fthe work, it
1.
U.S. National Park Service, Management Policies 2001, Wash

ington, D.C.: National Park Service Policy; Parks Canada,
Parks Canada Guiding Principles and Operational Policies,
Ottawa: Parks Canada, 1994.
2.
In http: / /planning.nps.gov/ (10 Feb. 2004).
3.
NPS, Management Policies 2001, Section 2.3.1.
4.
site-wide physical conditions, w h i c h proceeds o n a regular
Statutes of Canada 1998, Chapter 31, "Parks Canada Agency

Act," Article 32. Text available at http: / /laws.justice.gc.ca/
a n n u a l s c h e d u l e a n d is c a r r i e d o u t b y c o n s e r v a t i o n
en/P-0.4/ 89014.html (10 Feb. 2004).
has d e v e l o p e d m e t h o d o l o g i e s t oassess the n a t u r a l a n d

cultural resources, as w e l l as the s t e w a r d s h i p capacity o f
its sites.
3 9
T h i s w o r k is o f r e c e n t d a t e a n d h a d n o t
applied to C C N H P at the time o fthe
been
study
T h e role o f m o n i t o r i n g at P o r t A r t h u r takes at
least t w o f o r m s . O n e o f t h e m is t h e t y p i c a l m o n i t o r i n g
of
staff.
M o n i t o r i n g o f intangible v a l u e s a s n o t e d above, a far
5.
trickier taskis addressed b y s o m e of the habits inculcated

as part o f w h a t o n e c o u l d call the " m a n a g e m e n t
o f P A H S M A : the staff are in constant, o p e n
gc.ca/docs/pc/poli/princip/index_E.asp (10 Feb. 2004).
culture"
communica
6.
See the case study of Grosse lie and the Irish Memorial
National Historic Site in this publication for a detailed discus
sion of the concept of commemorative integrity.
7.
Government Business Enterprises Act 1995, Ministerial Charter

Enterprise: Port Arthur Historic Site.
8.
In the context of a relatively decentralized government, the

Burra Charter, although not a legal document, is by consen
sus the central guidance used by heritage professionals
throughout Australia.
9.
PPG 1, as well as a number of the other PPGs, will be

superceded by corresponding Planning Policy Statements in
t i o n a b o u t t h e s t a t e o f t h e site a n d t h r e a t s t ov a l u e s ; a d d i
tionally, constant s u r v e y i n g o f visitors a n d other
stakehold
ers offers a n indirect, t h o u g h m e a n i n g f u l , s t r e a m o f infor

m a t i o n o n h o w the v a l u e s o f the site are b e i n g t r a n s m i t t e d
(and by extension, h o w they are being
conserved).
In England, the Countryside A g e n c y and English

H e r i t a g e are l e a d i n g ac o n f e r e n c e t oestablish the limits o f
a c c e p t a b l e c h a n g e ( L A C )f o r t h e H o u s e s t e a d s a r e a o f
H a d r i a n sW a l l W o r l d H e r i t a g e S i t e t h e m o s t
intensely
visited part o fthe Wall's archaeological remains. Monitor

i n g c h a n g e is critical i n this v a s t site w i t h al a r g e n u m b e r
of owners, managers, and environments. T h e
method
the course of 2004.
10.
e m p l o y e d , explained in detail in the case study, w o r k s

t h r o u g h d e t a i l e d d i s c u s s i o n s a m o n g aw i d e r a n g e
of
s t a k e h o l d e r g r o u p s t oestablish m i n i m u m c o n d i t i o n s
quality of visitor experiences. A s for the question of
226
moni
Office of the Deputy Prime Minister, Planning Policy Guid

ance 1: General Policy and Principles: Part 39. Found at
http: / / www.odpm.gov.uk/stellent/ groups/odpm_
planning/ documents/page/odpm_plan_6o6895.hcsp
(August 2003).
of
q u a l i t y n e c e s s a r y t os u s t a i n t h e v a l u e s o f t h e site a n d t h e
Parks Canada Agency, "3.2. Planning," in Parks Canada Guid

ing Principles and Operational Policies, 1994. http: //www.pc.
11.
For a complete list of PPGs, see http: / / www.odpm.gov.uk/

stellent / groups / odpm_control / documents /
contentservertemplate / odpm_index.hcst?n=2263&l=2
logical Sites: A Values-Based Approach," in J. M.Teutonico

and G. Palumbo, Management Planningfor Archaeological Sites,
(10 Feb. 2004).
12.
PPG 15 and PPG 16 are due to be replaced by a single PPS.
13.
The Act of Parliament creating Parks Canada Agency in 1998

stipulates that management plans must be revised every five
years.
14.
Los Angeles: The Getty Conservation Institute, 2000, 27-54.

Godden Mackay, Port Arthur Historic Site Conservation Plan,
Volume 1: Overview Report, prepared for the Port Arthur His
toric Site Management Authority, 2000, Section 5.13.
The Port Arthur Historic Site Management Authority Act of 1987,
This holds true for all the sites studied in this project. Each
as amended in 1989.
case explains the network of planning and guidance docu

ments used in the site.
15.
32.
Hadrian's Wall World Heritage Site Management Plan 2001-2007,

2000,76.
English Heritage, Hadrian's Wall World Heritage Site Manage

ment Plan 2002-200J, 2002, Section 1.1.
33.
Ibid., 62.
16.
Ibid.
34.
The CCNHP case study contains a discussion of the quality
17.
Godden Mackay, Port Arthur Historic Site Conservation Plan,

Volume 1: Overview Report, prepared for the Port Arthur His-
of the visit.
35. Parks Canada, Guide to the Preparation of Commemorative
Integrity Statements, 2002, Section 1.1.1.
toric Site Management Authority, 2000, Section 3.3.

18.
The Port Arthur Historic Site Management Authority Act of 1987,
36. Ibid., Section 2.3.3.
as amended in 1989.
37-
19.
20.
National Park Service, Chaco Culture National Historical
1999 Report at http:/ /wwwpc.gc.ca/docs/pc/rpts/
Park Resource Management Plan, 10 January 2002 (Draft), 4.
heritage/sphareport_e.pdf (10 Feb. 2004).
Parks Canada, Guide to the Preparation of Commemorative

Integrity Statements, 2002, Section 1.1.2. http: / / www.pc.gc.
ca/docs/pc / guide / guide / index_e. asp.
21.
See Parks Canada Agency, State of Protected Heritage Areas
38.
In http: / / www.npca.org/across_the_nation/park_pulse/
default, asp (10 Feb. 2004).
Ibid.
World Heritage Committee, World Heritage Convention

Operational Guidelines, Part C, Paragraph 24, a, ii (commonly
called Criterion C [iii]). http: / / whc.unesco.org/
nwhc/ pages/ doc/ main.htm.
22.
Ibid, C (ii) and C (iv).
23.
This can be interpreted as the reflection of the distrust in

certain quarters in the U.S. of all United Nations activities,
even if filtered through UNESCO. Those who opposed the
UN have raised the specter of loss of sovereignty over the
land encompassed in World Heritage sites. For whatever rea
son, the number of WHSs in the U.S. is low compared to
other countries. (Of 730 sites in the World Heritage List, only
20 are in the United States. In comparison, Italy has 36 sites,
Spain 35, France 28, India 23, and Mexico 22). Even those U.S.
places that have been listed do not use their World Heritage
status very publicly.
24.
See, for example, D. Byrne et al., Social Significance: A Discus

sion Paper, Hurtsville, Australia: NSW National Parks &
Wildlife Service, 2001.
25.
NPS, Cultural Resources Management Guidelines, 1997, 9.
26.
Australia ICOMOS, The Burra Charter, 1999, Article 1.
27.
Federal Heritage Buildings Review Office, Federal Heritage

Buildings Review Office (FHBRO) Code of Practice. Ottawa:
Federal Heritage Buildings Review Office, 1996,13.
28.
Parks Canada, "Lieu Historique National de la Grosse-Ile-etle-Memorial-des-Irlandais Plan d'Experience de Visite,"

December 1998 (unpublished document).
29.
For a step-by-step explanation of this process, see M. Demas'

