WHEEUNG NATIONAL HERITAGE AREA, WV, AND 

GREAT FAILS NATIONAL HISTORIC DISTRICT, NJ 

HEARING 

BEFORE THE 

SUBCOMMITTEE ON 

NATIONAL PARKS, FORESTS Al\TD PUBLIC LANDS 

OF THE 

COMMITTEE ON 

NATURAL RESOURCES 

HOUSE OF REPRESENTATIVES 

ONE HUNDRED THIRD CONGRESS 

FIRST SESSION 

ON 

H.R. 2843 

TO ESTABLISH THE WHEELING NATIONAL HERITAGE AREA IN THE 

STATE OF WEST VIRGINIA, AND FOR OTHER PURPOSES 

H.R. 1104 

TO ESTABLISH THE GREAT FALLS HISTORIC DISTRICT COMMISSION 

FOR THE PRESERVATION AND REDEVELOPMENT OF THE GREAT 

FALLS NATIONAL HISTORIC DISTRICT IN PATERSON, NJ 

7&-797 

HEARING HELD IN WASHINGTON, DC 

NOVEMBER 16, 1993 

. Serial No. 103-()2 

Printed for the use of the Committee on Natural Resources 

U.S. GOVERNMENT PRINTING OFFICE 

WASHINGTON : 1994 

For sale by the U.S. Government Printing Office 

Superintendent of Documents, Congressional Sales Office, Washington, DC 20402 

ISBN 0-16-044377-6 
COMMITIEE ON NATURAL RESOURCES 

GEORGE MILLER, California, Chairman 

PHILIP R. SHARP, Indiana 

EDWARD J. MARKEY, Massachusetts 

AUSTIN J . MURPHY, Pennsylvania 

NICK JOE RAHALL II, West Virginia 

BRUCE F. VENTO, Minnesota 

PAT WILLIAMS, Montana 

RON DE LUGO, Virgin Islands 

SAM GEJDENSO:ij, Connecticut 

RICHARD H. LEHMAN, California 

BILL RICHARDSON, New Mexico 

PETER A. DEFAZIO, Oregon 

ENI F.H. FALEOMAVAEGA, American 

Samoa 

TIM JOHNSON, South Dakota 

LARRY LAROCCO, Idaho 

NEIL ABERCROMBIE, Hawaii 

CALVIN M. DOOLEY, California 

CARLOS ROMERO-BARCELO, Puerto Rico 

KARAN ENGLISH, Arizona 

KAREN SHEPHERD, Utah 

NATHAN DEAL, Georgia 

MAURICE D. HINCHEY, New York 

ROBERT A. UNDERWOOD, Guam 

SAM FARR, California 

LANE EVANS, Illinois 

PATSY T. MINK, Hawaii 

THOMAS J. BARLOW III, Kentucky 

THOMAS M. BARRETT, Wisconsin 

DON YOUNG, Alaska, 

Ranking Republican Member 

JAMES V. HANSEN, Utah 

BARBARA F. VUCANOVICH, Nevada 

ELTON GALLEGLY, California 

ROBERT F. (BOB) SMITH, Oregon 

CRAIG THOMAS, Wyoming 

JOHN J. DUNCAN, JR., Tennessee 

JOEL HEFLEY, Colorado 

JOHN T. DOOLITTLE, California 

WAYNE ALLARD, Colorado 

RICHARD H. BAKER, Louisiana 

KEN CALVERT, California 

SCOTT MciNNIS, Colorado 

RICHARD W. POMBO, California 

JAY DICKEY, Arkansas 

JOHN LAWRENCE, Staff Director 

RICHARD MELTZER, General Counsel 

DANIEL VAL KISH, Republican Staff Director 

SUBCOMMITTEE ON NATIONAL PARKS, FORESTS AND PuBLIC LANDS 

BRUCE F. VENTO, Minnesota, Chairman 

EDWARD J. MARKEY, Massachusetts JAMES V. HANSEN, Utah, 

NICK JOE RAHALL II, West Virginia Ranking Republican Member 

PAT WILLIAMS, Montana ROBERT F. (BOB) SMITH, Oregon 

PETER A. DEFAZIO, Oregon CRAIG THOMAS, Wyoming 

TIM JOHNSON, South Dakota JOHN J. DUNCAN, JR. , Tennessee 

LARRY LAROCCO, Idaho JOEL HEFLEY, Colorado 

NEIL ABERCROMBIE, Hawa_ii JOHN T. DOOLITTLE, California 

CARLOS ROMERO-BARCELO, Puerto Rico RICHARD H. BAKER, Louisiana 

KARAN ENGLISH, Arizona KEN CALVERT, California 

KAREN SHEPHERD, Utah JAY DICKEY, Arkansas 

MAURICE HINCHEY, New York 

ROBERT A. UNDERWOOD, Guam 

AUSTIN J. MURPHY, Pennsylvania 

BILL RICHARDSON, New Mexico 

PATSY T. MINK, Hawaii 

RICHARD HEALY, Staff Director 

AMY HOLLEY, Professional Staff Member 

HEATHER A. HUYCK, Professional Staff Member 

TONY A MITCHEM, Staff Assistant 

KuRT CHRISTENSEN, Republican Consultant on Public Lands 

(II) 
CONTENTS 

Page 

Hearing held: November 16, 1993 .......................................................................... 1 

