Historic Preservation: Cost to Restore Historic Properties at
Historically Black Colleges and Universities (Letter Report, 02/06/98,
GAO/RCED-98-51).

Pursuant to a congressional request, GAO provided information on the:
(1) number of historic properties located at historically black colleges
and universities (HBCU); and (2) estimated cost to restore and preserve
these properties.

GAO noted that: (1) all 103 historically black colleges and universities
responded to GAO's survey; (2) respondents identified 712 historic
properties that were owned by the schools; (3) most of these properties
were at a small number of schools and were mostly buildings rather than
structures, sites, or objects; (4) about half, 323, of the historic
properties identified were already on the National Register of Historic
Places--the official list of sites, buildings, structures, and objects
significant in American history, architecture, archeology, engineering,
and culture; (5) the others were either eligible for the National
Register on the basis of state historic preservation officers' surveys
or considered historic by the colleges and universities; (6) according
to information the schools provided, an estimated $755 million is needed
to restore and preserve the 712 properties; (7) the cost estimates
include the capital improvement costs to restore and preserve the
historic properties, such as making the properties more accessible to
people with disabilities, replacing roofs, and removing lead-based paint
or asbestos; (8) the respondents were asked not to include routine
maintenance costs; (9) some of the schools identified a total of about
$60 million in funds that had already been set aside to restore and
preserve specific historic properties; and (10) the schools used a
number of different methods to calculate the estimated restoration and
preservation costs.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-98-51
     TITLE:  Historic Preservation: Cost to Restore Historic Properties 
             at Historically Black Colleges and Universities
      DATE:  02/06/98
   SUBJECT:  Black colleges
             Historic preservation
             Repair costs
             National historic sites
             Educational facility construction
             Surveys
             Facility repairs
             Educational facilities
IDENTIFIER:  National Register of Historic Places
             
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Cover
================================================================ COVER


Report to Congressional Requesters

February 1998

HISTORIC PRESERVATION - COST TO
RESTORE HISTORIC PROPERTIES AT
HISTORICALLY BLACK COLLEGES AND
UNIVERSITIES

GAO/RCED-98-51

Historic Preservation

(141034)


Abbreviations
=============================================================== ABBREV

  HBCU - historically black college or university
  NPS - National Park Service
  SHPO - state historic preservation officer

Letter
=============================================================== LETTER


B-278777

February 6, 1998

The Honorable Maxine Waters
Chair, Congressional Black Caucus
House of Representatives

The Honorable James Clyburn
House of Representatives

In 1988, the Department of the Interior's National Park Service (NPS)
cosponsored a survey and assessment of historic properties on the
campuses of historically black colleges and universities (HBCU).  The
intent of the survey was to identify, assess, and prioritize historic
properties and to initiate a coordinated effort to support the
restoration of the properties that were deemed the highest priority. 
However, only about half of the schools responded to the survey.  The
respondents identified 144 properties in need of restoration but were
not asked to identify the cost of making the restorations. 

Because the response to this NPS initiative was low and the total
funding requirements to restore the historic properties were not
identified, you were concerned about whether sufficient information
was available to prioritize the funding of restoration for historic
properties at HBCUs.  As a result, you asked us to provide
information on (1) the number of historic properties located at the
HBCUs and (2) the estimated cost to restore and preserve these
properties.  We also collected data on the methods used to estimate
the costs and the credentials of those who prepared the cost
estimates.  To obtain this information, we sent a survey to all 103
HBCUs.  Some of the historic property data and all of the estimated
cost data presented in this report are based on self-reported data by
the HBCUs.  As discussed later in this report, self-reported data are
subject to certain limitations.  We did, however, do some limited
verification to establish the validity of the data. 


   RESULTS IN BRIEF
------------------------------------------------------------ Letter :1

All 103 historically black colleges and universities responded to our
survey.  Respondents identified 712 historic properties that were
owned by the schools.  Most of these properties were at a small
number of these schools and were mostly buildings rather than
structures, sites, or objects.  About half, 323, of the historic
properties identified were already on the National Register of
Historic Places--the official list of sites, buildings, structures,
and objects significant in American history, architecture,
archeology, engineering, and culture.  The others were either
eligible for the National Register on the basis of state historic
preservation officers' surveys or considered historic by the colleges
and universities. 

According to information the schools provided, an estimated $755
million is needed to restore and preserve the 712 properties.  The
cost estimates include the capital improvement costs to restore and
preserve the historic properties, such as making the properties more
accessible to people with disabilities, replacing roofs, and removing
lead-based paint or asbestos.  The respondents were asked not to
include routine maintenance costs.  Some of the schools identified a
total of about $60 million in funds that had already been set aside
to restore and preserve specific historic properties.  The schools
used a number of different methods to calculate the estimated
restoration and preservation costs.  A detailed table showing the
number of historic properties at each school as well as the estimated
cost to restore them appears in appendix I. 


   BACKGROUND
------------------------------------------------------------ Letter :2

The Higher Education Act of 1965, as amended, defined an HBCU as a
school that, among other things, was established before 1964 and is
accredited or pre-accredited by a nationally recognized accrediting
agency or association.  The official list of schools that qualify as
HBCUs is published in 34 C.F.R.  608.2(b).  A map depicting the
locations of the 103 HBCUs and a list of schools by state is in
appendix II. 

HBCUs may have historic properties and may have them listed on the
National Register of Historic Places.  The National Historic
Preservation Act of 1966 authorized the National Register of Historic
Places, the official list of the nation's districts, sites,
buildings, structures, and objects significant in American history,
architecture, archeology, engineering, and culture.\1 The National
Register, administered by NPS, is part of a program to identify,
evaluate, and protect the nation's cultural resources. 

Properties may be nominated for inclusion on the National Register by
states\2 and federal\3 agencies.  State nominations, which may be
prepared by local citizens, are submitted to a state review board,
which makes an approval/disapproval recommendation to the state
historic preservation officer (SHPO).  If the SHPO approves the
nomination, it is forwarded to NPS to be considered for listing.  If
the nomination is approved by NPS, the property is officially entered
on the National Register. 

