Crisis Handbook

The Crisis Handbook, a 1990 publication on Preservation Pennsylvania, continues to be a useful tool for the preservation community. Produced with funds from the Philadelphia Intervention Fund, a Preservation Pennsylvania grant program funded by The Pew Charitable Trusts, the Handbook has received wide distribution and was reprinted in its entirety as a part of a National Trust for Historic Preservation Information series publication.

You are encouraged to print the handbook below for your use.



Crisis Handbook
A Guide to Community Action

The preservation community has, in recent years, become deeply involved in the battle to stop the spread of suburban sprawl. Through our role in sponsoring Tom Hylton's book Save Our Land, Save Our Towns and forming 10,000 Friends of Pennsylvania - a coalition of groups fighting to save Pennsylvania's cities, towns and countryside - Preservation Pennsylvania is viewed as a leader in the fight to save the rapidly disappearing context of our historic places. And yet, preservation's battles often seem to come back to saving a specific historic place or a specifc historic building.

Ironically, as we go to press with the reprinting of this popular guide to managing a preservation crisis, Preservation Pennsylvania's own headquarters building - which was purchased and rehabilitated just two years ago in a locally designated historic district in downtown Harrisburg - is threatened with demolition for construction of a highrise municipal parking garage. This immediate crisis is also a situation that could, ultimately, have implications for the future security of all historic districts across the commonwealth.

As strains of Joni Mitchell's "They paved paradise and put up a parking lot" spun through my head, I pulled out my own well-worn copy of the Crisis Handbook and we began, with our board of directors and our neighbors, to plan a strategy for dealing with the crisis.

I hope you will find, as I have, that this guide remains one of the best blueprints for dealing with preservation emergency. While each crisis situation brings its own special circumstances, it is good to know there is a tested methodology to mobilize quickly and concentrate efforts in the cause of saving Pennsylvania's heritage.

Caroline E. Boyce
Executive Director
May 1998

On one side of my desk I keep the yellowing copy of a cartoon that shows a modern-day Paul Revere galloping through a neighborhood shouting, "To arms! To arms! The bulldozers are coming!" It's a great cartoon: I just wish it were funny. The sad truth is that, despite much recent success, too much needless demolition still takes place; and, all too often, preservationists are forced to mount a last-minute response to an unexpected emergency.

Preservation Pennsylvania receives countless letters and telephone calls from individuals and community groups trying to save historic buildings. While every example is different, certain characteristics are common. Developing a plan of action is the key to success.

We believe that this Crisis Handbook outlines a process that can be followed in addressing such emergencies. We hope that you will not let it limit your thinking, but that you will use it as a framework for developing your own ideas and new approaches.

On the other side of my desk I keep a quotation from Stephen Leacock, "He . . . flung himself upon his horse and rode madly off in all directions." It is our hope that when the bulldozers threaten, you will turn to this handbook and find in it the direction you need.

Grace Gary
Executive Director (1986 - 1994)
Introduction to the First Edition (1990)


I. KNOW THE BUILDING

History, like beauty, is sometimes in the eye of the beholder, and significant buildings may be unappreciated by their community because of poor condition, location or lack of aesthetic appeal. In such cases, official designation as historic is invaluable; and, it is always difficult to generate enthusiasm for the preservation of a building that does not meet the criteria for official designation. Many communities have enacted local ordinances that designate historic buildings at the local level, but the best-known designation is the federal listing, the National Register of Historic Places. A property is considered to be listed in the National Register if it is listed individually or as "contributing" in a National Register historic district. It is important to note that National Register listing provides a property with no protection against privately funded actions and only limited protection against publicly funded projects. Local designation protection varies depending on the local ordinance. For more information on the National Register, you should contact the State Historic Preservation Office. (See address in Appendix)

A. Assess significance

B. Identify owner

C. Check zoning

D. Assess physical condition

E. Establish fair market value



II. IDENTIFY THREAT

Proposed demolition poses a clear, and clearly understood, threat to a historic building, but other, less obvious, threats may present as great a danger. Even the proposed incompatible use of adjacent land or buildings may threaten the future of a historic building. Understanding the threat will guide your response; if, for example, the proposed project requires a federal permit or will use federal funds, Section 106 of the Historic Preservation Act requires that a review of the project be undertaken by the State Historic Preservation Office. (See address in Appendix)

A. Proposed demolition

  1. Evaluate potential replacement development

    1. Will it meet current zoning?

    1. Is this genuinely best site?

    1. What investment will it generate?

  5. Determine sources of financing for demolition and new construction

    1. Are public dollars involved?

    1. Is private financing secured?

    1. What is source of private financing?

  9. Identify any needed local, state, and/or federal permits

B. Neglect

  1. Check compliance with existing municipal codes

  2. Review owner's record with other property

  3. Review owner's property tax record for this property

C. Incompatible use

  1. Review existing municipal zoning

  2. Evaluate impact on neighborhood



III. DETERMINE "REALITY"

It is always important to have a realistic view of what you may be up against. If you have less than a week to stop a project that is seen to be in the public interest by a community that has no history of support for preservation. your chances of success are small but. read on! A. Evaluate climate of opinion

  1. Organizational support for preservation

  2. Neighborhood support for preservation

  3. Community support for preservation

  4. Business. media, or government support for preservation

  5. Support of above for preservation of this building

B. Assess time limits

  1. Municipal review and permit process

  2. State/federal review and permit process

  3. Project timetable

C. Know process for project approval D. Identify allies

  1. Yours

  2. Theirs

  3. Determine each player's self-interest



IV. KNOW YOUR GOAL

There are many good reasons to become involved in a preservation issue. The principal reason should always be to influence a design/planning decision in your community. In the process, however, you can increase your community's understanding of preservation issues, gain new members or support for your organization, or encourage more protective legislation.