Text of the bills: 1. H.R. 2843 .......... .": .......................................................................................... 2 

2. H.R. 1104 ...................................................................................................... 18 

Member statements: 

Hon. Bruce F. Vento ......................................................................................... 1 

Hon. Nick Joe Rahal! II ................................................................................... 70 

Witness statements: Hon. Frank R. Lautenberg, a Senator in Congress from the State of 

New Jersey .................................................................................................... 27 

Hon. Herb Klein, a Representative in Congress from the State of New 

Jersey............................................................................................................. 31 

B.J. Griffin, Regional Director, Mid-Atlantic Regional Office, National 

Park Service, Department of the Interior, accompanied by Kate Stevenson, Associate Regional Director for Cultural Resources and Planning ... 70 

Hon. Alan B. Mollohan, a Representative in Congress from the State 

of West Virginia ............................................................................................ 90 

Panel consisting of: Francis J . Blesso, director of community development, Paterson, NJ .. 106 

Hon. William Pascrell, Jr., mayor, Paterson, NJ .................................... 124 

Dr. Russell Fries ........................................................................................ 129 

Panel consisting of: Patrick S. Cassidy, Esq., cochair, Wheeling National Heritage Area 

Task Force .... ..... .. .... ..... .. ................... ........... .... .... ... .. ........ .... . .... .... ...... .. 133 

Rebecca J . Payne, director, West Virginia Independence Hall, West 

Virginia Division of Culture and History, Department of Education 

and the Arts, Wheeling, WV ........ .......... .... .. .. ........... .... .... .. .. .. .. ............ 139 

Paul T. Mcintire, Jr., project coordinator and director, department 

of development, the city of Wheeling ............ .... .. .. .. .... ................ ...... ... 151 

Dr. Emory L. Kemp, director, Institute for the History of Technology 

and Industrial Archeology, West Virginia University ........................ 156 

Panel consisting of: Henry Jordan, M.D., chairman, National Trust for Historic Preservation .......................................................................................................... 167 

Bruce Craig, northeast regional director, National Parks and Con- servation Assocation .............................................................................. 174 

(III) 

H.R. 2843, ESTABLISHING THE WHEELING NATIONAL HERITAGE AREA IN THE STATE OF 

WEST VIRGINIA; AND 

H.R. 1104, ESTABLISIDNG THE GREAT FALLS 

HISTORIC DISTRICT COMMISSION FOR THE 

PRESERVATION AND REDEVELOPMENT OF 

THE GREAT FALLS NATIONAL HISTORIC 

DISTRICT IN PATERSON, NJ 

TUESDAY, NOVEMBER 16, 1993 

HOUSE OF REPRESENTATIVES, 

COMMITTEE ON NATURAL RESOURCES, 

SUBCOMMITTEE ON NATIONAL PARKS. FORESTS 

AND PuBLIC LANDS, 

Washington, DC. 

The subcommittee met, pursuant to call, at 10:03 a.m. in Room 

1324, Longworth House Office Building, Hon. Bruce F. Vento 

(chairman of the subcommittee) presiding. 