In addition to their role in the nomination process, the SHPOs are
responsible for surveying and evaluating properties within their
states that they believe are eligible for the National Register.  The
National Register's criteria for evaluating properties include a
determination that the property is significant in American history,
architecture, archeology, engineering, and culture and that it
possesses integrity of location, design, setting, materials,
workmanship, feeling, and association.  In addition, at least one of
the following must be present for the property to be considered
historic:  (1) have an association with historic events or
activities; (2) have an association with the lives of people
significant in the nation's past; (3) have distinct characteristics
of a type, period, or method of construction; be the work of a
master; have high artistic values; or be a significant,
distinguishable entity; or (4) have yielded, or may likely yield,
information important about prehistory or history.  In addition, the
property generally has to be 50 years of age or more. 

The National Historic Preservation Act also established a program to
provide matching grants to the states and other entities for the
preservation and protection of properties on the National Register. 
Since the act went into effect in 1966, NPS has provided $4.3 million
in grants appropriated by the Congress to HBCUs for restoring
historic properties.  In addition, the Congress authorized $29
million under the Omnibus Parks and Public Lands Management Act of
1996 to fund the restoration of historic properties at selected
HBCUs.  As of December 1, 1997, $4 million has been appropriated for
this purpose.  Historic properties that are either on the National
Register or have been determined eligible for listing on the National
Register as a result of SHPO surveys are eligible for federal grant
assistance under the National Historic Preservation Act or the
Omnibus Parks and Public Lands Management Act of 1996. 


--------------------
\1 Even though NPS includes a district as a category for listing on
the National Register, our study was designed to identify individual
properties.  Therefore, for properties that were included in a
district designation, we had the schools identify the specific
buildings, structures, sites, and objects that contribute to the
historical significance of the district. 

\2 NPS may accept a nomination directly from a citizen if the
property is located in a state where there is no NPS-approved state
historic preservation program.  However, according to the Department
of the Interior, there currently are NPS-approved state historic
preservation programs in all states. 

\3 Nominations to the National Register for federal properties are
submitted to NPS through federal preservation officers appointed by
the agency heads. 


   OVER 700 HISTORIC PROPERTIES
   ARE LOCATED AT HBCUS
------------------------------------------------------------ Letter :3

Most of the 712 historic properties are at a small number of HBCUs
and are mostly buildings rather than structures, sites, or objects. 
About half of the historic properties identified are already on the
National Register of Historic Places.  The other half are either
eligible for the National Register on the basis of SHPO surveys or
considered historic by the HBCUs. 


      MOST OF THE HISTORIC
      PROPERTIES ARE AT A SMALL
      NUMBER OF HBCUS
---------------------------------------------------------- Letter :3.1

About 66 percent of the 712 properties identified in our survey were
located at 28 schools, each having 10 or more properties.  Seventeen
schools had no historic properties.  These were mostly schools that
were created or relocated to other campuses less than 50 years ago
and thus were schools that did not have properties eligible to be
considered as historic.  Table 1 groups the schools according to how
many historic properties they reported and shows the number and
percentage of the total properties each group had. 



                                Table 1
                
                 Schools Grouped by Number of Historic
                 Properties Reported and the Number and
                Percentage of Properties Each Group Had

                                                            Percentage
                                    Percentage                of total
Number of properties     Number of          of   Number of  properties
per school                 schools    schools\  properties          \a
----------------------  ----------  ----------  ----------  ----------
15 or more                      12        11.7         288        40.4
10 to 14                        16        15.5         181        25.4
5 to 9                          25        24.3         166        23.3
1 to 4                          33        32.0          77        10.8
0                               17        16.5           0         0.0
======================================================================
Total                          103       100.0         712       100.0
----------------------------------------------------------------------
\a The numbers in this column do not add to the total because of
rounding. 


      BUILDINGS ARE THE MOST
      COMMON TYPE OF PROPERTY
---------------------------------------------------------- Letter :3.2

Historic properties are classified as buildings, structures, sites,
or objects.  A building may be, for example, a dormitory, gymnasium,
house, chapel, or other construction created principally to shelter
any form of human activity.  A structure is distinguished from a
building in that it is used for purposes other than human shelter,
for example, a tower, smokestack, or gazebo.  A site refers to a
location of a significant event or historic occupation or activity
where the location itself possesses the historic, cultural, or
archeological value.  Examples of sites include courtyards, gardens,
and cemeteries.  Objects are primarily artistic in nature or are
relatively small in scale and simply constructed, such as a
sculpture, bell, monument, or statue.  The photos in figure 1 show
examples of these types of properties. 

   Figure 1:  Examples of Types of
   Historic Properties

   (See figure in printed
   edition.)

Sources:  Photos provided by the schools. 

On the basis of our survey, 94.4 percent of the historic properties
at the HBCUs were buildings.  The remaining 5.6 percent were
structures, sites, or objects.  Figure 2 shows the type of properties
and percentage of each type. 

   Figure 2:  Percentage and
   Number of Properties by Type

   (See figure in printed
   edition.)


      ABOUT HALF OF THE HISTORIC
      PROPERTIES ARE ON THE
      NATIONAL REGISTER
---------------------------------------------------------- Letter :3.3

Of the 712 properties respondents identified, 323, or 45.4 percent,
were listed on the National Register.  These properties have been
evaluated and approved for listing by NPS in accordance with the
established National Register criteria.  Of the remaining properties,
206, or 28.9 percent, were identified through surveys and evaluations
completed by the SHPOs but had not yet been nominated to the National
Register.  The remaining 183 properties, or 25.7 percent, were
identified by the schools as historic but were not on the National
Register and had not been surveyed or assessed by the SHPOs.  In the
schools' opinion, these properties would be eligible for the National
Register if they were surveyed and assessed by a SHPO and nominated
to the National Register.  Figure 3 shows the percentage and number
of properties listed on the National Register, surveyed and assessed
by the SHPOs, or identified by the schools as historic but not
included in either of the other two categories. 

   Figure 3:  Percentage and
   Number of Properties by
   Category

   (See figure in printed
   edition.)


   HBCUS ESTIMATE THAT ABOUT
   THREE-QUARTERS OF A BILLION
   DOLLARS IS NEEDED TO RESTORE
   HISTORIC PROPERTIES
------------------------------------------------------------ Letter :4

The schools estimated that the restoration of the 712 historic
properties would cost about $755 million.  Most of the estimated
restoration cost comes from fewer than half of the schools, and about
half of the cost is for properties listed on the National Register. 
Schools have funds set aside to cover less than a tenth of the
estimated restoration costs. 