"Planning for Conservation and Management of Archaeo
NOTES
227
Index
Note: Page numbers i n italic type refer to illustrations

and captions; page numbers followed by an " n " refer
to endnotes.
aboriginal values, at Port A r t h u r Historic Site, 133

access to sites: at Fajada Butte i n Chaco, 83-86; at
Grosse lie site, 47-49; restrictions i n Chaco on, 88,
9i, 97-98; visitors experience at Chaco and, 93-95,
96n.i
Act for the Relief of Unemployment through the
Performance of Useful Public Work, and for Other
Purposes, 99n.i8
Action Grosse lie (Toronto), 5in.io
aesthetic values: at Chaco Culture National Historical
Park, 72-73, 220; at Port A r t h u r Historic Site, 129,
132,150
Agency Act (Canada), 20,5in.i
agricultural policy, Hadrian s Wall site management
and, 195-96,199
Allerdale District Council, 182
amenity societies, Hadrian's Wall preservation and, 182
American Indian Religious Freedom Act of 1978, 73, 87,
108-9
American Museum o f Natural History, 64,101
Anasazi culture: i n Chaco Culture National Historical
Park, 63-64, 87-88, 98n.9, ioon.99; Fajada Butte site
and, 85-86
Ancient Monuments Act o f 1910, 207n.i8
Ancient Monuments Act o f 1932, 207n.i8, 209
Ancient Monuments and Archaeological Areas Act o f 1979,
174,179,181,185,190, 207n.3
Ancient Monuments Consolidation and Amendment Act o f
1913, 207n.i8
Ancient Monuments Protection Act o f 1882,179,207n.i8
Ancient Monuments Society, 2o8n.37
Ancient Order o f Hibernians, Grosse lie Celtic Cross
dedication and annual pilgrimage by, 23-24,24,
5
5in.io
A n i m a l disease research, at Grosse lie and Irish

Memorial National Historic Site, 23
Antiquities Act o f 1906, 64-65, 69-71,101,107
Archaeological and Historic Preservation Act of 1974, 71,108
Archaeological Resources Protection Act of 1979, 71, 87,109
archaeological excavations: associative (symbolic)
values of, at Chaco, 75; as central focus at Chaco,
70-77; at Chaco Culture National Historical Park,
60, 63, 63-66,78-79,79, 82-87, 98n.9; cultural land
scapes i n Chaco, 88, ioon.99; at Grosse lie historic
site, 26,26; at Hadrian's Wall W o r l d Heritage Site,
175-79,186-89,207n.5; 207n.i8; information value
of, i n Chaco, 71-72,220; interpretation of, at
Chaco, 81-82; management context for, at
Hadrian's Wall site, 179-85; protection of, at
Grosse lie historic site, 36-37; stakeholder relation
ships and, 91-92
architectural sites, i n Chaco Culture National
Historical Park, 71-72
associative (symbolic) values, at Chaco Culture
National Historical Park, 75
audience identification: at Chaco Culture National
Historic Park, 80-81; for Grosse lie site, 47-49
Australia, values-based heritage management and, 9n.6
Australia ICOMOS Charter for the Conservation of Places
of Cultural Significance (Burra Charter), 9n.6,
i63n.5i, 215, 224, 226n.8; articulation o f values by,
228
INDEX
130-31,133; Broad A r r o w Cafe Study and, 160-61;

Conservation Plan and, 137-39; local authorities
and, 123; Separate Prison preservation and, 142-43
Australia International Council o n Monuments and
Sites (ICOMOS), 121,123,130-31
Australian Convict Sites, 133
Australian Heritage Commission. See Australian
Heritage Council
Australian Heritage Commission Act (1975), 122
Australian Heritage Council, 3; heritage planning of,
130-31; history of, 122, i62n.i2; partnership w i t h
GCI, 10
Australian Heritage Places Inventory, i62n.42
Authenticity: cultural differences i n definition of,
9n.3; fabric and, 8-9; i n site management, 4, 9n.3
Aztec Ruins National Monument, 66
B
BeattieJ. W , 120,164
Bennett, Gordon, 53-54
Birdoswald, Roman Wall at, 175-76,176, 203, 210
Brand, Donald D., 102
Bridges, Roy, 165
Britannia, 176,209
Britannia Romana, 209
British House o f Commons, Select Committee,
establishment o f Port A r t h u r by, 118-19
British Standard on the Principles o f the
Conservation o f Historic Buildings, 187
Broad A r r o w Cafe Conservation Study, 137-38,150,
160-61, 221
Bruce, John Collingwood, 177,209
building maintenance, at Grosse lie historic site, 36
Bureau o f American Ethnology, 101; Chaco Culture
National Historical Park and, 64
Burra Charter. See Australia ICOMOS Charter for the
Conservation of Places of Cultural Significance
business partnerships. See also public-private partner
ships: audience identification and access strategies
for Grosse lie and, 47-49
C
Camden, W i l l i a m , 176,209
Canadian Environmental Assessment Act, 39
Canadian Heritage: interpretive content at Grosse lie
site from, 47; Web site for, 20,5in.2
Carlisle Basin, Hadrian's Wall sites in, 175-76
Carlisle City Council, 182
"Carnarvon" era, at Port Arthur site, 120-22,130,164-65
Carnarvon T o w n Board, 125
Carrawburgh fort excavation, 177
Carvoran fort excavation, 177
Casamero site, 66
Casa Rinconada, 65; access restrictions to, 86, 88-91,
89-90, 9j, 97-98,103; conservation at, 102; stake
holder relationships and, 92
Cascades probation station, 119,122,166
case studies: audiences for and applications of, 10;
conflict resolution in, 222-23; creation of, n-12;
design and methodology, n-12; economic value i n ,
221-22; efficacy of, 3; evolution of, 10; evolution o f
values in, 221; importance o f fabric in, 224-25;
landscape value in, 223-24; local vs. national and
international values in, 223; management planning
in, 217-19; monitoring o f values in, 225-26; part
nership selection and purpose o f project, 10;
"quality o f experience" criteria in, 225; site selec

tion criteria, n ; stakeholders in, 220-21; values
discussed in, 219-23
Celtic Cross (Grosse lie), 23-24,25
Chaco American Indian Consultation Committee, 77,
81, 92,103
Chacoan Outliers Protection Act of 199% 66,73,103
Chaco Archeological Protection Sites, 73,78
Chaco Canyon National Monument, 65,70,101-2
Chaco Center Project, 65-66, 81, 87,103
Chaco Culture Archeological Protection Sites, 65, 66,
102-3; Joint Management Plan for, 79
Chaco Culture Interagency Management Group
(IMG): Chaco Archeological Protection Sites and,
73; history of, 103
Chaco Culture National Historical Park (CCNHP):
access restrictions on, 88, 91; Active Preservation
Sites in, 79; aesthetic values of, 72, 72-73; associative
(symbolic) values, 75; case study characteristics, 60;
conflict resolution in, 222-23; Congressional legis
lation on, 102; creation of, 102-3; cultural context
of, 62-63; cultural landscapes in, 76-77, 87-88,
ioon.99; cultural resources conservation at, 78-79,
79; description and context of, 62, 62-63; Draft
Land Protection Plan, 103; economic value of,
75-76, 222; environmental values of, 75; evolution
as heritage site, 64-68, 98n.11, 221; evolution o f
values at, 77; Fajada Butte in, 83-86, 84; General
Management Plan for, 72,76,78-82, 84-87, ioon.70,
102, 218; historical values at, 74-75; history o f settle
ment and use at, 63, 63-64, 98n.8; information and
dissemination policies, 81-82; landscape values at,
224; local vs. national and international values i n ,
223; management-based policies and preservation
of, 83-92; management context and history of,
61-62; management planning in, 218-19; manage
ment priorities of, 106; maps of, 65, 67; natural
context of, 62, 62; natural resources conservation
at, 79-80; Navajo land title disputes in, 65-66; oper
ations and facilities at, 66-68, 67, 99n.23; preserva
t i o n policies at, 78-80; public enjoyment policies
at, 80-81; quality o f visitors' experience at, 93-95,
96n.i-2,225; research policies, 81; resource
classification scoring system for, 105; scientificeducational information values at, 71-72; selection
criteria for, 11; significance criteria at, 224-25; social
values at, 74; spiritual values in, 73-74; stakeholders
in, 77, 91-92; subsurface rights in, 76; summary o f
legislation concerning, 107-9; time line during
heritage status, 101-4; values associated w i t h ,
69-77,219-20; values-based management, 69-70,
77-82; visitation characteristics, 66, 67, 68; W o r l d
Heritage value of, 76-77
"Chaco Phenomenon," 63,65-66; aesthetic values at
Chaco and, 72-73; interpretation of, 82
"Cherishing the Irish Diaspora," 50
Chesters Roman Fort, 175,177, 200, 209
Chetro Ketl, 65,101-2
cholera epidemics, at Grosse lie and Irish Memorial
National Historic Site, 22-23
Civic Amenities Act (1967), 181
Civilian Conservation Corps (CCC), Chaco Culture
National Historical Park and, 65, 99n.i8,102
Clarke, Marcus, 164
Clayton, W i l l i a m , 177, 209
Coal Mines probation station, 119,122,166
commemorative integrity statements: for Grosse lie