STATEMENT OF HON. BRUCE F. VENTO 

Mr. VENTO. The Subcommittee on National Parks, Forests, and 

Public Lands will be in order. 

Today we are having a hearing on two bills, one by Herb Klein 

and another by Alan Mollohan, that have their counterparts in the 

Senate. Senator Lautenberg is here, and Senator Byrd obviously is 

very interested in the Wheeling, West Virginia area. 

[Text of bills, H.R. 2843 and H.R. 1104, follows:] 

(1) 
103n CONGRESS 

1ST SESSION 

2 

H.R. 2843 . 

To establish the Wheeling National Heritage Area in the State of West 

Virginia, and for other purposes. 

IN THE HOUSE OF REPRESENTATIVES 

AUGUST 3, 1993 

Mr. MOLLOHAN introduced the following bill; which was referred to the 

Committee on Natural Resources 

A BILL 

To establish the Wheeling National Heritage Area in the 

State of West Virginia, and for other purposes. 

Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the "Wheeling National 

5 Heritage Area Act of 1993". 

6 SEC. 2. FINDINGS AND PURPOSES. 

7 (a) FINDINGS.-Congress finds that: 

8 (1) The community of Wheeling, West Virginia, 

9 and vicinity, possess important historical, cultural, 

10 and natural resources, representing major heritage 
3 

2 

.1 themes of transportation and commerce and indus2 try and Victorian culture in the United States. 

3 (2) The City of Wheeling played an important 

4 part in the settlement of this country by serving as 

5 the western terminus of the National Road in the 

6 early 1800's, by serving as the Crossroads of Amer7 ica throughout .the nineteenth century, by serving as 

8 one of the few major inland ports in the nineteenth 

9 century, by hosting the establishment of the Re10 stored State of Virginia, and later the State of West 

11 Virginia during the Civil War years and serving as 

12 the first capital of the new State of West Virginia, 

13 through the development and maintenance of many 

14 industries crucial to the Nation's expansion, includ15 ing iron and steel, and textile _manufacturing facili16 ties, boat building facilities, glass manJifacturing fa17 cilities, stogie and chewing tobacco mapufacturing 

18 facilities, many of which are industries that continue 

19 to play an important role in the Nation's economy. 

20 (3) The City of Wheeling has retained its na21 tional heritage themes with the designations of the 

22 old custom house, now Independence Hall, as a Na23 tional Historic Landmark; with the designation of 

24 the historic suspension bridge as a National Historic 

25 Landmark; with five historic districts, and many in-

•HR 2843 m 
4 

3 

1 dividual properties in the Wheeling area listed ot eli· 

2 gible for nomination to the National Register of His· 

3 toric Places. 

4 ( 4) The heritage themes and number and diver· 

5 sity of Wheeling's remaining resources should be ap· 

6 propriately retained, enhanced, and interpreted for 

7 the education, benefit, and inspiration of the people 

8 of the United States. 

9 (b) PURPOSES.- The purposes of this Act are to: 

10 (1) Recognize the special importance of the his11 tory and development of the Wheeling area in the 

12 cultural heritage of the Nation. 

13 (2) Provide a framework to assist the City of 

14 Wheeling and other public and private entities and 

15 individuals in the appropriate preservation, enhance16 ment, and interpretation of resources in the Wheel17 ing area emblematic of Wheeling's contributions to 

18 that cultural heritage. 

19 (3) Create a new concept and model for des20 ignation of a National Heritage Area by allowing for 

21 limited Federal, State and local capital contributions 

22 for planning and infrastructure investments to cre23 ate the Wheeling National Heritage Area, in part24 nership with the State of West Virginia and the City 

25 of Wheeling, West Virginia and its designees; and to 

•HR 2843 m 
5 

4 

1 provide for an economically self-sustaining National 

2 Heritage Area not dependent on Federal assistance 

3 beyond the initial years necessary to establish the 

4 National Heritage Area. 

5 SEC. 3. DEFINITIONS. 

6 As used in this Act: 

7 (1) The term "Corporation" refers to the 

8 Wheeling National Heritage Area Corporation 

9 (WNHAC) as described in section 5 of this Act. 