      MOST OF THE COST TO RESTORE
      PROPERTIES AT HBCUS IS
      CONCENTRATED AT LESS THAN
      HALF OF THE SCHOOLS
---------------------------------------------------------- Letter :4.1

In their estimates of the cost to restore the 712 historic
properties--which totaled $755 million--the schools provided a wide
range of figures for individual properties.  The wide range can be
attributed to (1) whether a property was recently restored and the
condition of those not restored and (2) the size of the area needing
restoration.  Over 90 percent of the total cost ($681.2 million) was
associated with 44 of the schools.  The cost to restore all the
properties at each of these schools ranged from $5 million to over
$20 million.  Table 2 shows the number and percentage of schools that
fall within various cost ranges and the total costs and percentage of
total costs within those ranges. 



                                Table 2
                
                  Number and Percentage of Schools in
                 Different Cost Ranges and Total Costs
                  and Percentage of Total Costs Within
                              Those Ranges

                                                            Percentage
                                                Total cost    of total
                                                to restore     cost to
                                                     these     restore
                                    Percentage  properties       these
Range of restoration     Number of          of      \a (in  properties
costs per school           schools   schools\a   millions)           \
----------------------  ----------  ----------  ----------  ----------
$20 million and over            12        11.7      $317.9        42.1
$5 million to                   32        31.1       363.3        48.1
 $19,999,999
$1 million to                   27        26.2        68.1         9.0
 $4,999,999
$1 to $999,999                  14        13.6         5.8         0.8
$0                              18        17.5         0.0         0.0
======================================================================
Total                          103       100.0      $755.0       100.0
----------------------------------------------------------------------
\a The numbers in this column do not add to the total because of
rounding. 

As shown in table 2, 18 of the 103 schools did not have any
restoration costs associated with the historic properties.  Of these,
17 had no properties, and therefore, no cost.  One school had two
properties and, as both of them had been recently renovated, no
additional funds for restoration were needed, according to the
school.  Some of the 85 schools with properties having restoration
costs also had one or more properties that the schools estimated had
no restoration costs.  The reasons given by these schools for not
identifying any costs included that (1) the property had been
recently restored and no additional funds were needed and (2) the
property did not need any restoration.  For the most part, properties
that did not need any restoration were buildings. 


      MOST RESTORATION COSTS ARE
      FOR PROPERTIES EITHER LISTED
      ON OR ELIGIBLE FOR THE
      NATIONAL REGISTER OF
      HISTORIC PLACES
---------------------------------------------------------- Letter :4.2

Of the estimated $755 million needed to restore the 712 properties,
$356.7 million was for properties listed on the National Register;
$239.1 million was for properties eligible for the National Register
on the basis of SHPO surveys and assessments; and $159.2 million was
for properties identified by the schools as historic but not included
in either of the previous two categories.  It should be noted that
properties that are not listed on the National Register and that have
not been surveyed by the SHPO and assessed to be eligible for listing
on the National Register currently are not eligible for federal grant
assistance under existing legislation.  Therefore, $595.8 million of
the $755 million is currently eligible for federal grant assistance. 
Figure 4 shows the restoration costs of properties by category. 

   Figure 4:  Percentage and
   Amount of Restoration Costs of
   Properties by Category (Dollars
   in millions)

   (See figure in printed
   edition.)


      SOME FUNDS HAVE BEEN SET
      ASIDE FOR RESTORATION
---------------------------------------------------------- Letter :4.3

Of the estimated $755 million needed to restore the properties, 36
schools reported that $60.4 million, about 8 percent, had already
been set aside to pay the restoration costs for specific properties. 
As shown in figure 5, of the total set aside, $22.3 million, or 36.9
percent, was from federal sources; $23.8 million, or 39.3 percent,
was from state funding sources; and $11.1 million, or 18.4 percent,
was from private funding sources.  The remaining $3.2 million, or 5.3
percent, was from sources such as a university fund. 

   Figure 5:  Funds Set Aside for
   Restoration as a Percentage of
   the Total Estimated Restoration
   Costs, by Funding Source
   (Dollars in millions)

   (See figure in printed
   edition.)

The $60.4 million set aside was for the restoration of 58 properties
at 36 schools.  For 32 of these properties, the amount of the
set-aside was the full amount needed to cover the total estimated
restoration costs.  For the remaining 26 properties, the set-aside
covered a portion of the total restoration costs. 


      COST-PER-SQUARE-FOOT WAS THE
      MOST COMMON METHOD USED TO
      CALCULATE RESTORATION COSTS
---------------------------------------------------------- Letter :4.4

The schools used different, but common, methods to calculate
restoration costs.  These methods were an original feasibility
report, an updated feasibility report, a contractor's quotation or
proposal, a cost-estimating guidebook, a cost-per-square-foot
calculation, and a Consumer Price Index inflator.  If the schools
used other methods, we asked them to explain what they were.  An
original or updated feasibility report is typically prepared by an
architectural or engineering firm and generally describes what is
feasible to restore and how much the work would cost.  A contractor's
quotation or proposal is an estimate prepared by a contractor to
restore a property for the stated price or bid.  A cost-estimating
guidebook is a reference guide prepared by the architectural
engineering industry that gives probable restoration costs by the
type of work to be done, such as roof repair, and the materials used. 
The cost-per-square-foot method uses the industry's average
restoration cost for a locality multiplied by the number of square
feet that need to be restored.  A Consumer Price Index inflator is a
percentage increase each year based on the inflation rate; this
method is used to adjust estimates that have already been prepared. 

Generally, the most comprehensive methods of estimating restoration
costs would be an original or updated feasibility report, followed by
a contractor's quotation or proposal.  The cost-estimating guidebook,
cost-per-square-foot, and Consumer Price Index inflator methods are
generally less accurate because they represent guidance, or averages,
rather than estimates on specific properties.  Even though an
original or updated feasibility report is most likely to be more
accurate, some of the schools we visited stated that the cost of
paying architect or engineering firms or contractors to provide such
estimates was prohibitive and that the estimates could not be
completed in the time necessary to respond to our survey.  As a
result, some schools used other methods, such as the
cost-per-square-foot method, to avoid incurring excessive costs and
still meet our survey deadline.  It should be pointed out that
estimating the amount of restoration and preservation needed can be a
very complex undertaking.  As a result, estimates, even those done by
professionals under the best of circumstances, cannot be exact.  Many
restoration problems, particularly those involving major repairs or
renovations, are not visible to the naked eye and may not be
uncovered until the restoration actually takes place.  In addition,
cost estimates to restore and preserve properties are just that,
estimates, and are subject to revisions until the work is completed. 