and Irish Memorial National Historic Site, 34,
53-54, 220, 226n.6; history of, at Grosse lie, 53-54;
Objectives for Messages o f National Historic
Significance from, 38; protection from impairment
or threat contained in, 35-37; roots i n Parks Canada
of, 53-54; secondary heritage values at Grosse lie,
protection of, 39
commemorative intent, at Grosse lie and Irish
Memorial National Historic Site, 19,32-33, 220
commercial values. See also economic values: i n Port
A r t h u r Site management, 130-31,1601.36
communication strategies: audience identification for
Grosse lie site, 47-49; o n importance o f Grosse lie,
37-38, 46-47
conservation: at Hadrian's Wall W o r l d Heritage Site,
180; heritage management at Port A r t h u r and, 131,
139-40,144; management coordination at
Hadrian's Wall concerning, 183-85; i n Port A r t h u r
Conservation Plan and secondary plans, 144-47;
o f Separate Prison at Port Arthur, 140-44; i n site
management, 4; values-based framework for, 9
Conservation Plan o f 2000 for Port A r t h u r site, 131-37,
139, i62n.43, i63n.73-74; adoption of, 166; con
flicting values in, 155; economic values in, 222;
effect o n site values of, 155-57,157; government
policies and, 154; impact o n preservation and site
values of, 152-53,163^73; importance o f fabric i n ,
224; management style and planning, 161, 218-19;
secondary plans, 144-47,163x1.63; Separate Prison
structure, 140-44; social values in, 150
"Convictism" era, 118-20; Port A r t h u r Historic Site
and, 117,129
Convict Trail established, 122,166
Coolidge, Calvin (President), 102
Corbridge Museum, 177, 210
Corporate Plan for Port Arthur, 132,139,148-49,
163x1.71; conflicting values in, 155; government
policies and, 154
cost-benefit analysis, pitfalls of, i n heritage site
management, 4
Council for British Archaeology, 183, 2o8n.37
Countryside Agency: Hadrian's Wall site manage
ment and, 180,183,194; monitoring o f values at
Hadrian's Wall, 226
Countryside Commission, 190
cultural conflicts: access restrictions at Chaco and,
88-91; at Hadrian's Wall site, 200-202; over Grosse
lie historic site designation, 29,32-33; resolution of,
in case studies, 222-23
cultural landscape, Chaco defined as, 76-77, 87-88
Cultural Resource Management Guidelines (NPS),
88, 9 i n . i - 2
cultural resources: i n Chaco Culture National
Historical Park, 62-63,70-77; conservation of, at
Chaco, 78-79,79; effective communication o n
importance of, 37-38; heritage values protection at
Grosse lie and, 49; management at Grosse lie of,
34-35; outside Chaco Park, 79; significance criteria
for, 224-25; stakeholders' role in, 7; values-based
management and, 5-6
Cultural Resources Registry o f Quebec, Lazaretto at
Grosse lie and, 43
cultural values: Conservation Plan for Port A r t h u r
and, 144-47,155-57, i63n.78; o f Hadrian's Wall site,
192; at Port Arthur, 138-40, 222; o f Romans, at
Hadrian's Wall, 200-202; Separate Prison at Port
A r t h u r and, 142-43
Cumberland and Westmoreland Antiquarian and
Archaeological Society, 209
Cumbria County Council, 177,182, 210
D
Darlington Amenity Research Trust (DART) report,
183,190, 209
Dead Island (Port A r t h u r site), 119,121,164
decision-making process: management o f Port

A r t h u r and, 139,163x1.56; preservation and site
values at Port A r t h u r and, 152-53
Department for Culture, Media and Sport (DCMS),
Hadrian's Wall and, 180, 2o8n.3i
Department o f Environment, Food, and Rural Affairs
(DEFRA): Countryside Stewardship Scheme,
195-96,199; foot-and-mouth crisis and, 197-99;
Hadrian's Wall site management and, 180
Department o f Environment and Land Management
( D E L M ) (Australia), i62n.i6
Development Advisory Committee for Historic Areas
(Tasmania), 124
dissemination policies, at Chaco Culture National
Historic Park, 81-82
Doyle Inquiry into Port Arthur, 122,124,146,153
Draft Port A r t h u r Site Management Plan, 130
draft process and review, case study creation and, 12
Dupuy, Michel, 31
D u t c h East India Company, 118
E
Eaglehawk Neck outstation, 121-22,166
Eastern State Penitentiary (Philadelphia), 119
economic development: Grosse lie historic site desig
nation and, 29; Hadrian's Wall site management
coordination and, 183-85; lack of, at Chaco site,
80-81, ioon.78
economic values: i n case studies, 221-22; i n Chaco
Culture National Historical Park, 75-76; govern
ment policies at Port A r t h u r and, 153-54; at
Hadrian's Wall site, 191-92; i n heritage manage
ment, 7-8; o f Port A r t h u r Historic Site, 129-30,133,
138-40,144,150 162x1.36; i62n.48; Separate Prison at
Port A r t h u r and, 142-43; University o f Tasmania
economic impact study for Port Arthur, 138,
i63n.52
educational value: o f Chaco Culture National
Historical Park, 71-72; o f Hadrian's Wall site, 192
Egloff, Brian, 131
English Heritage (EH): archaeological excavations
coordination, 187-89; collaborative projects, 3;
coordination o f Hadrian's Wall management w i t h ,
183-85,2o8n.40, 219; G C I collaboration w i t h , 10;
Hadrian's Wall Co-ordination Unit, 178,185;
Hadrian's Wall site and, 177-78, 210; limits o f
acceptable change, 200-202; management plans at
Hadrian's Wall site and, 205, 2o8n.66; m o n i t o r i n g
o f values at Hadrian's Wall, 226; museum building
of, 183,185; national heritage-related agencies and,
180, 2o8n.3i; ownership and management o f
Hadrian's Wall site and, 182; partnership model at
Hadrian's Wall and, 204, 207; protection as priority
of, 8; values o f Hadrian's Wall site and, 191-92;
Wall Recording Project of, 177, 210
Environmental Protection Act, 220
environmental values. See also conservation; land
scape management: Casa Rinconada access issue
and, 88-91; at Chaco Culture National Historical
Park, 75; at Grosse lie historic site, 36; heritage
values protection at Grosse lie and, 49; landscape
management and, 223-24; natural resources
conservation at Chaco, 79-80, 82, 87, ioon.92;
secondary heritage sites at Grosse lie and, 39
Environment Canada directives, 28,5in.2i
Executive Order 11987, ioon.92
exotic species, i n Chaco park, 87, ioon.92-93
F
fabric preservation and destruction: at Grosse lie and
Irish Memorial National Historic Site, 19; impor
tance of, i n case studies, 224-25; as Port A r t h u r
management goal, 131,156-57; Separate Prison at
Port A r t h u r and, 142-43; values and importance
of, 8-9
Fajada Butte, 83-86, 84; historical time line

