[Federal Register Volume 73, Number 114 (Thursday, June 12, 2008)]
[Notices]
[Pages 33389-33393]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E8-13004]


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ADVISORY COUNCIL ON HISTORIC PRESERVATION


Request for Comments on Proposed Policy Statement on Archaeology 
and Heritage Tourism

AGENCY: Advisory Council on Historic Preservation.

ACTION: Notice of Intent To Adopt a Policy Statement on Archaeology and 
Heritage Tourism.

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SUMMARY: In 2003 the Chairman of the Advisory Council on Historic 
Preservation (ACHP) appointed a Task Force on Archaeology to identify 
archaeological issues that merited the ACHP's attention. One issue 
identified was the need to better encourage responsible use of 
archaeological resources for public benefit, including education 
programs and heritage tourism. The Task Force has developed a draft 
policy statement, along with guidance, entitled ``Using Archaeological 
Resources for Public Benefit, including Education and Heritage 
Tourism,'' and now seeks public comments on it.

DATES: Submit comments on or before July 14, 2008.

ADDRESSES: Address all comments concerning this draft policy statement 
and guidance to Dr. Tom McCulloch, Office of Federal Agency Programs, 
Advisory Council on Historic Preservation, 1100 Pennsylvania Avenue, 
NW., Suite 803, Washington, DC 20004. Fax (202) 606-8647. You may 
submit electronic comments to: [email protected]. Please note that 
all comments submitted to the ACHP will become part of the public 
record.

FOR FURTHER INFORMATION CONTACT: Dr. Tom McCulloch, (202) 606-8554, 
[email protected].

SUPPLEMENTARY INFORMATION: The Advisory Council on Historic 
Preservation (ACHP) is an independent federal agency that promotes the 
preservation, enhancement, and productive use of our nation's historic 
resources, and advises the President and Congress on national historic 
preservation policy.
    The current draft policy statement and guidance is the product of a 
Task Force subcommittee that included ACHP members and their expert 
staff, Federal agency officials knowledgeable

[[Page 33390]]

about historic preservation and tourism, the ACHP's tribal member, the 
ACHP's Native American Advisory Group, representatives of the National 
Conference of State Historic Preservation Officers, and the National 
Association of Tribal Historic Preservation Officers. Formal discussion 
sessions were held at the national meetings of the Society for 
Historical Archaeology in Williamsburg, Virginia, and the Society for 
American Archaeology in Austin, Texas. The subcommittee determined that 
a policy statement with some accompanying guidance was the appropriate 
vehicle to promulgate the ACHP's position on the need for a more 
prominent role for archaeology in heritage tourism and education. The 
Subcommittee met four times to develop an initial draft of these 
documents, which were then presented to the full Archaeology Task Force 
where they were refined into the present document.
    At its most recent meeting on April 18, 2008, the Task Force 
members agreed to place before the full ACHP membership this latest 
draft of the policy for their review and comment. A full copy of the 
draft can be found at the end of this notice. The ACHP membership also 
agreed with the Task Force's plans to circulate the draft policy and 
guidance for public comment in this Federal Register notice, and post 
it on the ACHP's Web site. After review of comments received, the Chair 
of the Task Force plans to bring the policy and guidance before the 
full ACHP membership for adoption at its August 15, 2008 quarterly 
meeting.
    Several particular issues were explored in developing this 
statement and guidance, that we would specifically appreciate comments 
on, including:
    (1) Use of the policy statement. The policy is intended to help 
ACHP staff, federal agencies, State and Tribal Historic Preservation 
Officers, local communities with archaeological assets (like Preserve 
America and Main Street communities), tourism industry professionals, 
and others when determining whether and how to use archaeology to help 
instill a greater appreciation and understanding of the American past, 
and when making decisions about incorporating archaeology and 
archaeological resources into heritage tourism projects and programs.
    (2) Balancing use of archaeological properties in tourism and 
education with privacy concerns. This issue is addressed in Principle 2 
of the draft policy statement. Guidance for this principle says that 
many archaeological sites are valued by cultural and lineal descendants 
for religious or cultural reasons and would prefer not to open them to 
the general public. The guidance goes on to say that religious or 
cultural values associated with the archaeological resources should be 
considered in making decisions about appropriate public visitation.
    (3) Consultation with others in making use decisions. Decisions 
about appropriate use should be made in consultation with those who 
ascribe such significance to the archaeological resources, in addition 
to those with an interest in public education, heritage tourism, and 
resource conservation.
    (4) Management and sustainability needs. Use of archaeological 
resources in heritage tourism and education requires adequate personnel 
and financial resources for success. Guidance for this principle 
focuses on the need to consider a wide range of issues that include 
resource protection, access, current and long-term threats, and the 
requirement for site maintenance and sustainability.