We asked the schools to identify whether one or a combination of
methods was used in calculating their estimates.  Of the 673
properties that had restoration costs (39 properties had none), 474
had estimates made using a single method, such as the
cost-per-square-foot method.  For 199 properties, a combination of
methods was used.  As shown in figure 6, the cost-per-square-foot
method was the predominant single method used. 

   Figure 6:  Percentage of Times
   That a Single Method Was Used
   to Estimate Restoration Costs,
   by Method

   (See figure in printed
   edition.)

When more than one method was used, many different combinations
occurred.  These included, for example, using (1) an original
feasibility study estimate with a Consumer Price Index inflator; (2)
a cost-estimating guidebook with a Consumer Price Index inflator; and
(3) a contractor's quotation with a cost-estimating guidebook and
cost-per-square-foot calculations. 


      SCHOOL OFFICIALS PREPARED
      MOST OF THE RESTORATION COST
      ESTIMATES
---------------------------------------------------------- Letter :4.5

We asked the schools to identify whether the preparers of their cost
estimates were (1) outside architect/engineering firms, (2) in-house
architects/engineers, (3) contractors, (4) school
building/maintenance supervisors, or (5) other types of individuals
or firms.  Typically outside architect/engineering firms prepare
original and updated feasibility reports, contractors prepare
quotations or proposals, and in-house architects/engineers or
building/maintenance supervisors prepare estimates using the
guidebooks and cost-per-square-foot method.  All of these types of
preparers can and will use the Consumer Price Index inflator to
adjust previous cost estimates. 

As shown in figure 7, the estimates of the restoration costs were
primarily prepared by in-house architects/engineers, followed by
outside architect/engineering firms and in-house building/maintenance
supervisors. 

   Figure 7:  Percentage of
   Estimates Done by the Different
   Types of Preparers

   (See figure in printed
   edition.)


   OBSERVATIONS
------------------------------------------------------------ Letter :5

The information in this report represents the most comprehensive data
collected to date on the number of historic properties at HBCUs and
the estimated costs to restore those properties.  However, the cost
estimates presented in this report are based on self-reported data
and are subject to limitations.  Furthermore, as previously pointed
out, estimating the amount of restoration and preservation needed can
be a very complex undertaking.  As a result, estimates, even those
done by professionals under the best of circumstances, cannot be
exact.  However, these data are a useful starting point for
determining the total restoration requirements at HBCUs. 


   AGENCY COMMENTS
------------------------------------------------------------ Letter :6

We provided copies of a draft of this report to the Department of the
Interior for its review and comment.  The Department commented that
highly significant properties on the campuses of historically black
colleges and universities are important national historic treasures
worthy of care and attention.  The Department, however, noted that
the magnitude of the repair cost estimates reported by the schools is
substantial in terms of the limited level of appropriations available
from the Historic Preservation Fund for matching grants to state
historic preservation officers and Indian tribes, and the grants
available to historically black colleges and universities pursuant to
section 507 of the Omnibus Parks and Public Lands Management Act of
1996.  The Department also pointed out that funding for increased
appropriations for grants to historically black colleges and
universities would be subject to authorization and the budgetary
controls imposed under the Omnibus Budget Enforcement Act of 1990, as
amended.  We agree with the Department that there are budgetary
limitations that must be addressed when considering the restoration
of historic properties at the schools. 

The Department concurred with our discussion of the methodologies
used by the schools in estimating the cost to restore historic
properties.  It noted that the restoration cost estimates may include
some work that would not conform to the Secretary's Standards for the
Treatment of Historic Properties--such as sandblasting brick, which
would cause the degeneration of the historic materials and
appearance.  Thus, not all work included in the estimates may be
eligible for federal assistance.  The Department agreed that the cost
of preservation work on historic properties can escalate beyond
initial estimates because the need for some major repairs may not be
uncovered until the restoration actually begins.  Interior's comments
and our responses are in appendix IV. 


   SCOPE AND METHODOLOGY
------------------------------------------------------------ Letter :7

Our study included all HBCUs defined under the Higher Education Act
of 1965, as amended, and listed in 34 C.F.R.  608.2(b).  As of June
1, 1997, there were 103 such schools.  To gather background data and
to develop and pretest a standardized data collection instrument
(survey) for our study, we visited 12 HBCUs in North Carolina, South
Carolina, and Virginia. 

To determine the number of historic properties on the campuses of the
103 HBCUs, we used three sources.  First, we obtained a list of
historic properties on the National Register of Historic Places from
NPS, including properties (buildings, structures, sites, and objects)
within historic districts on the National Register and properties
that contribute to the historic significance of the districts.\4

Second, in conjunction with NPS, we contacted each of the 22 SHPOs in
whose jurisdictions the 103 HBCUs were located.  NPS sent a letter to
each of the 22 SHPOs explaining the nature of our study and provided
them with lists of the HBCUs in their states as well as the historic
properties in the National Register database.  NPS also provided us
with each SHPO contact.  We asked each of the SHPOs to verify the
National Register list as of June 1, 1997, or to submit corrected
information.  NPS used the SHPOs' information to update the National
Register as warranted.  We also asked each SHPO to provide a list of
properties at each HBCU that would be eligible for the National
Register as a result of the surveys and evaluations that the SHPO
conducted at the HBCUs prior to June 1, 1997, but that had not been
nominated. 

Third, we sent each of the 103 HBCUs a survey that included (1) a
list of its properties that the SHPO had verified were on the
National Register and (2) a list of its properties that the SHPO had
told us were eligible for the National Register on the basis of its
surveys and evaluations.  We asked each HBCU to verify the existence
of these properties, to delete properties that no longer existed or
that the school never or no longer owned, and to add properties that
the school believed met the criteria to be eligible for the National
Register.  Because the data from the SHPOs were as of June 1, 1997,
we asked the schools to provide their data as of June 1, 1997.  A
copy of the survey sent to each of the 103 HBCUs is in appendix III. 

To determine the estimated restoration costs for the historic
properties, we asked each HBCU to provide a cost estimate to restore
each property identified.  We requested that the estimate include
only capital improvement costs and not normal day-to-day operating
and maintenance costs.  We also requested that the capital
improvement costs include only costs after June 1, 1997.  In other
words, if an HBCU was restoring a property, expenditures prior to
June 1, 1997, were not to be included in the estimate.  Each HBCU
decided on the extent of restoration needed in making its estimates. 