concerning, 102-3
Federal Government (Canada), Parks Canada Agency
review by, 49
Federal Heritage Building, Lazaretto at Grosse lie
designated as, 40-45
Federal Heritage Buildings Review Office (FHBRO),
36-37, 52n.57
Federal Register, Fajada Butte notice in, 85
First Man to Walk Hadrian's Wall, The, 176,209
Flight to Freedom tours (Tasmania), 128
foot and m o u t h disease (FMD), Hadrian's Wall site
management and, 178-79,193,196-99,197, 206-7,
210, 221, 224
Forestier Peninsula probation station, 119
For the Term of His Natural Life, 121,129,164-65
G
General Land Office, history o f Chaco and, 101
Geological and Geographical Survey, o f Chaco
Culture National Historical Park, 64,101
Georgian Group, 2o8n.37
Getty Conservation Institute (GCI): case study
drafting at, 12; collaborative projects, 3; evolution
o f case studies at, 10; partnership selection, 10
governing authorities. See also local authorities: elicitation o f values by, 7; impact o n Port A r t h u r of,
153-54,16311.74
government business enterprise (GBE): PAHSMA as,
124,153-54, i63n.74, 217-18; Port A r t h u r site and,
122,160, i63n.85
Government Business Enterprises Act, 124
Government Performance and Results Act o f 1993,109
"Great houses," at Chaco Culture National Historical
Park, 70-77
Grosse lie and the Irish Memorial National Historic
Site: addition o f Irish Memorial proposed, 33;
Anglican Chapel on, 26,26; archaeological excava
tions at, 26,26; audience and access issues at,
47-49; bat colonies at, 49; building maintenance at,
36; Carpentry and Plumbing Building, 26; case
study characteristics, 18; Catholic Presbytery at,
26,26; Celtic Cross at, 23-24,24, 33,33; commemo
rative intent and integrity at, 19,31-34,53-54, 220,
226n.6; conflict resolution at, 223; digital informa
tion sources on, 18; Disinfection Building at, 25,
25-26; Doctors' Memorial at, 33,33; effective
communication strategies on significance of,
37-38,46-47; evaluation o f "success" of, 48-49;
ferry service to, 25,2% 47-49,5in.i6; First Class
H o t e l on, 27; geography of, 21-23; guides' role at,
47; health of, 50; heritage site designation, 23-24;
heritage values protection at, 49; historical back
ground on, 18, 20-23, 41-45, 46x1.4; impact o f
management policies at, 39-40,46-49; Irish
Memorial and Cemetery at, 25-26,33,33, 37; land
scapes and environment at, 36; Laundry building
at, 43,43; Lazaretto at, 26,40-46,41-43; learning
points concerning, 19; Level I resources protection
at, 39-40, 46; management context at, 20-27;
management planning for, 218-19; maps of, 22-23;
Marconi Station at, 26,42,42, 45-46; Medical
Examination Office, 26; Medical Superintendent's
House location, 46; m o d e r n facilities on, 26,27,
5in.i9; petitions concerning Irish history of, 31-33,
5in.38; protection from impairment or threat at,
35-37; public input concerning, 29-33; Public
Works Officer's House, 26,26, 46; quality o f visi
tors' experience at, 225; Quarantine Station at, 24,
33,37-38; secondary heritage values, protection of,
38-39; Second Class H o t e l on, 27; selection criteria
for, 11; stakeholders in, 220-21; statement o f
commemorative intent concerning, 33-34; T h i r d
Class H o t e l at, 26,27; values-based management
at, 33-39; values protection at, 28-33,220; Web site
for, 49
INDEX
229
Grosse tie National Historic SiteDevelopment Concept of

1992, 40,46
Grosse tie National Historic SiteDevelopment Concept
Supplement, 30
Grosse tie National Historic SiteReport on the Public
Consultation Program, 31,5211.40
guides: as interpreters at Chaco, 82, 94-95; role of, at
Grosse lie site, 47
Guide to the Preparation of Commemorative Integrity
Statements, 53-54
Guiding Principles and Operational Polices (Parks
Canada Agency), 34-35, 217-18
H
Hadrian's Wall and Vallum Preservation Scheme,
177,190
Hadrian's Wall Co-ordination Unit ( H W C U ) , 178,185,
194-95, 207
Hadrian's Wall Path National Trail, 178,183,185,
200, 225
Hadrian's Wall Tourism Partnership ( H W T P ) ,
2o8n.57,210; cultural values and, 200; economic
values and, 191; local authorities and, 178, 203;
management coordination and, 183-85,194-95,
206-7
Hadrian's Wall W o r l d Heritage Site: agricultural
policy, values, and uses, 195-96,199; Arbeia Roman
Fort, West Gate, 178,187-88, 210; archaeological
excavations at, 175-79,186-89, 207^5; 207n.i8;
balance o f wall and landscape values at, 202-3,
2o8n.62; Birdoswald ruins, 175-76,176, 203, 210;
boundary setting policies at, 192-93; bus service at,
195, 2o8n.57; case study characteristics for, 172-73;
Chesters Roman Fort, 175,177, 200, 209; Clayton
Wall restoration, 174-75,177,188, 207n.4, 209;
Commanding Officer's quarters, 178; conservation
areas at, 180; cultural values of, 192; designated
classifications at, 179-80; digital resources on, 173;
economic value of, 191-92, 222; educational values
at, 192; effect o f W o r l d Heritage designation,
199-202; English Heritage role in, 183; evolution o f
values at, 221; foot-and-mouth crisis and, 178-79,
193,196-99,197, 221; historical values at, 191; history
of, 176-79, 209-10; Housesteads Roman museum,
177,183, 200; impact o f management policies on,
199-205; landscape values at, 223-24; limits o f
acceptable change at, 200-202; listed buildings at,
179-80; listing process for, 180; local authorities,
management partnerships w i t h , 180-81,193-94,
203-4, 2o8n.65; local vs. national and international
values at, 223; management context for, 179-85;
management coordination for, 182-85;
Management Plan Committee, 182-85, 203-4, 2.10;
management planning at, 218-19; Management
Plan o f 1996,178-79,179,191-93, 204-5, 207n.23;
Management Plan o f 2002,187-89,191-93,204-5,
2o8n.66, 210, 218-19; maps of, 174; Military Zone,
176,190-91, 209-10; national heritage-related agen
cies, 180; national heritage statutes and policies
and, 181-82; ownership and distribution issues, 182;
partnership park management model at, 194,
203-4, 2o8n.54; 2o8n.64-66; physical and geogra
phic description, 174-76,174-76, 207^2-3; pilgrim
ages to, 177-79; quality o f visitors' experience at,
225; scheduled ancient monuments at, 179,
2o8n.27; selection criteria for, 6, n ; Single
Regeneration Budget for, 192; South Shields
Roman remains, 175,177-78, 209; Statement o f
Significance concerning, 192; summary o f
management at, 206-7; tiered geographic scheme
for, 202-3; time line for, 209-10; tourism at, 177-79,
194-95, 207n.23; values associated w i t h , 190-92, 220;
values-based management of, 192-99; visitation
trends at, 197,197
Halfway House site, 66
Handbook of the Roman Wall, 177
230
INDEX
"Harmonic Convergence," Chaco park access and,