10 (2) The term "Plan" refers to the Plan for the 

11 Wheeling National Heritage Area, prepared for the 

12 Wheeling National Heritage Area Task Force, the 

13 City of Wheeling, and the National Park Service, 

14 published in August 1992, which Plan includes15 (A) an inventory of the natural and cul16 tural resources in the City of Wheeling; 

17 (B) criteria for preserving and interpreting 

18 significant natural and historic resources; 

19 (C) a strategy for the conservation, preser20 vation, and reuse of the historical and cultural 

21 resources in the City of Wheeling and the re22 ~on; and 

23 (D) an implementation agenda by which 

24 the State of West Vir~nia and local govern25 ments can program their resources as well as a 

•HR 2843 m 
6 

5 

1 complete description of the management entity 

2 responsible for implementing the Plan. 

3 SEC. 4. DESIGNATION OF NATIONAL HERITAGE AREA. 

4 In furtherance of the purposes of this Act, there is 

5 hereby established the Wheeling National Heritage Area 

6 in the State of West Virginia (hereinafter referred to as 

7 the "Area"). The Area shall include those lands and wa8 ters within the boundary generally depicted on the map 

9 entitled, "Boundary Map, Wheeling National Heritage 

10 Area, West Virginia", which shall be on file and available 

11 for public inspection in the offices of the National Park 

12 Service, Department of the Interior. 

13 SEC. 15. ESTABLISHMENT OF WHEELING NATIONAL HERIT14 AGE AREA CORPORATION. 

15 (a) ESTABLISHMENT.-To achieve the purposes of 

16 this Act, and to carry out the implementation of the Plan, 

17 there is hereby established the Wheeling National Herit18 age Area Corporation (WNHAC) which19 (1) will be structured as a 501(c)(3) tax exempt 

20 entity; 

21 (2) shall consist of a Board of Directors of not 

22 less than 9 nor more than 11 members, including 

23 the executive committee; 

24 (3) shall include an executive committee of 5 

25 members; and 

•HR 2843 m 
7 

6 

1 ( 4) shall include the Secretary of the Interior, 

2 or his designate, the Governor of West Virginia, or 

3 his designate, and the Mayor of the City of Wheel4 ing, or his designate. 

5 The details of the Corporation's administrative operations, 

6 staff needs, Board composition (except as specified in sec7 tion 5(a)(4)), affiliate organizations, financial forecast, 

8 and membership shall be specified in the business plan for 

9 the Wheeling National Heritage Area Corporation. 

10 (b) MISSION.-(!) The Corporation's primary mis11 sion will be to implement and coordinate the recommenda12 tions contained in the Plan, accomplish the goals of the 

13 Heritage Area planning initiative, ensure integrated oper14 ation of the project, and become a financially self-sustain15 ing entity. The Corporation shall be structured as a pri16 vate nonprofit organization, an umbrella organization to 

17 accomplish the primary mission by itself, in partnership 

18 with other local organizations, or on the behalf of other 

19 entities, particularly the National Park Service and the 

20 State of West Virginia Division of Culture and History. 

21 It will provide coordination, standards, and streamlined fi22 nancial and technical assistance for the implementation· of 

23 the Plan. 

24 (2) The primary charitable and educational mission 

25 of the Corporation shall be to conserve, interpre..t. and..pro-

•HR 2843 m 
8 

7 

1 mote the Wheeling National Heritage Area, and by doing 

2 so, to achieve economic development in the historic down3 town and riverfront area, and the education and general 

4 welfare of the people. The more specific mission of the 

5 Corporation shall be to implement the Plan for the Wheel6 ing National Heritage Area, to preserve the area's historic 

7 and cultural resources, and to establish a structure within 

8 which the activities of investment, development, . and oper9 ation of the Heritage Area can be fulfilled. In support of 

10 this primary mission, the Corporation shall also direct and 

11 coordinate the diverse conservation, development, pro12 gramming, educational, and interpretive activities in the 

13 area. 