Text of the Draft Policy Statement and Guidance

    The following is the text of the draft policy statement and 
guidance:

ACHP Policy Statement: Using Archaeological Resources for Public 
Benefit, Including Education and Heritage Tourism

Introduction

    The National Historic Preservation Act of 1966 (NHPA) aims among 
other things ``to insure future generations a genuine opportunity to 
appreciate and enjoy the rich heritage of our Nation.'' 16 U.S.C. 
470(b)(5). The NHPA goes on to state that ``it shall be the policy of 
the Federal Government, in cooperation with other nations and in 
partnership with the States, local governments, Indian tribes, and 
private organizations and individuals to--(1) use measures, including 
financial and technical assistance, to foster conditions under which 
our modern society and our prehistoric and historic resources can exist 
in productive harmony and fulfill the social, economic, and other 
requirements of present and future generations.'' 16 U.S.C. 470-1.
    Executive Order 13287, ``Preserve America,'' signed by President 
George W. Bush on March 3, 2003, builds on this mandate, stating that 
``it is the policy of the Federal Government to provide leadership in 
preserving America's heritage by actively advancing the protection, 
enhancement, and contemporary use of the historic properties owned by 
the Federal Government, and by promoting intergovernmental cooperation 
and partnerships for the preservation and use of historic properties.'' 
Executive Order 13287 recognizes the importance of preserving ``the 
unique cultural heritage of communities and of the Nation, and to 
realize the economic benefit that these properties can provide.''

Archaeological Resources and Historic Properties

    ``Archaeological resources'' include archaeological properties 
(sites), material collections derived from field investigation and 
study of those sites, and related records and syntheses of those 
studies. ``Archaeological properties'' are defined by the National Park 
Service as ``the place or places where the remnants of a past culture 
survive in a physical context that allows for the interpretation of 
these remains.'' Archaeological properties may also be ``historic 
properties,'' that is, properties listed, or eligible for listing, in 
the National Register of Historic Places.
    Archaeological resources have significant value and benefits as 
heritage assets, and can contribute to public understanding and 
appreciation of the past through heritage education programs and 
heritage tourism initiatives at a local, statewide, or regional level. 
As demonstrated in a public opinion poll conducted in 2000 by Harris 
Interactive for the Society for American Archaeology, archaeological 
resources and the archaeological research process hold particular 
fascination and interest for many members of the public. The Harris 
Poll found that most Americans ``support the goals and practice of 
archaeology, endorse laws protecting archaeological sites and 
artifacts, and think archaeology is important to today's society.'' 
Many of these same individuals are likely to be active heritage 
tourists.

Heritage Tourism and Archaeology

    Heritage tourism is defined in Executive Order 13287 as ``the 
business and practice of attracting and accommodating visitors to a 
place or area based especially on the unique or special aspects of that 
locale's history, landscape, and culture.'' The National Trust for 
Historic Preservation further defines cultural heritage tourism as 
``travel to experience the places and activities that authentically 
represent the stories and people of the past and present'' (Getting 
Started: How to Succeed in Heritage Tourism, National Trust for 
Historic Preservation, 1993).