88-90
Haydn, F. V , 101
Heritage Lottery Fund (HLF) (1993), 181
heritage management: information sources on, 3,
9n.i; limits o f acceptable change policies and,
201-2; management context i n Britain for, 179-85;
at Port A r t h u r site, 130-31
heritage values: at Chaco park, 69-77, 93-95;
definitions of, 4; economics, 7-8; at Port Arthur,
155-57; respect for, at Grosse lie, 49
Hewett, Edgar Lee, 102
historical significance. See significance criteria
Historic Buildings and Monuments Act o f 1953,181
Historic Cultural Heritage Act, 123, i62n.i7
Historic Ghost Tour (Port Arthur), 128,150-52
Historic Sites Act of 193% 71,107
Historic Sites and Monuments Act, 20
Historic Sites and Monuments Board o f Canada
(HSMBC), 20-21; i m m i g r a t i o n theme at Grosse lie
and, 29; interpretive content at Grosse lie site
from, 47; Lazaretto at Grosse lie and, 40-45;
national historic site designation for Grosse lie, 24,
30-31,40,51n.11; National Historic Sites o f Canada
System Plan and, 24; statement o f commemora
tive intent for Grosse lie, 33-34; Web site of, 5in.5
historic values: at Chaco Culture National Historical
Park, 74-75; at Hadrian's Wall site, 191, 203; o f Port
A r t h u r Historic Site, 129,132,150
History of Northumberland, 209
Hobart to Port A r t h u r cruise, 128
Hodgson, John, 209
Holsinger, S. J., 101
H o p i tribe: Chaco Culture National Historical Park
and, 64,101; spiritual values at Chaco and, 73-74
Horsley, John (Rev), 209
Housesteads Roman museum, 177,183, 200-202,
209, 226
H u t t o n , W i l l i a m , 176, 209
Hyde Exploring Expedition, 64,101
I
"immersion" experience, Separate Prison at Port
Arthur, 142-43
i m m i g r a t i o n history, at Grosse lie and Irish Memorial
National Historic Site, 21-23, 28-29,37-38,5in.20
impairment, protection from, at Grosse lie, 35-37
Impression Bay probation station, 119,122,166
informational values, at Chaco Culture National
Historical Park, 71-72
Interior, U. S. Department of, Chaco Culture National
Historical Park history and, 61-62
Interpretation Plan o f 2001 for Port Arthur, 147,
157-58, i63n.8i-82
interpretive programming: at Chaco Culture
National Historic Park, 81-82; at Grosse lie and
Irish Memorial National Historic Site, 19, 47-49
Irish Heritage (Quebec), 5in.io
Irish immigrants: petitions concerning Grosse lie
from, 31-33,5in.38; as stakeholders at Grosse lie
and Irish Memorial National Historic Site, 21-24,
28-33,37; statement o f commemorative intent
concerning Grosse lie and, 33-34
Isle o f the Dead (Port Arthur), 121,127-28
J
Jackson, W i l l i a m Henry, 101
Judd, Neil, 101-2
K
King (Gov), 119
Kin Nizhoni site, 66
kiva structures: access restrictions for, 88-91; at Chaco
Culture National Historical Park, 63-64
L
landscape management: at Grosse lie historic site, 36;
at Hadrian's Wall, 202-3; at Port A r t h u r site,
147-48, i63n.68; value of, i n case studies, 223-24
Landscape Plan for Port A r t h u r site, 147-48, i63n.68
land-use planning, Hadrian's Wall site management
and, 180,194
Lazaretto, at Grosse lie, 40-45,41-43
limits o f acceptable change (LAC): at Hadrian's Wall
site, 200-202; m o n i t o r i n g of, 226
local authorities: Hadrian's Wall and role of, 178,
180-81,193-94; management coordination for
Hadrian's Wall site w i t h , 182-85; partnership
model at Hadrian's Wall and, 204, 2o8n.65; role of,
on Port A r t h u r site, 123-24; system-wide directives
and, 219; values of, vs. national and international
values, 223
Louisiana Purchase Exposition, 71
M
Making Crime Pay, 138
management planning: i n case studies, 217-19; specific
case study plans, 218-19
Maria Island, penal colony on, 119
market approach: to Grosse lie historic site, 29,
5in.28; heritage site management, 4
McGowan Plan, 121,165
Mesa Verde National Park, 74, 9611.4, 98
Mindeleff, Victor and Cosmo, 101
Minister o f Environment and Heritage (Australia), 122
Ministry o f Public Works (Canada), funding for
Grosse lie by, 46
monitoring: o f Grosse lie site, 54; o f values, i n case
studies, 225-26; values-based framework for, 9
Mulroney, Brian, public consultation o n Grosse lie
site and, 31
Municipality of Tasman Planning Scheme, 123-24
N
National Environmental Policy Act (NEPA), 75, 9911.33
National Estate values, at Port A r t h u r site, 122
National Heritage Act (1983), 181,185
national heritage-related agencies (U.K.), Hadrian's
Wall and, 180
national heritage statutes and policies (U.K.), 181-82
National Historical Sites Policy, 51n.11
National Historic Preservation Act of 1966, 71,107-8
National Historic Sites o f Canada, 20,5in.4; System
Plan of, 21, 24,31,5in.6
National Parks and Wildlife Act, 123
National Parks and Wildlife Service (NPWS)
(Australia), 121,123, i62n.i6; authority over Port
Arthur, 158-59,163^83,165; Draft Port A r t h u r Site
Management Plan of, 130
National Parks Conservation Association, 103-4
National Park Service (NPS) (U.S.): Chaco Culture
National Historical Park case study and, 60; collab
orative heritage projects, 3; conflicts over mandate
of, 61, 98n.2; creation and duties of, 61-62,101;
Cultural Resource Management Guidelines, 88,
9in.i-2; environmental values orders of, 75,
99n.55-56; exotic organisms management, 87,
ioon.92-93; Fajada Butte management policies of,
83-86; history o f Chaco Culture National
Historical Park and, 61-66,102-4; Intermountain
Regional Office operations, 66; Joint Management
Plan for Chaco, 73,78-82,103; management plan
ning guidelines from, 217-19; mission of, 62, 217-18;
monitoring o f values by, 226; Organic Act and
creation of, 72-73,101,107; partnership park
management model and, 2o8n.54; partnership
w i t h GCI, 10; preservation policies, 83-92; public
enjoyment policies at Chaco and, 80-81, ioon.78;
"purpose o f the park" criteria, 6, 219-20; Resource
Management Plan o f 1995,78, 92, 94, ioon.72;
significance criteria of, 224; stakeholder relation

ships w i t h , 77, 91-92; values-based management
o f Chaco by, 69-96,77-82, 99n.30, 220; Vanishing
Treasures Initiative, 103
National Park/State Reserve classification, for Port
A r t h u r site, 123-24
National Resources Defense Council, 103
National Trail (England), Hadrian's Wall Path as, 178
National Trust for Historic Preservation, 103;
Hadrian's Wall and, 177; limits o f acceptable
change policies and, 201-2; ownership and
management o f Hadrian's Wall site and, 182
Native American Graves Protection and Repatriation Act
(NAGPRA), 73-74,77, 92,104, 220
Native Americans. See also specific tribes: archaeolog
ical research on, 64, 98n.9-io; Casa Rinconada
access issue and, 88-91; i n Chaco Culture National
Historical Park, 62-63; Chaco resources outside
Chaco park, 79; economic development i n Chaco
and, 80-81, ioon.78; economic value o f Chaco and,
75-76; interest i n Fajada Butte by, 83-86, 86n.7;
involvement i n management planning at Chaco,
219; nineteenth-century fascination w i t h , 71-72,
99n.37; spiritual values at Chaco and, 73-74; as
stakeholders i n Chaco, 73,77, 82, 91-92
natural resources conservation: at Chaco Park, 79-80;
priorities summary at Chaco, 106
Navajo culture: at Chaco Culture National Historical
Park, 63-65, 98n.9; economic value o f Chaco to,
76; Fajada Butte site and, 85-86; history of, at
Chaco, 101-2; social values of, 74; spiritual values
at Chaco and, 73-74
N e w Age movement, Chaco culture site and, 73-74,
88-91, 221
Newcastle City Council, 182
Newcastle Museum o f Antiquities, 182
Newcastle Society o f Antiquaries, 209
N e w South Wales, prisoner transport to, 118-19
Norfolk Bay convict station, 122,164,166
N o r t h Tyneside Council, 182
Northumberland County Council, 182
Northumberland National Park, 181-82,195, 2o8n.57;
limits o f acceptable change policies and, 201-2
O
Organic Act (National Park Service), 72-73,101,107
P
PAHSMA Annual Report, 128
Parks Canada Agency: access protection strategies for
Grosse lie, 47-49; advisory panel report on Grosse
lie, 31-32; collaborative heritage projects, 3;
commemorative intent and integrity at Grosse lie
and, 34; " c o m m e m o r a t i v e intent" c r i t e r i a , 6;
conflict resolution and, 222; "Conservation

Priorities for Grosse lie Natural Resources"
appendix, 52x1.66; creation of, 18, 227^13; Cultural
Resource Management Policy of, 53-54, 224;
federal review of, 49; Grosse lie and Irish
Memorial National Historic Site mission of, 19;
Grosse lie management directives of, 28-29,
5in.2o; Guiding Principles and Operational
Policies, 217-18; heritage values protection at
Grosse lie by, 49; historical background on, 20-23,
5111.1; historic value preservation objectives of,
34-35; history o f commemorative integrity at,
53-54; interpretive scheme for Grosse lie, 37; juris
diction over Grosse lie, 24-25; management plan
ning guidelines in, 217-18; mandate of, 20;
marketing study on, at Grosse lie, 29,5in.28;
National Historic Sites o f Canada System Plan
and, 24; partnership w i t h GCI, 10; public consulta
tion on Grosse lie site, 30-33; publicity over Grosse
lie historic site designation, 29-30; stewardship o f
significant sites and, 5in.28
Parks Canada Guiding Principles and Operational