We did not independently verify the accuracy of the cost estimates
the HBCUs submitted.  We did, however, ask the schools to provide
information on the methods they used to estimate the costs, such as
whether the estimates were based on feasibility studies, contractors'
bids, or cost-per-square-foot calculations.  We also asked the
schools to provide the names and credentials of the preparers of the
cost estimates, such as whether the preparers were professional
architect/engineering firms, contractors, or school
building/maintenance supervisors.  We conducted our study from April
1997 through January 1998 in accordance with generally accepted
government auditing standards. 

Some of the historic property data and all of the estimated cost data
for the restoration and preservation of the historic properties
presented in this report are based on self-reported data from the
HBCUs.  The accuracy of the results contained in this report is
affected by the extent to which the respondents accurately reported
the number of historic properties at their schools and the estimated
costs to restore and preserve these properties.  Also, according to
NPS officials, the estimates may include costs for work that does not
meet the Secretary of the Interior's Standards for the Treatment of
Historic Properties, particularly if the individuals preparing the
estimates are not familiar with those standards. 


--------------------
\4 Beth L.  Savage and Nathan Poe, "Historic Properties Listed in the
National Register of Historic Places at Historically Black Colleges
and Universities" (Washington, D.C.:  National Park Service, May 30,
1997). 


---------------------------------------------------------- Letter :7.1

As agreed with your offices, unless you publicly announce its
contents earlier, we plan no further distribution of this report
until 30 days from the date of this letter.  At that time, we will
send copies to the Secretary of the Interior; the Secretary of
Education; the Director, National Park Service; and the Director,
Office of Management and Budget.  We will also make copies available
to others upon request. 

Please call me at (202) 512-3841 if you or your staff have any
questions.  Major contributors to this report are listed in appendix
V. 

Victor S.  Rezendes
Director, Energy, Resources,
 and Science Issues


NUMBER OF HISTORIC PROPERTIES AND
ESTIMATED TOTAL RESTORATION COST
AT EACH HISTORICALLY BLACK COLLEGE
AND UNIVERSITY, AS OF JUNE 1, 1997
=========================================================== Appendix I