[[Page 33391]]

    The practice of archaeology, public appreciation of the stories 
about the past to which archaeology can contribute, and public access 
to interpreted sites and archaeological collections have long been 
recognized internationally as subjects worthy of tourism development. A 
number of popular tourism destinations in the United States, such as 
Mesa Verde National Park or Jamestown Island, incorporate 
archaeological resources. At other locations, engaging visitors to 
actively participate in archaeological field work under controlled and 
limited conditions may also be appropriate. Such ``participatory 
archaeology'' can offer an excellent opportunity for educating a 
segment of the public about archaeology and resource stewardship.
    At the same time, it is also clear that legitimate issues arise 
about tourism development and the visitor experience and their 
potential impact on the archaeological record. Such issues may include 
the adequacy of resource conservation, sustainability, and management; 
the appropriateness of public access and associated site improvements 
at a particular location; the cultural sensitivity of some remains as 
well as their interpretation; and the economic viability of open sites 
and necessary visitor facilities. Careful consideration of these issues 
may conclude that it is appropriate to use archaeological collections 
and results of archaeological research in heritage tourism, but not the 
actual, physical, ``site.'' In such cases, other means of interpreting 
and presenting the results of archaeological study should be 
considered, including electronic ``virtual'' tours, exhibits, film, 
offsite interpretation, and other methods.
    Management and economic issues also need to be assessed in reaching 
decisions about the viability and sustainability of archaeological 
heritage tourism. Just because an archaeological site is opened and 
presented to the public does not mean it will be visited or 
appreciated. A sound and realistic business plan is necessary. Issues 
to consider here include the potential market and audience for this 
form of tourism; whether site development is an appropriate use of the 
resources; the impact of a site's location and ownership on public 
access; immediate and long-term financial and management needs; and the 
ability and willingness of responsible parties to prepare and implement 
necessary development, interpretive, and public use plans.

Principles

    The following principles and accompanying guidance have been 
adopted by the Advisory Council on Historic Preservation (ACHP) to 
assist ACHP staff, federal agency decision-makers, and other parties 
when determining whether and how to use archaeology to help instill a 
greater appreciation and understanding of the American past, and when 
making decisions about incorporating archaeology and archaeological 
resources into heritage tourism projects and programs.
    These principles and guidance will also be useful for State and 
Tribal Historic Preservation Officers, local communities with 
archaeological assets (such as Preserve America and Main Street 
communities), tourism industry professionals, and businesses and not-
for-profit organizations involved in heritage development projects.

--The public interest in archaeological resources and their 
interpretation makes them an excellent focus for heritage tourism and 
related public education efforts.
--While some archaeological properties, or groups of properties in an 
area, may be appropriate for public education programs or heritage 
tourism development, others may not.
--Decisions about when, where, and how to interpret and present 
archaeological properties and resources to the public should be made in 
consultation with a broad range of parties with an interest in public 
education, heritage tourism, resource conservation, and the particular 
place that would be interpreted.
--Responsible public interpretation for education or tourism includes 
current scholarship. Facts and findings from the archaeological work 
should be integrated into the presented story to help bring the past 
and its investigation to life for the general public.
--Archaeological properties or resources that are made part of public 
education efforts and/or heritage tourism projects are supportable and 
sustainable through professional, adequately funded, and well-developed 
and executed management programs.

Guidance

--The public interest in archaeological resources and their 
interpretation makes them an excellent focus for heritage tourism and 
related public education efforts.

    The Society for American Archaeology's public opinion poll has 
demonstrated the strong public interest in and appreciation for 
archaeological knowledge, archaeological properties and the materials 
they contain, and the archaeological discovery process.
    There is often even greater interest in the stories and methods of 
interpretation about people, places, and events of the past that are 
reconstructed as a result of archaeological research and 
interpretation.
    The science of archaeology can foster a greater understanding of 
and appreciation for peoples and cultures of the past as well as the 
traditions, events and places valued by living peoples today.
    Tourism and public education programs can assist in mutual 
understanding and respect between peoples and societies, and between 
the present and the past.