Policies, 36,53-54
partnership park management model: Hadrian's Wall
site and, 194, 206-7, 2o8n.54; impact on values of,
203-4, 2o8n.64
Pentonville Prison, 119
"Peopling the Land" theme, at Grosse lie and Irish
Pepper, George H . , 64,101
petroglyphs, at Chaco Culture National Historical
Park, 63-64, 83-86, 84
Phillip (Gov), 118-19
physical resources: protection of, at Grosse lie, 35-37;
protection o f as priority 7
Planning (Listed Buildings and Conservation Areas) Act
(1990), 181
Planning Policy Guidance (PPG) directives, 179-80,
182-83,187; planning guidelines in, 218, 226n.9
Planning Policy Statements (proposed for 2004),
226n.9
Plan of the Visit Experience, 37,52n.6i
Point Puer juvenile prison, 119-20,127,164
Port Arthur, Van Diemen's Land, 164
Port A r t h u r and Eaglehawk Neck Board, 121,165
Port A r t h u r Conservation and Development Project
(PACDP), 121-22,129-31,139-40,144,158 i63n.78,165
Port A r t h u r Heritage Advisory Panel (HAP), 124,
142-43
Port A r t h u r Historic Site: aboriginal values at, 133;
aesthetic values of, 129,132,150; Asylum building,
125-26,125-26; Broad A r r o w Cafe tragedy, 122,
134-38,150,160,166, 221; "Carnarvon" era on,
120-22,130,164-65; case study background, 116;
church ruins on, 118,126, 222; Civil Officers' row,
126; Commandant's House, 121,126; Commissariat
Store, 120; Commonwealth heritage legislation,
policy, and administration, 122; conflicting values
at, 154-55; Conservation Plan o f 2000 for, 131-37,
139,140-47,155-57, W> i62n.43, i63n.63; 163^73-74,
218, 220; contemporary articulation o f values,
130-31; convict era and convictism and, 118-20;
Corporate Plan for, 132,139,148-49,163^71;
economic value of, 129-30,133,138-40,144,150
16211.36; i62n.48, 221-22; evolution o f values at, 221;
facilities and services on, 124-28; ferry service to,
121,128,165; fires at, 120,164; geographic descrip
tion of, 117-18,117-18, i 6 i n . i ; Government Cottage,
121,164-66; government policy effects on, 153-54,
163x1.74; historic ghost tours at, 128,150-52; historic
values at, 129,132,150; history o f settlement and
use, 118-12; hospital structure at, 126,126,164;
H o t e l A r t h u r on, 121; Interpretation Plan o f 2001,
147; Landscape Plan for, 147-48, i63n.68, 223-24;
local councils' role in, 123-24; local vs. national and
international values at, 223; Macquarie Harbour,
119; management arrangements and institutional
architecture, 160-61; management context at,
122-24,161; management plans o f 1985 and 1996,
139-40,144; management's impact on site values
and preservation, 152-59; maps of, 117,125; Mason
Cove area, 118,127-28,130; mass shooting at, 122,
134-37,166, 221; Medical Officer's House, 121;
meeting facilities at, 128; military compound on,
126; Model Prison on, 119,121,164-65, 223; moni
toring o f values at, 226; Paupers' Mess, 120,126,
126; penitentiary building, 118,126-27; policy and
values framework at, 160; Powder Magazine struc
ture, 121,165; pre-convict period at, 118; probation
stations and, 119; Raddiffe Collection and
Archaeological Store, 127; scientific values at, 132,
150; selection criteria for, 11; Separate Prison struc
ture, 119,126,126-27,140-44,141', social values at,
129,133,150; summary o f values for, 138-39,149-50,
152; Tasmanian heritage legislation and, 123; tick
eting structure and pricing, 127; time line for,
164-66; Tower Cottage structure, 126; University o f
Tasmania economic impact study for, 138, \63n.51;

values-based management at, 139-52,163^56;
values of, 129-39,2.20; Visitor Center, 127-28,166;
visitors' experience at, 158,225; W o r l d Heritage
values at, 133,162x1.46
Port A r t h u r Historic Site Conservation Policy, 145
Port Arthur Historic Site Management Authority Act,
121-22,124,165-66, 222
Port A r t h u r Historic Site Management Authority
(PAHSMA): benchmark policy statement, 133-34,
137; Conservation Plan and secondary plans
adopted by, 144-47,163^63; Corporate Plan and,
148-49, i63n.7i; creation of, 116,121-22,166; govern
ment policies and, 153-54,^63x1.74; historic ghost
tours policy, 151-52; impact on preservation and
site values of, 152-59; management culture at, 226;
management planning guidelines of, 217-18; Port
A r t h u r site management by, 124,130-31,161; priori
tization o f cultural values by, 156-57; as resource
and stakeholder, 158-59; Tasmanian Heritage
Council and, i63n.8o; values-based management
strategies, 139-52,163^56-57
Port A r t h u r Historic Site Management Plan, 130
Port A r t h u r Memorial Garden, 136,136,166, 221
Port A r t h u r Museum, 120,127,164
Port A r t h u r Region Marketing Ltd. (PARM), 122,
127-28,148-49,161; establishment of, 166; historic
ghost tours policy, 151-52; as resource and stake
holder, 158-59
Port A r t h u r Statement o f Significance, 137-38,158
Port A r t h u r Tourist and Progress Association, 121,165
"Present-ism," i n Grosse lie site designation debate,
32-33
preservation policies: at Chaco, 78-80; at Grosse lie,
34-35; at Hadrian's Wall site, 199-205; at Port
Arthur, 152-59; research and, 83, 87; values-based
management at Chaco and, 83-92
Presidential Proclamation No. 740, 65
Presidential Proclamation N o . 1826,102
prisoner transportation, history of, 117-20,164-66
privatization. See also government business enterprise
(GBE); public-private partnerships: economic
value o f heritage sites and, 8; i n heritage site
management, 4
production process, case study creation, 12
public consultation and input: o n Grosse lie historic
site designation, 30-33; w i t h Native Americans at
Chaco, 77,103; on values, 7
public-private partnerships: conflicting values at Port
A r t h u r over, 154-55; economic value o f heritage
sites and, 8; government business enterprise for
Port A r t h u r site, 122,153-54,160,163^85; PAHSMA
as, 124,160-61
P u e b l o B o n i t o ( C h a c o P a r k ) , 63, 64-66, 66, 72, 101-2
Pueblo del Arroyo, 101-2

Pueblo Revolt o f 1680, 64
Pueblo tribes: archaeological research on, 64, 98n.9;
in Chaco Culture National Historical Park, 62,
62-64,101; Fajada Butte site and, 85-86; social
values of, 74; spiritual values at Chaco and, 73-74
Q
"quality o f experience" criteria: aesthetic values at
Chaco and, 72-73; associative (symbolic) values o f
Chaco and, 75; i n case studies, 225; at Chaco, 80-81,
93-95, 96n.i-2, ioon.78; importance o f fabric and,
224-25; quality of, strategies at Grosse lie for, 38
R
Reclaiming Our Heritage: What We Need to Do to Preserve
America's National Parks, 103
Register o f the National Estate (Australia), 122,
i62n.42
Registre des ressources culturelles du Quebec, 46x1.4
religious freedom laws, spiritual values at Chaco
and, 74
INDEX
231
research policies: case study creation and, n ; at Chaco

Culture NationarHistoric Park, 8ir impact o n
preservation, 83, 87
Resource classification scoring system, at Chaco
Culture National Historical Park, 105
Resource Management Plan, at Chaco Culture
National Historical Park, 70
revenue-centered management model, for Port
A r t h u r site, 130-31
Robinson, Mary, 50
Roman Empire, British reverence for, 177
Roman Wall, The, 177,209
Roosevelt, Theodore, 65, 70,101
s
Saltwater River probation station, 119,122,166
San Juan Basin: economic values of, 76; history o f
Chaco park and, 102-3
Scenery Preservation Act o f 1915,123
Scenery Preservation Board (SPB) (Port Arthur),
120-21,123,164-65
School o f American Research, 81
scientific values: at Chaco Culture National Historical
Park, 71-72; at Port A r t h u r site, 132,150
secondary heritage values, protection of, at Grosse
lie, 38-39
Segedunum Roman Fort, Bath House and Museum,
178,186-87, 210
Senhouse Museum Trust, 178, 210
Senhouse Roman Museum, 177, 210
Separate Prison Project Report, 142-43
Separate Prison structure (Port Arthur), 119,126,
126-27,140-44,141
significance criteria: i n case studies, 219-20; at Chaco
Culture National Historical Park, 70-77; establish
ment of, 5-6; for Grosse lie, HSMBC reaffirmation
of, 24; for Hadrian's Wall site, 192; o f Historic Sites
and Monuments Board o f Canada, 20-21,5111.5;
importance o f fabric and, 224-25; for Port A r t h u r
site, 131-34,137-38, i62n.42; values-based manage
ment and concept of, 5
Simpson, James H . (Lt.), 101
Single Regeneration Budget, for Hadrian's Wall
site, 192
site management, current research on, 4-5
site selection criteria, for case studies, 11
site visits, case study creation, 11-12
Smith O'Brien, W i l l i a m , 121,127,165
Smithsonian Institution, 81
social values: Broad A r r o w tragedy at Port A r t h u r
and, 135-37, i63n.5i; at Chaco Culture National
Historic Park, 74; heritage site management and, 4;
at Port A r t h u r Historic Site, 129,133,150
Society for American Archaeology, 87
Society for the Protection o f Ancient Buildings,
2o8n.37
Sofaer, Anna, 83
Solway Firth, Roman Wall at, 176
South Shields, Roman remains at, 175,177-78,209
South Shields Urban District Council, 177, 209
South Tyneside Metropolitan Borough Council, 182
spiritual values: Casa Rinconada access issue and role
of, 88-91; at Chaco Culture National Historical
Park, 73-74,221
spokespersons, articulation o f values by, 7
stakeholders: Broad A r r o w tragedy at Port A r t h u r
and, 135-37; i n case studies, 220-21; at Chaco
Culture National Historical Park, 77, 82, 91-92; at
Grosse lie and Irish Memorial National Historic
Site, 19; i n Grosse lie site designation, 32-33;
Tasman Peninsula region as, for Port A r t h u r site,
158-59; values consultation w i t h , 7
Steering Committee o f the Case Study Project:
project design and methodology, n-12; project
objectives set by, 10; site selection by, 11
Strategyfor Hadrian's Wall, 190,210
232
INDEX
subsurface rights, i n Chaco, 76