                              Eligible for       Others as
            On National         National       identified by
              Register          Register          schools            Total
          ----------------  ----------------  ----------------  ----------------
                  Restorat          Restorat          Restorat          Restorat
School    Number  ion cost  Number  ion cost  Number  ion cost  Number  ion cost
--------  ------  --------  ------  --------  ------  --------  ------  --------
Alabama        1        $0       0        --       7  $2,719,0       8  $2,719,0
 A&M                                                        00                00
 Univers
 ity
Alabama        0        --      16  $19,679,       2   390,000      18  20,069,0
 State                                   000                                  00
 Univers
 ity
Albany         0        --       3  2,235,00       0        --       3  2,235,00
 State                                     0                                   0
 Univers
 ity
Alcorn         8  7,479,00       0        --       1  1,519,00       9  8,998,00
 State                   0                                   0                 0
 Univers
 ity
Allen          4  8,724,00       1    75,000       1  2,122,00       6  10,921,0
 Univers                 0                                   0                00
 ity
Arkansas       1   150,000       0        --       1    60,000       2   210,000
 Baptist
 College
Barber-        3  3,350,00       1    84,000       0        --       4  3,434,00
 Scotia                  0                                                     0
 College
Benedict       5  3,442,00       1  1,121,00       0        --       6  4,563,00
 College                 0                 0                                   0
Bennett       19  5,402,00       6  5,710,00       5  3,188,00      30  14,300,0
 College                 0                 0                 0                00
Bethune-       7  4,177,00       0        --       3  3,705,00      10  7,882,00
 Cookman                 0                                   0                 0
 College
Bishop         0        --       0        --       1    70,000       1    70,000
 State
 Communi
 ty
 College
Bluefiel       0        --       0        --       1   239,000       1   239,000
 d State
 College
Bowie          1   390,000       0        --       0        --       1   390,000
 State
 Univers
 ity
C.A.           0        --       0        --       2  1,100,00       2  1,100,00
 Fredd                                                       0                 0
 State
 Technic
 al
 College
Central        0        --       0        --       0        --       0        --
 State
 Univers
 ity
Cheyney        1   310,000       9  23,055,0       0        --      10  23,365,0
 Univers                                  00                                  00
 ity of
 Pennsyl
 vania
Claflin        4  1,523,00       0        --       1    32,000       5  1,555,00
 College                 0                                                     0
Clark          4  1,554,00       0        --      12  5,484,00      16  7,038,00
 Atlanta                 0                                   0                 0
 Univers
 ity
Coahoma        0        --       1   100,000       3   145,000       4   245,000
 Communi
 ty
 College
Concordi       0        --       2   559,000       0        --       2   559,000
 a
 College
Coppin         0        --       0        --       0        --       0        --
 State
 College
Delaware       1  1,500,00       6  1,420,00       0        --       7  2,920,00
 State                   0                 0                                   0
 Univers
 ity
Denmark        0        --       0        --       4  1,918,00       4  1,918,00
 Technic                                                     0                 0
 al
 College
Dillard        0        --       0        --       7  8,650,00       7  8,650,00
 Univers                                                     0                 0
 ity
Edward         1  2,369,00       0        --       6  7,403,00       7  9,772,00
 Waters                  0                                   0                 0
 College
Elizabet      13  22,788,0       0        --       0        --      13  22,788,0
 h City                 00                                                    00
 State
 Univers
 ity
Fayettev       0        --      10  1,346,00       0        --      10  1,346,00
 ille                                      0                                   0
 State
 Univers
 ity
Fisk          21  10,942,0       0        --       0        --      21  10,942,0
 Univers                00                                                    00
 ity
Florida       17  46,218,0       3  1,383,00       0        --      20  47,601,0
 A&M                    00                 0                                  00
 Univers
 ity
Florida        0        --       0        --       0        --       0        --
 Memorial
 College
Fort           0        --       9  13,494,0       0        --       9  13,494,0
 Valley                                   00                                  00
 State
 Univers
 ity
Gramblin       0        --       0        --       5  5,773,00       5  5,773,00
 g State                                                     0                 0
 Univers
 ity
Hampton        7  7,450,00       0        --       6  10,650,0      13  18,100,0
 Univers                 0                                  00                00
 ity
Harris-        0        --       0        --       0        --       0        --
 Stowe
 State
 College
Hinds          0        --       1   539,000       0        --       1   539,000
 Communi
 ty
 College
 -Utica
 Campus
Howard         2  22,184,0       0        --       0        --       2  22,184,0
 Univers                00                                                    00
 ity
Huston-        2  3,000,00       0        --       0        --       2  3,000,00
 Tillots                 0                                                     0
 on
 College
Interden       0        --       0        --       0        --       0        --
 ominati
 onal
 Theolog
 ical
 Center
J.F.           0        --       0        --       0        --       0        --
 Drake
 State
 Technic
 al
 College
Jackson        1  1,240,00       0        --       0        --       1  1,240,00
 State                   0                                                     0
 Univers
 ity
Jarvis         0        --       3   700,000       1   150,000       4   850,000
 Christi
 an
 College
Johnson        1  5,316,00      10  9,239,00       0        --      11  14,555,0
 C.                      0                 0                                  00
 Smith
 Univers
 ity
Kentucky       2  1,134,00       0        --       0        --       2  1,134,00
 State                   0                                                     0
 Univers
 ity
Knoxvill      15  10,357,0       0        --       0        --      15  10,357,0
 e                      00                                                    00
 College
Lane           6  2,271,00       0        --       0        --       6  2,271,00
 College                 0                                                     0
Langston       0        --       6  3,025,00       0        --       6  3,025,00
 Univers                                   0                                   0
 ity
Lawson         0        --       0        --       4  2,955,00       4  2,955,00
 State                                                       0                 0
 Communi
 ty
 College
LeMoyne-       1  1,500,00       0        --       2  2,534,00       3  4,043,00
 Owen                    0                                   0                 0
 College
Lewis          0        --       0        --       0        --       0        --
 College
 of
 Busines
 s
Lincoln        7  5,286,00       5  3,171,00       1   266,000      13  8,723,00
 Univers                 0                 0                                   0
 ity,
 Missour
 i
Lincoln        0        --       1   340,000      25  15,215,0      26  15,555,0
 Univers                                                    00                00
 ity,
 Pennsyl
 vania
Livingst      13  15,353,2       2  1,100,00      12  9,910,70      27  26,363,9
 one                    42                 0                 0                42
 College
Mary           5  2,050,00       0        --       0        --       5  2,050,00
 Holmes                  0                                                     0
 College
Meharry        0        --       2  22,474,0       0        --       2  22,474,0
 Medical                                  00                                  00
 College
Miles          6  1,489,00       0        --      12  12,060,0      18  13,549,0
 College                 0                                  00                00
Mississi       0        --       0        --       0        --       0        --
 ppi
 Valley
 State
 Univers
 ity
Morehous       4   170,000       0        --       1  2,625,00       5  2,795,00
 e                                                           0                 0
 College
Morehous       0        --       0        --       0        --       0        --
 e
 School
 of
 Medicin
 e
Morgan         0        --       1  1,315,00       7  11,580,0       8  12,895,0
 State                                     0                00                00
 Univers
 ity
Morris         5  11,401,0       0        --       0        --       5  11,401,0
 Brown                  00                                                    00
 College
Morris         0        --       0        --       0        --       0        --
 College
Norfolk        0        --       0        --       2   687,000       2   687,000
 State
 Univers
 ity
North          6  3,467,00       0        --       6  6,547,00      12  10,014,0
 Carolina                0                                   0                00
 A&T
 State
 Univers
 ity
North          8  15,009,0       3  4,211,00       0        --      11  19,220,0
 Carolina               00                 0                                  00
 Central
 Univers
 ity
Oakwood        0        --       0        --       5   505,000       5   505,000
 College
Paine          0        --       0        --       3  3,747,00       3  3,747,00
 College                                                     0                 0
Paul           0        --       0        --       0        --       0        --
 Quinn
 College
Philande       1    30,000       0        --       0        --       1    30,000
 r Smith
 College
Prairie        0        --       7  11,037,0       0        --       7  11,037,0
 View                                     00                                  00
 A&M
 Univers
 ity
Rust           1   198,000       1   802,000       0        --       2  1,000,00
 College                                                                       0
Saint         11  12,627,0       0        --       0        --      11  12,627,0
 Augusti                00                                                    00
 ne's
 College
Saint          3  1,195,00       0        --       0        --       3  1,195,00
 Paul's                  0                                                     0
 College
Saint          0        --       2   500,000       0        --       2   500,000
 Philip's
 College
Savannah       1  1,820,00       9  7,950,00       0        --      10  9,770,00
 State                   0                 0                                   0
 Univers
 ity,
 State
 College
 Branch
Selma          0        --       6  2,189,00       0        --       6  2,189,00
 Univers                                   0                                   0
 ity
Shaw           6  6,058,00       0        --       1   324,000       7  6,382,00
 Univers                 0                                                     0
 ity
Shorter        0        --       0        --       0        --       0        --
 College
South          3  8,050,00      11  10,870,0       0        --      14  18,920,0
 Carolina                0                00                                  00
 State
 Univers
 ity
Southern       1   440,000       0        --       0        --       1   440,000
 Univers
 ity and
 A&M
 College
Southern       0        --       0        --       0        --       0        --
 Univers
 ity,
 New
 Orleans
Southern       0        --       0        --       0        --       0        --
 Univers
 ity,
 Shrevep
 ort
Southwes       0        --       2   501,000       0        --       2   501,000
 tern
 Christi
 an
 College
Spelman       12  25,495,0       0        --       0        --      12  25,495,0
 College                00                                                    00
Stillman       0        --       4   850,000       7  4,639,00      11  5,489,00
 College                                                     0                 0
Talladeg      32  13,239,0       1    15,000       0        --      33  13,254,0
 a                      00                                                    00
 College
Tennesse       7  20,202,0       0        --       1   850,000       8  21,052,0
 e State                00                                                    00
 Univers
 ity
Texas          0        --       0        --       0        --       0        --
 College
Texas          0        --       1  4,037,00       0        --       1  4,037,00
 Southern                                  0                                   0
 Univers
 ity
Tougaloo       1   932,000       9  10,240,0       0        --      10  11,172,0
 College                                  00                                  00
Trenholm       0        --       0        --       0        --       0        --
 State
 Technic
 al
 College
Tuskegee      16  13,504,0       0        --      12  11,577,0      28  25,081,0
 Univers                00                                  00                00
 ity
Universi       1  2,500,00       1   100,000       1    40,000       3  2,640,00
 ty of                   0                                                     0
 Arkansa
 s at
 Pine
 Bluff
Universi       0        --       2   800,000       5  2,360,00       7  3,160,00
 ty of                                                       0                 0
 Marylan
 d
 Eastern
 Shore
Universi       2  4,260,00       1  8,623,00       2  9,855,00       5  22,738,0
 ty of                   0                 0                 0                00
 the
 Distric
 t of
 Columbi
 a
Universi       0        --       3  18,404,2       0        --       3  18,404,2
 ty of                                    00                                  00
 the
 Virgin
 Islands
Virginia       2  2,216,00      34  36,436,8       0        --      36  38,652,8
 State                   0                00                                  00
 Univers
 ity
Virginia       8  5,300,00       0        --       0        --       8  5,300,00
 Union                   0                                                     0
 Univers
 ity
Voorhees      10  9,500,00       0        --       0        --      10  9,500,00
 College                 0                                                     0
West           2         0       0        --       0        --       2         0
 Virginia
 State
 College
Wilberfo       0        --       0        --       0        --       0        --
 rce
 Univers
 ity
Wiley          0        --       2   240,000       2   862,000       4  1,102,00
 College                                                                       0
Winston-       1   135,000       8  9,157,00       0        --       9  9,292,00
 Salem                                     0                                   0
 State
 Univers
 ity
Xavier         0        --       0        --       3  4,715,00       3  4,715,00
 Univers                                                     0                 0
 ity
================================================================================
Total        323  $356,696     206  $239,127     183  $159,179     712  $755,002
                      ,242              ,000              ,700              ,942
================================================================================
Percenta    45.4      47.2    28.9      31.7    25.7      21.1     100      100%
 ge of
 total
--------------------------------------------------------------------------------
Notes:  Properties shown in appendix I are those that were owned and
still existed as of June 1, 1997.  Not shown are properties that are
scheduled for destruction, properties that were never or no longer
owned, and properties that no longer exist. 