--While some archaeological properties, or groups of properties in an 
area, may be appropriate for public education programs or heritage 
tourism development, others may not.
    In making decisions about whether a given archaeological resource's 
preservation and use is the best way to tell this story to the public, 
the physical manifestations of the archaeological resources, and how 
their physical features lend themselves to being viewed and understood 
by members of the public, needs to be carefully considered.
    Ascribed values associated with the archaeological resources, 
including their value to cultural and lineal descendants as well as 
particular segments of the interested public, may either support or be 
in conflict with public access. The pros and cons of public uses need 
to be considered in this light.
    Archaeological properties and related collections are fragile and 
non-renewable; many are valued by cultural and lineal descendants of 
the site's creators for religious or cultural reasons, and would prefer 
not to open them up to the general public. Some resources may be 
physically inaccessible to the public, such as those located on a 
military reservation or tribal lands. If present, and when properly 
studied, archaeological elements of a standing historic property or the 
location of a past historic event can add considerably to the 
interpretation and appreciation of the property.
    Among other factors, the presence or absence of fragile or 
culturally sensitive remains, as well as the ability to manage 
visitation, should be taken into account in reaching decisions about 
appropriate uses for public education or tourism.

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    Where public access is inappropriate or difficult, or cannot be 
effectively managed, alternative means of presenting archaeological 
properties and information to the public may be desirable. Such 
alternatives may include offsite interpretation and exhibits, 
``virtual'' tours, and other methods.

--Decisions about when, where, and how to interpret and present 
archaeological properties and resources to the public should be made in 
consultation with a broad range of parties with an interest in public 
education, heritage tourism, resource conservation, and the particular 
place that would be interpreted.

    Decisions should be based on a broad understanding of historical 
and cultural context. This should include the rarity, state of 
preservation, and current state of knowledge about the resources.
    It also should include knowledge of the values placed on the 
resources by living groups, and any associated concerns about privacy, 
preservation, interpretability, and appropriate uses of the resources.
    Any ascribed religious or cultural values associated with the 
archaeological resources should be fully and carefully considered in 
making decisions about appropriate public visitation. Whether or how 
such associated values are interpreted and presented to the broader 
public should be determined in consultation with those who ascribe such 
significance to the archaeological resources.
    There should be an appropriate consideration of protection and 
access. Such consideration should include a weighing of current or 
anticipated long-term threats, and adequate provision for the 
maintenance and sustainability of any archaeological resources that are 
used for tourism or other educational purposes.

--Responsible public interpretation for education or tourism includes 
current scholarship. Facts and findings from the archaeological work 
should be integrated into the presented story to help bring the past 
and investigation to life for the general public.

    Scholarship includes sufficient and accurate professional research 
as well as other sources of knowledge, such as relevant oral histories 
and traditional knowledge, necessary to support responsible 
archaeological heritage tourism. The ability of a vocational 
archaeologist to contribute to this endeavor should not be overlooked.
    There needs to be reliable and accurate information about the 
resources in order to present the relevant facts and tell a compelling 
story.
    Archaeological properties as interpreted today are the end results 
of physical and cultural processes in operation over long periods of 
time. Heritage tourists will benefit from an understanding of the 
process of creation, discovery, and interpretation.
    Public interpretation for heritage tourism should be germane to the 
particular archaeological resource as well as broader educational 
goals. Information should illuminate not only the specific 
archaeological site and its remains but also past lifeways, cultural 
practices, and development patterns that they illustrate.
    Archaeological properties used for heritage tourism should also, as 
practicable, provide a context that helps visitors appreciate a site's 
value to any cultural and lineal descendants living today.

--Archaeological properties or resources that are made part of public 
education efforts and/or heritage tourism projects are supportable and 
sustainable through professional, adequately funded, and well-developed 
and executed management programs.