14 (c) CREATION OF THE CORPORATION.-An interim 

15 board shall be formed by the Wheeling National Heritage 

16 Area Task Force Core Group in existence on the date of 

17 the enactment of this Act. This board shall draft interim 

18 bylaws, nominate an executive committee and solicit mem19 bership. The members of the executive committee shall act 

20 as incorporators of the Corporation, nominate the perma21 nent board and have the primary roles in the development, 

22 implementation, and operation of the Corporation and the 

23 Heritage Area. A permanent executive committee shall 

24 adopt a charter for the Corporation, and sign its articles 

25 of incorporation, and shall determine the appropriate com-

•HR 2843 IH 
9 

8 

1 position for the pennanent board of directors. The execu2 tive committee shall appoint the remaining board members 

3 with the exception of the City, State, and Federal rep4 resentatives designated under subsection (a)( 4). The execS utive committee shall act as the primary vehicle for oper6 ation and policy of the Corporation while the board of di7 rectors shall serve to ensure that the mission of the Cor8 poration is carried out, and serve as a check and balance 

9 to the executive committee while measuring progress and 

10 ensuring equity in the activities of the Corporation. 

11 SEC. 8. POWERS OF THE WHEELING NATIONAL HERITAGE 

12 AREA CORPORATION. 

13 (a) POWERS OF THE CORPORATION.-The Wheeling 

14 National Heritage Area Corporation shall be chartered 

15 with broad private powers in order to pursue its mission 

16 and implement the Plan. The Corporation shall be empow17 ered toIS (1) acquire, encumber, and dispose of such real 

19 and personal property as is necessary to preserve, 

20 promote and enhance the heritage and resources of 

21 the Area; 

22 (2) improve properties to which the Corporation 

23 holds title, sell, lease, sublease or otherwise dispose 

24 of real property; 

•BR~~am 
10 

9 

1 (3) enter infu · contracts, leases, cooperative 

2 agreements, and other transactions with public agen3 cies and private individuals. and entities; 

4 (4) receive funds from public agencies and pri5 vate individuals and entities; receive gifts of property 

6 of all kinds, whether made by will, deed, or other7 wise, and administering the same in carrying out the 

8 Corporation's mission; collect fees; develop any other 

9 sources of income commensurate with the laws gov10 erning nonprofit entities; 

11 (5) disburse funds to qualified public or private 

12 individuals and entities for the purposes of achieving 

13 the goals of the Heritage Area as specified in the 

14 Plan; 

15 (6) hire staff and accept personnel from public 

16 agencies as required to fulfill its mandates and pur17 poses; 

18 (7) manage property and develop and operate 

19 educational, informational, interpretive, and market20 iilg programs, facilities, and linkages; and 

21 (8) coordinate the review and approval of 

22 projects or programs either funded or implemented 

23 by the Corporation or ·its associates; and provide 

24 educational, interpretation and promotional services 

25 and materials. 

•BR 2843 m 
11 

10 

1 SEC. 7. DUTIES OF THE WHEELING NATIONAL HERITAGE 

2 AREA CORPORATION. 

3 (a) FORMAL ADOPTION OF THE PLAN.-The Cor4 poration shall work with the State of West Virginia and 

5 local governments to ensure that the Plan is formally 

6 adopted by the City of Wheeling and recognized by the 

7 State of West Virginia. 

8 ,(b) IMPLEMENTATION OF THE PLAN.-In pursuing 

9 the implementation of the Plan, the Corporation shall10 (1) implement the ideas and concepts put forth 

11 in the Plan in a timely fashion pursuant to the phas12 ing schedule identified in the Plan; 

13 (2) ensure the coordination of its services with 

14 those of the City of Wheeling, West Virginia, the 

15 State of West Virginia, and the Federal Govern16 ment; 

17 (3) seek the support and involvement of the 

18 Wheeling community and City of Wheeling as it pur19 sues its mission; 

20 ( 4) maintain the integrity of those natural and 

21 cultural resources recognized by this Act and ref22 erenced in the Plan through standards and criteria 

23 for the treatment of all properties located within the 

24 Area; and 

25 ( 5) pursue the completion and adoption of all 

26 planning projects recommended by the Plan, includ-

•HR 2843 m 
12 

11 

1 ing, but not limited to, the business plan for the 

2 Wheeling National Heritage Area, an interpretive 

3 master plan which outlines plans for the interpreta4 tion and conservation of Wheeling's cultural and 

5 physical resources, a heritage lighting plan, an inter6 modal transportation plan, and others of a like kind. 