A cost of $0 means that the property was restored prior to June 1,
1997.  A "" in the cost column means that, because there were zero
properties owned, there was no associated cost of restoration. 


LOCATIONS OF THE 103 HISTORICALLY
BLACK COLLEGES AND UNIVERSITIES,
AS OF JUNE 1, 1997
========================================================== Appendix II



   (See figure in printed
   edition.)




(See figure in printed edition.)Appendix III
SURVEY SENT TO EACH OF THE 103
HISTORICALLY BLACK COLLEGES AND
UNIVERSITIES
========================================================== Appendix II



(See figure in printed edition.)



(See figure in printed edition.)



(See figure in printed edition.)


Section 1.  According to the National Register of Historic Places,
the properties listed in the table below are on your campus and are
listed on the National Register as of June 1, 1997. 

                (a)             (b)             (c)             (d)
--------------  --------------  --------------  --------------  ----------------
Name and Type   Is the          Estimated       How was the     Principal
of              property owned  total cost to   estimate        preparer of
Property        and/or still    preserve &      calculated?     latest cost
                existing?       restore.                        estimate.
                                Please provide  1=Original
(b)=Building    1=Yes, both     only the        feasibility     a. Name
(si)=Site       owned and       estimated cost  report          b. Title
                still exists    to be spent     2=Updated       c. Telephone
(st)=Structure  (Enter 1        after 6/1/97.   feasibility     number
(o)=Object      below, then     Please provide  report          d. Credentials
                complete b, c,  only capital    3=Actual        of preparer
If the          and d of this   expenditure     contractor      (Enter code
property is a   section)        costs and not   quotations      listed below)
building,       -------------   operating and   or contractor
please provide  -------------   maintenance     proposals       1=Outside
the square      -----           costs.          4=Cost          architect/
footage.        2=Yes, both                     estimating      engineering
                owned and                       guidebook       firm
                exists, but     Of the total    5=Cost per      2=In-house or
                will be         cost estimated  square foot     school
                destroyed       below, specify  6=Consumer      architect/
                3= Never or no  the source and  Price Index     engineer
                longer owned,   amount of       (CPI)           3=Contractor -
                but still       funds, if any,  inflator        other than
                exists          that have been  7=Other         architect/
                4= No longer    set aside from  (specify        engineering
                exists (Please  each source.    below)          firm
                describe what                                   4=School
                happened to                                     building/
                the property)                                   maintenance
                                                                supervisor
                (If 2, 3 or 4,                                  5=Other
                then enter                                      (Specify)
                code below and
                STOP
                Do not
                complete
                columns b, c
                and d for
                these
                properties)


1.                              Total cost to   (Check all      a.______________
                                preserve &      that apply)     _______
                ____ (Enter     restore
                code)           (in thousands)  1. ___ . ___    b.______________
                                :                               _______
                                $_______,_____  2. ___ 5. ___
                                __,000                          c. (
                                                3.___ 6.___     )_______________
_____(Enter                     Funds set
square feet                     aside to        7. ___ ______   d. _____ (Enter
of building)                    preserve &                      code from
                                restore from:                   above)
                                (If none,
                                enter 0.)

                                Federal
                                $____,____,000

                                State
                                $_____,_____,0
                                00

                                Private
                                $____,____,000

                                Other
                                $_____,_____,0
                                00

                                4
--------------------------------------------------------------------------------
Section 2.  The properties listed in the table below are not listed
on the National Register as of June 1, 1997, but are structures that
a State Historic Preservation Officer (SHPO) has assessed and
identified as being eligible for listing but has not yet been listed
on the Register. 