Sullivan, Sharon, 155
"Sun Dagger" petroglyph, 83-86, 84
sustainability management, at Hadrian's Wall site, 195
T
Tasman, Abel, 118
Tasmania: i n convict era, 118-20; geography of, 117,
117-18
Tasmanian Department o f Lands, Parks, and
Wildlife, 124, i 6 i n . i 6
Tasmanian Department o f Tourism, Parks, Heritage
and the Arts, 124, i62n.i6
Tasmanian Heritage Act, 16311.74
Tasmanian Heritage Council ( T H C ) , 123-24,143,
i63n.8o
Tasmanian Heritage legislation, 123
Tasmanian Heritage Register, 123,131-32, i62n.42
Tasmanian Minister o f Arts, Heritage and
Environment, 121
Tasmanian Minister o f State Development, 148-49
Tasmanian Museum, 165
Tasmanian Tourist Association, 120,164, 222
Tasmanian Visitor Information Network, 127
Tasman Island Wilderness Cruise, 128
Tasman Municipal Council, 121-25,165
Tasman Peninsula: Port A r t h u r Historic Site on, 117,
120,122; as resource and stakeholder, 158-59
Tasman Peninsula Board, 121,165
Threatening Rock, 102
tourism: at Chaco Culture National Historic Park,
80-81, ioon.78; economic value o f heritage sites
and, 8, 221-22; Grosse lie historic site designation
and, 29; at Hadrian's Wall W o r l d Heritage Site,
177-78,194-95; at Port A r t h u r Historic Site, 120-22,
138-39, i63n.55
Town and Country Amenities Act (1974), 181
Town and Country Planning Act (1990), 181
Transportation Act o f 1717,118
treatment interventions, at Grosse lie and Irish
Tullie House, 182
Twentieth Century Society, 2o8n.37
T w i n Angels site, 66
Tyne Museum, 178,182, 210
Tyneside urban area, Hadrian's Wall sites in, 175
U
U n i o n Steamship line, 164
United Nations Educational, Scientific and Cultural
Organization (UNESCO): Australia ICOMOS
affiliation w i t h , 123; British heritage-related agen
cies and, 180; Hadrian's Wall Heritage Site designa
t i o n by, 177-78; U.S. distrust of, 227^23; W o r l d
Heritage Committee, Chaco site designation by,
66,103
United States, prison reforms in, 119-20
universal values, o f Hadrian's Wall site, 190-92, 220
University o f Tasmania economic impact study, for
Port Arthur, 138,16311.52
V
"valorization" o f heritage sites, at Port Arthur, 138,
16311.55
values: aesthetic values, at Chaco, 72-73; balance of, at
Hadrian's Wall site, 202-3; Broad A r r o w tragedy at
Port A r t h u r and, 134-37; Casa Rinconada access
issue and role of, 88-91; i n case studies, 219-23; o f
Chaco Culture National Historical Park, 69-77;
conflicts over, at Port Arthur, 154-55; economic
values, 7-8,75-76; effect o f Conservation Plan o f
2000 for Port Arthur, 155-57; elicitation of, 7; evolu
tion of, at Chaco, 77; evolution of, i n case studies,
221; at Grosse lie and Irish Memorial National
Historic Site, 28-33; Hadrian's Wall site, under
standing and protection of, 190-92; heritage
management and protection of, 8; historic values,

at Chaco, 74-75; identification of, 5-9; importance
o f fabric to, 8-9; local vs. national and interna
tional values, i n case studies, 223; m o n i t o r i n g of,
i n case studies, 225-26; partnership models and,
203-4, 2o8n.64; o f Port A r t h u r Historic Site,
12.9-39, i62n.33-35; preservation of, at Grosse lie,
34-35; protection of, 8; public debate over, i n
Grosse lie site designation, 31-33; role of, i n Chaco
management, 77-82; social values at Chaco, 74;
spiritual values, at Chaco, 73-74; W o r l d Heritage
value, o f Chaco, 76-77
values-based management: applications of, 3; authen
ticity and, 9n.3; at Chaco Culture National
Historical Park, 69-96,77-82; commemorative
integrity at Grosse lie and strategies for, 36-37;
conflict resolution and, 222-23; defined, 5-6; footand-mouth crisis at Hadrian's Wall and, 196-99; at
Grosse lie and Irish Memorial National Historic
Site, 19,33-39; at Hadrian's Wall site, 192-99;
impact at Grosse lie of, 39-40, 46-49; impact at
Hadrian's Wall site of, 199-205; impact at Port
A r t h u r of, 152-59; intellectual construct of, n ;
organizational differences i n definition, 5, 6n.2; at
Port A r t h u r Historic Site, 139-52,16311.56; Port
A r t h u r Interpretation Plan and, 157-58; preserva
t i o n o f Chaco and, 83-92; visitors' experience at
Chaco and, 93-95
"value the layers" conservation philosophy, 131
Van Diemen's Land, 117-20. See also Port A r t h u r
Historic Site
Vanishing Treasures Initiative (NPS), 103
Venice Charter, 9n.6,186
Victorian Society, 2o8n.37
Vindolanda Trust, 177, 209; ownership and manage
ment o f Hadrian's Wall site and, 182,188
Vivian, Gordon, 65,102
W
Wall Recording Project, 177, 210
War Disease Control Station, at Grosse lie and Irish
Washington Expedition, at Chaco Culture National
Historical Park, 64,101
Wear Museum, 178,182, 210
Web sites: for Chaco, 82; for Grosse lie, 49
Wetherill, Richard, 64,101
W h i n Sill, Roman Wall at, 176,176
Whitehouse steamer service, 120,164
Wilderness Act of 1964, 63
Williamsburg Approach, at Port A r t h u r site, 130
W o r l d Heritage Convention, 66,76,179-80
W o r l d Heritage Operational Guidelines, 76
W o r l d Heritage Site Management Plan Committee
(WHSMPC), 178
W o r l d Heritage Sites. See also Hadrian's Wall W o r l d
Heritage Site: agricultural policies at, 195-96,199;
boundary setting policies, 192-93; Chaco Culture
National Historical Park as, 76-77, 92,103; cultural
properties criteria for, 178; Hadrian's Wall case
study, 172-213; impact o f designation o n Hadrian's
Wall management, 199-202; limits o f acceptable
change policies and, 200-202; local vs. national and
international values at, 223, 227^23; Port A r t h u r
nomination at, 132-33,16211.46; protection o f
values at, 8; universal values criteria for, 6
W o r l d Monuments Fund, 103
World's Columbian Exposition, 71
W u p a t k i National Monument, 96n.4
Y
Young, David, 138
z
Z u n i culture, Fajada Butte site and, 85-86
About the Authors
M a r t a de l a T o r r e i s t h e d i r e c t o r o f t h e M u s e u m
Studies
anthropology and holds adoctorate in anthropology,
G r a d u a t e Certificate P r o g r a m at Florida International
a specialization in archaeology,
U n i v e r s i t y i n M i a m i . F r o m 1985 t o 2002 s h e w o r k e d a t t h e
California at Berkeley.
Getty Conservation Institute (GCI), w h e r e she w a s direc

tor o f training a n d , later, h e a d o f i n f o r m a t i o n a n d c o m
m u n i c a t i o n s . W h i l e at the G C I ,she led a six-year r e s e a r c h
project on the values of heritage, w h i c h produced several
research reports a n d the four case studies presented in this
publication. Prior to joining the G C I ,she w a s director o f
special projects a n d administration at the International
C o u n c i l o f M u s e u m s in Paris, France. S h e holds a n M . A .
in arts m a n a g e m e n t
art history a n d d e s i g n
from
from
A m e r i c a n University, aB.A. in
George Washington Univer
sity, a n d a C e r t i f i c a t e o f M u s e u m S t u d i e s
from
the Ecole
d u L o u v r e in Paris.
Margaret G . H . M a c L e a n i s a c u l t u r a l h e r i t a g e
analyst
engaged in heritage conservation and management

from
policy,
interna
tional theft a n d illegal trafficking. A s senior training pro