    A broad range of governmental and non-governmental organizations 
can and should participate in decisions about the uses of 
archaeological resources for public education and heritage tourism 
purposes, to ensure these projects combine excellent scholarship, 
responsible stewardship, and sustainable development and management.
    Governmental entities, non-governmental organizations, private non-
profit, and business enterprises that control archaeological resources 
should look for ways to include archaeological interpretation and 
public access where appropriate as part of mitigation programs (such as 
those negotiated through Section 106 of the National Historic 
Preservation Act).
    In some cases, publicly owned archaeological properties and remains 
may best be protected and managed through public interpretation and 
controlled public access. Archaeological properties with active non-
managed visitation that are receiving unmitigated impacts because of 
that visitation should be considered for more formal public 
interpretation and/or control of public access.
    With adequate professional supervision and support, members of the 
public, non-professional volunteers, and cultural and lineal 
descendants can all play a significant role in ``participatory 
archaeology'' at certain sites. Such programs may be an appropriate use 
of archaeological resources for heritage tourism and education. Both 
the appropriateness of excavation in the first place, as well as future 
stewardship of the archaeological site and resulting collections, needs 
to be determined prior to it being excavated as a part of a heritage 
tourism or public education program.

Select references and resources on heritage tourism

(1) Government Sources
--NPS ``Discover Archaeology,'' ``Visit Archaeology,'' and 
``Archaeology in the Parks''; (http://www.nps.gov/archeology/PUBLIC/discover.htm); (http://www.nps.gov/history/archeology/visit/index.htm); 
(http://www.historians.org/perspectives/issues/2000/000l/000lpub1.cfm).
--USDA Forest Service ``Passport in Time Program'' and ``Heritage 
Opportunity Spectrum for Tourism (HOST) Project''; (http://www.passportintime.com/); (http://www.fs.fed.us/recreation/programs/heritage/heritage_strategy.shtml).
--Bureau of Land Management ``Adventures in the Past''; (http://www.blm.gov/heritage/adventures/).
--Preserve America; (http://www.preserveamerica.gov).
--Advisory Council on Historic Preservation ``List of federal 
government programs that support heritage tourism''; (http://www.achp.gov/heritagetourism-assist.html); (http://www.grants.gov).
(2) State and Private Sources
--Arkansas Archaeological Survey ``Archaeological Parks in the U. S.''; 
(http://www.uark.edu/misc/aras/).
--Society for American Archaeology ``Archaeology for the Public'' and 
SAA Archaeological Record, Special Issue on ``Archaeology and Heritage 
Tourism'' (vol. 5, no. 3, May 2005): (http://www.saa.org/Public/home/home.html); (http://www.saa.org/publications/theSAAarchRec/may05.pdf).
--Society for Historical Archaeology ``Unlocking the Past'' and 
``Exploring Historical Archaeology'': (http://www.sha.org/unlockingthepast/index.htm); (http://www.sha.org/EHA/splash.htm).
--National Trust for Historic Preservation ``Cultural Heritage 
Tourism'' and ``Share Your Heritage''; (http://www.preservationnation.org/issues/heritage-tourism/); (http://www.culturalheritagetourism.org/resources/shareYourHeritage.htm).

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--National Geographic Society ``Geotourism Principles''; (http://www.nationalgeographic.com/travel/sustainable/aboutgeotourism.html).
--American Association of Museums;(http://www.aam-us.org/).
(3) International Organizations
--International Council on Monuments and Sites ``Ename Charter for the 
Interpretation of Cultural Heritage Sites''; (http://www.enamecharter.org/).
--UNESCO: Cultural Tourism portal;(http://portal.unesco.org/culture/en/ev.php-URLID=11408&URLDO=DOTOPIC&URLSECTION=201.html).

    Authority: 16 U.S.C. 470j.

    Dated: June 4, 2008.
John N. Fowler,
Executive Director.
[FR Doc. E8-13004 Filed 6-11-08; 8:45 am]
BILLING CODE 4310-K6-M