7 (c) OPERATIONS OF THE WHEELING NATIONAL 

8 HERITAGE AREA CORPORATION.-In implementing the 

9 Plan, the Corporation may make loans and grants to ap10 propriate public, governmental, or private entities and 

11 enter into contracts with private or public entities using 

12 funds appropriated for that purpose, or from funds do13 nated, or revenue generated from the operation of Area 

14 resources, with these funds being used to--

15 (1) promote the City of Wheeling's significant 

16 heritage and resources; 

17 (2) promote future growth for the City of 

18 Wheeling in a manner consistent with its heritage, 

19 resources, and the planning goals established for the 

20 Heritage Area; 

21 (3) ensure successful development of the Herit22 age Area and its principal features as specified in 

23 the Plan and to undertake further planning and de24 sign as necessary to achieve this objective; 

•HR 2848 m 
13 

12 

1 ( 4) ensure the conservation of the region's his2 torical, cultural, and natural resources; 

3 ( 5) cooperate with and assist entities whose 

4 goals and purposes are consistent with the goals and 

5 purposes of the Corporation; 

6 (6) manage . and operate heritage facilities, 

7 where appropriate; 

8 (7) coordinate and support the activities of the 

9 Corporation or its associates and the operation of 

10 heritage and cultural tourism attractions in the re11 gion so as to create. a unified project; 

12 (8) encourage intergovernmental and inter13 agency cooperation in the achievement of these ob14 jectives; 

15 (9) market the Heritage Area, the City of 

16 Wheeling and its resources as a destination for 

17 international, national, and regional visitors; 

18 (10) provide technical assistance to cultural 

19 heritage efforts and develop design standards for 

20 physical sites and educationaVinterpretive programs; 

21 (11) lead in efforts to educate the public about 

22 the significance of these resources and the heritage 

23 of the City of Wheeling (targeting visitors as well as 

24 local residents); 

•DR 2843 m 
14 

13 

1 (12) promote local and regional development of 

2 recreational opportunities, linkages, and facilities; 

3 (13) accomplish the above in a way which will 

4 promote economic development of the City of Wheel5 ing and the surrounding area; 

6 (14) create publiclprivate partnerships to fi.-

7 nance projects and initiatives of the Heritage Area; 

8 and 

9 (15) seek funding from public (local, State and 

10 Federal)· agencies and private individuals, founda11 tions and corporations. 

12 (d) RESPONSIBILITIES . OF THE WHEELING NA13 TIONAL HERITAGE AREA CORPORATION.-Priority ele14 ments and actions to be carried out by the Corporation 

15 include16 ( 1) assisting the State of West Virginia and the 

17 City of Wheeling in appropriate preservation treat18 ment of the sites, buildings, and objects listed or eli19 gible for listing on the National Register of Historic 

20 Places; 

21 (2) increasing awareness and appreciation of 

22 the City of Wheeling's cultural heritage and ongoing 

23 traditions; 

24 (3) assisting the State of West Virginia or City 

25 of Wheeling in designing, establishing, and main-

•DR 2843 m 
15 

14 

1 taining one or more visitor centers and other inter2 pretive exhibits tn the Area; 

3 ( 4) assisting in the enhancement of public 

4 awareness of an appreciation for the historical and 

5 architectural and geological resources and sites in 

6 the Area; 

7 ( 5) assisting the State of West Virginia or any 

8 local government or any nonprofit organization in 

9 the restoration· of any historic building in the Area; 

10 (6) encouraging, by appropriate means, en11 hanced economic and industrial development in the 

12 Area in furtherance of the goals of the Plan; 

13 (7) encouraging the City of Wheeling and other 

14 local governments to adopt land use policies consist15 ent with the goals of the Plan and to take actions 

16 to implement those policies; and 

17 (8) ensuring that clear, consistent signs identi18 fying access points and sites of interest are put in 

19 place. 