g r a m coordinator at the G e t t y C o n s e r v a t i o n Institute
( G C I ) f r o m 1989 t o 1993, s h e d e v e l o p e d a n d
implemented
training p r o g r a m s relating to conservation a n d
manage
m e n t o f a r c h a e o l o g i c a l heritage m a t e r i a l s a n d sites. F r o m
1993 t o 1999, a s d o c u m e n t a t i o n p r o g r a m d i r e c t o r a t t h e
G C I , she established afield r e c o r d i n g a n d
the University of
Randall Mason i s a s s o c i a t e p r o f e s s o r o f a r c h i t e c t u r e ,
G r a d u a t e P r o g r a m i n H i s t o r i c Preservation, at the U n i v e r
sity o f P e n n s y l v a n i a . T r a i n e d i n g e o g r a p h y , history, a n d
u r b a n planning, h e w o r k e d previously at the G e t t y C o n s e r
vation Institute a n d w a s director o f the Historic Preserva
tion P r o g r a m at the University o f M a r y l a n d . I n addition, h e
is a p a r t n e r i n t h e n o n p r o f i t r e s e a r c h g r o u p M i n e r v a P a r t
ners, w h i c h develops projects to strengthen the connections
b e t w e e n heritage conservation a n d social development.
H i s r e c e n t l y p u b l i s h e d w o r k i n c l u d e s Giving Preservation a
History: Histories of Historic Preservation in the United
States
( e d i t e d w i t h M a x P a g e ; R o u t l e d g e , 2003).
w i t h t h e U n i t e d S t a t e s D e p a r t m e n t o f State, w h e r e s h e is
and in the protection of movable heritage
from
with
information
m a n a g e m e n t section in support of the GCI's
D a v i d Myers i s r e s e a r c h a s s o c i a t e a t t h e G e t t y C o n s e r v a
tion Institute in L o s Angeles. H e w a s aKress Research Fel
l o w at the University o f Pennsylvania's A r c h i t e c t u r a l C o n
servation Research Center
from
2000 t o 2001. F r o m 1991 t o
1995 h e s e r v e d a s a l e g i s l a t i v e a s s i s t a n t t o a U . S . r e p r e s e n t a
tive. H e s t u d i e d historic p r e s e r v a t i o n , g e o g r a p h y , a n d
political science a n d holds amaster's degree a n d a n
a d v a n c e d certificate i n architectural c o n s e r v a t i o n a n d site
management
from
the University o f P e n n s y l v a n i a as w e l l
as amaster's d e g r e e f r o m the University o f K a n s a s .
conservation
projects. She studied art history, cultural geography, a n d
ABOUT THE AUTHORS
233
T h e following supporting d o c u m e n t s o n the enclosed C D - R O M are gratefully used by permission
of
the organizations listed below:
Grosse l i e a n d t h e Irish M e m o r i a l
P o r t A r t h u r Historic Site
N a t i o n a l Historic Site
T h e P o r t A r t h u r Historic Site C o n s e r v a t i o n Plan, v o l u m e s
G r o s s e lie N a t i o n a l H i s t o r i c S i t e D e v e l o p m e n t C o n c e p t ;
1 a n d 2; B r o a d A r r o w C a f e C o n s e r v a t i o n S t u d y ; a n d t h e
G r o s s e lie N a t i o n a l Historic S i t e R e p o r t o n the Public
P A H S M A A n n u a l R e p o r t 2001
Consultation P r o g r a m ; C o m m e m o r a t i v e Integrity State
permission o f the P o r t A r t h u r Historic Site
were reproduced with the
m e n t for G r o s s e lie a n d the Irish M e m o r i a l N a t i o n a l H i s
Authority
Management
toric Site; G r o s s e lie a n d the Irish M e m o r i a l N a t i o n a l H i s

toric Site M a n a g e m e n t Plan; P a r t III( C u l t u r a l R e s o u r c e
M a n a g e m e n t Policy) of Parks C a n a d a Guiding Principles
a n d O p e r a t i o n a l Policies; a n d G u i d e to the Preparation o f
C o m m e m o r a t i v e Integrity S t a t e m e n t s have all b e e n gen
erously provided by the Parks C a n a d a A g e n c y
Plan/Develop
m e n t C o n c e p t Plan; C h a c o C u l t u r e Statement for Inter

pretation and Interim Interpretive Prospectus;
H a d r i a n sW a l l W o r l d H e r i t a g e Site M a n a g e m e n t
1996
a n d H a d r i a n sW a l l W o r l d H e r i t a g e Site
Plan
Management
P l a n 2002-2007 w e r e r e p r o d u c e d w i t h t h e k i n d p e r m i s s i o n
o f E n g l i s h H e r i t a g e . P l a n n i n g P o l i c y G u i d a n c e 15: P l a n
Chaco C u l t u r e N a t i o n a l H i s t o r i c a l P a r k
The Chaco Culture General Management
H a d r i a n ' s W a l l W o r l d H e r i t a g e Site
and
N a t i o n a l P a r k S e r v i c e M a n a g e m e n t P o l i c i e s 2001
kindly provided by the U.S. National P a r k Service.
were
ning and the Historic E n v i r o n m e n t and Planning Policy

G u i d a n c e 16: A r c h a e o l o g y a n d P l a n n i n g a r e C r o w n c o p y
right materials reproduced w i t h the permission of the
C o n t r o l l e r o f H M S O a n d the Q u e e n sPrinter for Scotland.

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Heritage Values i n Site Management

T h e Getty Conservation Institute, Los Angeles

Field Projects and

T h e G e t t y C o n s e r v a t i o n Institute w o r k s internationally to advance c o n s e r v a t i o n and

Patrick Pardo, Project

T h e i n d i v i d u a l case studies w e r e originally designed by Joe M o l l o y a n d copyedited by

P h o t o g r a p h s in the G r o s s e lie case study are courtesy o f Margaret G . H . M a c L e a n .

T h e a c c o m p a n y i n g C D - R O M contains copyrighted materials that have b e e n used w i t h

Library of Congress Cataloging-in-Publication Data

The Case Studies

Grosse l i e and the I r i s h M e m o r i a l

Chaco Culture N a t i o n a l Historical Park

Marta de la Torre, Margaret G. H. MacLean,

Margaret G. H. MacLean and David

U n d e r s t a n d i n g and P r o t e c t i n g the Values

o f Grosse l i e and the Irish M e m o r i a l

the Values o f the Park

Appendix A: T i m e Line during

Appendix A: Commemorative Integrity

Hadrian's W a l l W o r l d Heritage Site

Randall Mason, David Myers, and Marta de la Torre

Randall Mason, Margaret G. H. Maclean,

Management Context and

Values o f the Site

the C l o s i n g o f the Penal C o l o n y

Issues Raised b y the Case Studies

Contents o f Supporting Documents o n CD-ROM

I a m pleased t o w r i t e this f o r e w o r d t o Heritage Values in

b e t w e e n i n t e r n a t i o n a l guidance d o c u m e n t s and technical

Site Management: Four Case Studies, the result o f research

i n t e r v e n t i o n guidelines. I t is o u r h o p e that the case stud

carried o u t b y b o t h the staff o f the G e t t y C o n s e r v a t i o n

ies p r o v i d e the reader w i t h a n e w and different v i e w p o i n t

Institute ( G C I ) a n d o u r colleagues i n heritage organiza

over the landscape o f m a n a g i n g and preserving c o m p l e x

tions a r o u n d the w o r l d . T h e b o o k presents the results o f

the w o r k o f a g r o u p o f dedicated professionals, w h o came

T h e case studies themselves are available o n the

together over a p e r i o d o f t w o years t o discuss values-

based m a n a g e m e n t o f c u l t u r a l heritage sites.

this p u b l i c a t i o n o f the case studies also includes a compar

T h e case studies presented i n this v o l u m e are

i s o n o f the m a n a g e m e n t policies i m p l e m e n t e d at the dif

the result o f a collaborative project o f the A u s t r a l i a n H e r

ferent sites and an explanation o f the m e t h o d o l o g i e s and

process f o l l o w e d i n the development o f the case studies. I t

English Heritage, the U n i t e d States N a t i o n a l Park Service,

is o u r expectation that these methods, w h e n used b y o t h

Parks Canada, and the G C I . T h e individuals representing

ers i n the conservation field, m i g h t p r o v i d e a critical mass

o f i n f o r m a t i o n t o create guidelines and evaluation stan

Kate Clarke, Francis M c M a n a m o n , D w i g h t Pitcaithley,

dards for best practice.

Christina C a m e r o n , G o r d o n Bennett, and Francois

I hope that this v o l u m e w i l l p r o v i d e unconven

LeBlancsteered the development o f the case studies

t i o n a l insights i n t o the challenges o f preserving the

and w o r k e d closely w i t h the quartet w h o c o o r d i n a t e d

u n i q u e , ever-changing, and often-conflicting values o f

the w o r k and w r o t e the text: M a r t a de la T o r r e and D a v i d

c u l t u r a l heritage sites t o b o t h students and practitioners

M y e r s o f the G C I and M a r g a r e t G. H . M a c L e a n and Ran