                (a)             (b)             (c)             (d)
--------------  --------------  --------------  --------------  ----------------
Name and Type   Is the          Estimated       How was the     Principal
of              property owned  total cost to   estimate        preparer of
Property        and/or still    preserve &      calculated?     latest cost
                existing?       restore.                        estimate.
                                Please provide  1=Original
(b)=Building    1=Yes, both     only the        feasibility     a. Name
(si)=Site       owned and       estimated cost  report          b. Title
                still exists    to be spent     2=Updated       c. Telephone
(st)=Structure  (Enter 1        after 6/1/97.   feasibility     number
(o)=Object      below, then     Please provide  report          d. Credentials
                complete b, c,  only capital    3=Actual        of preparer
If the          and d of this   expenditure     contractor      (Enter code
property is a   section)        costs and not   quotations      listed below)
building,       -------------   operating and   or contractor
please provide  ----            maintenance     proposals       1=Outside
the square      2=Yes, both     costs.          4=Cost          architect/
footage.        owned and                       estimating      engineering
                exists, but                     guidebook       firm
                will be         Of the total    5=Cost per      2=In-house or
                destroyed       cost estimated  square foot     school
                3= Never or no  below, specify  6=Consumer      architect/
                longer owned,   the source and  Price Index     engineer
                but still       amount of       (CPI)           3=Contractor -
                exists          funds, if any,  inflator        other than
                4= No longer    that have been  7=Other         architect/
                exists (Please  set aside from  (specify        engineering
                describe what   each source.    below)          firm
                happened to                                     4=School
                the property)                                   building/
                                                                maintenance
                (If 2, 3 or 4,                                  supervisor
                then enter                                      5=Other
                code below and                                  (Specify)
                STOP
                Do not
                complete
                columns b, c
                and d for
                these
                properties)


1.                              Total cost to   (Check all      a.______________
                                preserve &      that apply)     ______
                ____ (Enter     restore
                code)           (in thousands)  1. ___ 4. ___   b.______________
                                :                               ______
                                $_______,_____  2. ___ 5. ___
                                __,000                          c.(
                                                3. ___ 6. ___   )_______________
_____(Enter                     Funds set                       _
square feet                     aside to        7. ___
of                              preserve &      ________        d. _____ (Enter
building)                       restore from:                   code from
                                (If none,                       above)
                                enter 0.)

                                Federal
                                $____,____,000

                                State
                                $_____,_____,0
                                00

                                Private
                                $_____,____,00
                                0

                                Other
                                $_____,_____,0
                                00


--------------------------------------------------------------------------------
Section 3.  Please list any other properties that have not been
identified in either Section 1 or 2. 

                (a)             (b)             (c)             (d)
--------------  --------------  --------------  --------------  ----------------
Name and Type   Is the          Estimated       How was the     Principal
of Property     property owned  total cost to   estimate        preparer of
                and/or still    preserve &      calculated?     latest cost
                existing?       restore.                        estimate.
(b)=Building                    Please provide  1=Original
(si)=Site       1=Yes, both     only the        feasibility     a. Name
                owned and       estimated cost  report          b. Title
(st)=Structure  still exists    to be spent     2=Updated       c. Telephone
(o)=Object      (Enter 1        after 6/1/97.   feasibility     number
                below, then     Please provide  report          d. Credentials
If the          complete b, c,  only capital    3=Actual        of preparer
property is a   and d of this   expenditure     contractor      (Enter code
building,       section)        costs and not   quotations      listed below)
please provide  -------------   operating and   or contractor
the square      -----           maintenance     proposals       1=Outside
footage.        2=Yes, both     costs.          4=Cost          architect/
                owned and                       estimating      engineering
                exists, but                     guidebook       firm
                will be         Of the total    5=Cost per      2=In-house or
                destroyed       cost estimated  square foot     school
                3= Never or no  below, specify  6=Consumer      architect/
                longer owned,   the source and  Price Index     engineer
                but still       amount of       (CPI)           3=Contractor -
                exists          funds, if any,  inflator        other than
                4= No longer    that have been  7=Other         architect/
                exists (Please  set aside from  (specify        engineering
                describe what   each source.    below)          firm
                happened to                                     4=School
                the property)                                   building/
                                                                maintenance
                (If 2, 3 or 4,                                  supervisor
                then enter                                      5=Other
                code below and                                  (Specify)
                STOP
                Do not
                complete
                columns b, c
                and d for
                these
                properties)


1.                              Total cost to   (Check all      a.______________
                                preserve &      that apply)     ___
                ____ (Enter     restore
                code)           (in thousands)  1. ___ 4. ___   b.______________
                                :                               ____
                                $_______,_____  2. ___ 5. ___
                                __,000                          c.(
                                                3. ___ 6. ___   )_______________
_____(Enter                     Funds set                       __
square feet                     aside to        7. ___
of building)                    preserve &      ________        d. _____ (Enter
                                restore from:                   code from
                                (If none,                       above)
                                enter 0.)

                                Federal
                                $____,____,000

                                State
                                $____,____,000

                                Private
                                $____,_____,00
                                0

                                Other
                                $____,____,000


--------------------------------------------------------------------------------



(See figure in printed edition.)Appendix IV
COMMENTS FROM THE DEPARTMENT OF
THE INTERIOR
========================================================== Appendix II



(See figure in printed edition.)



(See figure in printed edition.)


GAO'S COMMENTS

The following are GAO's comments on the Department of the Interior's
letter dated January 12, 1998. 

1.  We have referred to the National Register in the "Results in
Brief" as "the" official list of properties as suggested. 

2.  We have revised footnote 1 changing "specific" to "individual"
properties, correcting the spelling of "identify," and changing the
phrase "within the district" to "of the district."

3.  We added a sentence to footnote 2 that, according to the
Department of the Interior, there currently are National Park
Service-approved state historic preservation programs in all states. 

4.  We revised the text to add "location" and "feeling and
association" to the criteria for evaluating properties as suggested. 

5.  We reworded the definition of a building as suggested. 

6.  We added text to the report to note that properties that are not
listed on the National Register and have not been surveyed by state
historic preservation officers and assessed to be eligible for
listing on the National Register currently are not eligible for
federal grant assistance under existing legislation.  As a result,
$595.8 million of the $755 million total estimated restoration cost
is currently eligible for federal grant assistance. 

7.  We have made reference to the Department's concurrence with our
discussion of the historically black colleges and universities'
cost-estimating methodologies in the "Agency Comments" section in the
body of the report. 


MAJOR CONTRIBUTORS TO THIS REPORT
=========================================================== Appendix V

RESOURCES, COMMUNITY, AND ECONOMIC
DEVELOPMENT DIVISION, WASHINGTON,
D.C. 

Leslie Albin
Alice Feldesman
Lynne Goldfarb
Barry Hill
Chet Janik
Roy Judy
Judy Pagano
Jim Yeager

OFFICE OF GENERAL COUNSEL

Doreen Feldman


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