A. Relative to specific case

  1. Is it to prevent demolition?

  2. Is it to modify new plans?

  3. Is it to restore the historic building?

B. Relative to community

  1. Is it to create a community resource?

  2. Is it to generate awareness?

  3. Is it to encourage new legislation?

C. Relative to organization

  1. Is it to increase public support?

  2. Is it to position organization:

    1. For next issue?

    1. For fund raising?

    1. With community?


V. EXPLORE ALTERNATIVES WITH OWNER/DEVELOPER

Mark Twain wrote "it is difference of opinion that makes horse races;" plans for development unsympathetic to historic resources may arise from many motivations, including concern over financial return, changing demographics, urban policy, lack of imagination, or honest preference for the new. It is always in the best interest of a community and the concerned parties if differences of opinion can be resolved through negotiation. Do not assume that the other side is determined to do what you fear most.

A. Prepare to negotiate

  1. Visualize best case/worst case scenario

  2. Prepare short (1-3 page)position statement

  3. Research economic advantages of preservation

    1. Historic rehabilitation tax credits

    1. Facade easement donation

    1. inancial involvement of government or non-profit organization

      1. Acquisition financing at below market rates

      1. Construction financing at below market rates

      1. Grants (unlikely)

    1. Public relations

  11. Select negotiating team and appoint chairman

    1. Keep committee small (6-8)

    1. Select members with special skills and influence, e.g.,attorneys, architects,planners,developers, etc.

  14. Recommend neutral location for meeting

B. Negotiate

  1. Distinguish the people from the problem

    1. Listen to other side's interests

    1. Treat other side's concerns with respect

    1. Avoid emotional outbursts

    1. Do not react to emotional outbursts

  6. Establish flexible position

    1. Focus on desired goal not bargaining position

    1. Recognize each side's multiple interests

    1. Identify shared interests

    1. Avoid debate; seek dialogue

  11. Propose options for mutual benefit

    1. Recommend practical alternate use for building

    1. Demonstrate possible inclusion of building in development plan

    1. Propose realistic alternative purchaser for property

C. Don't be a victim

  1. Question "phony facts"

  2. Present alternative to biased "expert"

  3. Beware less than full disclosure


VI. QUESTION FURTHER ACTION

Is this the right battle at the right time for you? If negotiation has failed, it is time for you and your organization to decide how much further you wish to go. You should base your decision on the importance of the threatened building; the value of the proposed project; can your organization afford to lose; how any ensuing conflict will affect preservation in your community.


VII. PREPARE FOR CONFLICT

Once you decide to continue your efforts despite failed negotiations, much of your time will be directed at gaining support for your cause in the community. It is essential that your organization be united and clear in its purpose. Both internal coordination and external communication will be more efficient if a single coordinator, or a small committee, leads the organizations efforts. Choose the members of the committee not only for their willingness to work, but also for specific skills and access to decision makers. From this point on, it is not as important to be right as it is for the community to understand why you are right. Your communications must be clear, concise, and compelling.

A. Secure organizational support

B. Estimate realistic time and money commitment expected of organization and volunteers

C. Appoint coordinator

D. Select committees

  1. Keep committees small (6-8)

  2. Select members for specific skills and influence, e.g., attorneys, architects, developers, planners,etc.

E. Establish network of allies


VIII. PLAN TO WIN

Preservation is a most pragmatic discipline, and buildings saved are the truest measure of success. Success in preservation comes from knowledge and communication: knowledge about the endangered building, the threats to it, and the process by which decisions will be made and the persuasive communication of why and how the building should be saved.

A. Develop case for your cause

  1. Prepare short (1-2 paragraph) mission statement

  2. Review position paper

  3. Gather background on other preservation successes

  4. Prepare economic case for preservation

  5. Prepare emotional case for preservation, eg., "I went to Central School. . . ."

B. Present positive well-researched testimony

  1. Know your facts

    1. Significance of building

    1. Actual condition-if poor, why?

    1. Cost of improvements

    1. Practical reuse possibilities

    1. Realistic funding sources

  7. Cite positive examples

  8. Prepare hand-outs

  9. Prepare visuals

  10. Secure experts

  11. Coordinate presentation

C. Generate Positive media coverage

  1. Identify personable spokesman

  2. Prepare professional-quality visuals

  3. Write professional-quality press releases

  4. Package events to be media-attractive

D. Involve public

  1. Circulate petition

  2. Stage events

    1. Tours

    1. Public meetings

    1. Vigils

  6. Secure endorsements from influential people

E. Involve politicians

  1. Create photo opportunities

  2. Stage events

F. Consider litigation

G. Keep public and organization informed of progress


IX. SO WHAT IF YOU DON'T WIN?

Throughout your efforts to save the building you should conduct yourself in a manner that leads to a positive climate for the protection of other historic resources in your community. Often, it takes the loss of an important building to make a community recognize how vulnerable its resources are and to take steps to protect them. You have won if the loss of one building leads to the protection of other buildings.




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