20 SEC. 8. DUTIES OF THE SECRETARY. 

21 (a) PuRPOSE.-To carry out the purposes of this Act, 

22 the Secretary of the Interior shall23 (1) assist the Corporation in the development of 

24 interpretive and educational materials as specified in 

•HR 2843 m 
16 

15 

1 the Plan or subsequent planning efforts (for exam2 ple, the interpretive master plan); and 

3 (2) provide funds for capital improvements to 

4 projects and initial operating assistance consistent 

5 with the Plan. 

6 (b) TECHNICAL AsSISTANCE.-The Secretary shall, 

7 upon the request of the Corporation and as outlined in 

8 the Plan, provide technical assistance to the Corporation 

9 in the preparation of any plans or studies and for the im10 plementation of any plans as set out in section 7(b). 

11 SEC. 9. DUTIES OF OTHER FEDERAL ENTITIES. 

12 Any Federal department, agency or other entity con13 ducting or supporting activities directly affecting the Area 

14 shall15 (1) consult with the Secretary of the Interior 

16 and the Corporation with respect to such activities; 

17 (2) cooperate with the Secretary of the Interior 

18 and the Corporation in carrying out its duties under 

19 this Act and, to the maximum extent practicable, co20 ordinate such activities with the carrying out of such 

21 duties; and 

22 (3) to the maximum extent practicable, conduct 

23 or support such activities in a manner which the 

24 Corporation determines will not have an adverse af25 feet on the Area. 

•HR 2843 m 
17 

16 

1 SEC. 10. AUTHORIZATION OF APPROPRIATIONS. 

2 There are authorized to be appropriated such sums 

3 as may be necessary to carry out the purposes of this Act. 

0 

•HR 2843 m 
103n CONGRESS 

1ST SESSION 

18 

H.R.ll04 

To establish the Great Falls Historic District Commission for the preservation 

and redevelopment of the Great Falls National Historic District in 

Paterson, New Jersey. 

IN THE HOUSE OF REPRESENTATIVES 

FEBRUARY 24, 1993 

Mr. KLEIN introduced the following bill; which was referred to the Committee 

on Natural Resources 

A BILL 

To establish the Great Falls Historic District Commission 

for the preservation and redevelopment of the Great 

Falls National Historic District in Paterson, New Jersey. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. ESTABLISHMENT OF COMMISSION. 

4 For the purpose of preserving and interpreting for 

5 the educational and inspirational benefit of present and 

6 future generations the unique and significant contribution 

7 to our national heritage of certain historic and cultural 

8 lands, waterways, and edifices in the Great Falls of the 

9 Passair/S.U.M. National Historic District located in the 
19 

2 

1 City of Paterson, State of New Jersey (Alexander Hamil2 ton's laboratory for the development of industrial America 

3 as well as America's first industrial city) with emphasis 

4 on harnessing this unique urban environment for its edu5 cational value as well as for recreation, there is hereby 

6 established the Great Falls Historic District Commission 

7 (hereinafter referred to as the "Commission"), the pur8 pose of which shall be to prepare a plan for the preserva9 tion, interpretation, development, and use, by public and 

10 private entities, of the historic, cultural, and architectural 

11 resources of the Great Falls of Passaie/S.U.M. National 

12 Historic District in the City of Paterson, State of New 

13 Jersey. 

14 SEC. 2. MEMBERS. 

15 (a) IN GENERAL.-The Commission shall consist of 

16 nine members, as follows: 

17 (1) The Secretary of the Interior, the Secretary 

18 of Housing and Urban Development, the Secretary 

19 of Transportation, and the Secretary of Commerce, 

20 all ex officio. 

21 (2) Five members appointed by the Secretary of 

22 the Interior, one of whom shall be the Director of 

23 the National Park Service, two of whom shall be ap24 pointed from recommendations submitted by the 

25 Mayor of the City of Paterson, one of whom shall be 

··BR 1104 m 
20 

3 

1 appointed from recommendations submitted by the 

2 Board of Chosen Freeholders of the County of Pas3 saic, New Jersey, and one of whom shall be ap4 pointed from recommendations submitted by the 

5 Governor of the State of New Jersey. The members 

6 appointed pursuant to this paragraph shall have 

7 knowledge and experience in one or more of the 

8 fields of history, architecture, the arts, recreation 

9 planning, city planning, or government. 

10 (b) SUBSTITUTE MEMBERS; COMPENSATION.-(1) 

11 Each member of the Commission specified in paragraph 

12 (1) of subsection (a) and the Director of the National 

13 Park Service may designate an alternate official to serve 

14 in his stead. 

15 (2) Members appointed pursuant to paragraph (2) of 

16 subsection (a) who are officers or employees of the Federal 

17 Government, the City of Paterson, the County of Passaic, 

18 or the State of New Jersey, shall serve without compensa19 tion as such. Other members, when engaged in activities 

20 of the Commission, shall be entitled to compensation at 

21 the rate of not to exceed $100 per diem. All members of 

22 the Commission shall receive reimbursement for necessary 

23 travel and subsistence expenses incurred by them in the 

24 performance of the duties of the Commission. 

•RR 1104 m 
21 

4 

1 SEC. 3. ORGANIZATION. 

2 (a) CHAIRMAN.-(1) The Commission shall elect a 

3 Chainnan from among its members. 

4 (2) Financial and administrative services (including 

5 those relating to budgeting, accounting, financial report6 ing, pel'!'!onnel, and procurement) shall be provided for the 

7 . Commission by the General Services Administration, for 

8 which payments shall be made in advance, or by reim9 bursement, from funds of the Commission in such 

10 amounts as may be agreed upon by the Chaiz:man of the 

11 Commission and the Administrator, General Services Ad12 ministration. The regulations of the Department of the In13 terior for the collection of indebtedness of personnel re14 suiting from erroneous payments shall apply to the collec15 tion of erroneous payments made to or on behalf of a Com16 mission employee, and regulations of said Secretary for 

17 the administrative control of funds shall apply to approIS priations of the Commission. The Commission shall not 

19 be required to prescribe such regulations. 

20 (b) STAFF.-The Commission shall have power to ap21 point and fix the compensation of such additional person22 nel as may be necessary to carry out its duties, without 

23 regard to the provisions of the civil service laws and the 

24 Classification Act of 1949. 

25 (c) TEMPORARY AND INTERMITTENT SERVICES.-

26 The Commission may also procure, without regard to the 

•HR 1104 m 
22 

5 

1 civil service laws and the Classification Act of 1949, tem2 porary and intermittent services to the same extent as is 

3 authorized for the executive departments by section 15 of 

4 the Administrative Expenses Act of 1946, but at rates not 

5 to exceed $100 per diem for individuals. 

6 (d) FACILITIES AND SERVICES.- The members of the 

7 Commission specified in paragraph (1) of section 2(a) 

8 shall provide the Commission, on a reimbursable basis, 

9 with such facilities and services . under their jurisdiction 

10 and control as may be needed by the Commission to carry 

11 out its· duties, to the extent that such facilities and services 

12 are requested by the Commission and are otherwise avail13 able for that purpose. To the extent of available appropria14 tions, the Commission may obtain, by purchase, rental, do15 nation, or otherwise, such additional property, facilities, 

16 and services as may be needed to carry out its duties. 

17 Upon the termination of the Commission all property, per18 sonal and real, and unexpended funds shall be transferred 

19 to the Department of the Interior. 

20 SEC. 4. PLAN. 

21 It shall be the duty of the Commission to prepare 

22 the plan referred to in section 1, and to submit the plan 

23 together with any recommendations for additional legisla24 tion, to the Congress not later than eighteen months from 

25 the effective date of this Act. The plan for the Great Falls 

•BR 11M m 
23 

6 

1 of the Passaic/S. U .M. Historic District shall include con2 siderations and recommendations, without limitation, 

3 regarding4 ( 1) the objectives to be achieved by the estab5 lishmEmt, development, and operation of the area; 

6 (2) the types of use, both public and private, to 

7 be accommodated; 

8 (3) criteria for the design and appearance of 

9 buildings, facilities, open spaces, and other improve10 ments; 

11 ( 4) a program for the staging of development; 

12 (5) the anticipated interpretive, cultural, and 

13 recreational programs and uses for the area; 

14 (6) the proposed ownership and operation of all 

15 structures, facilities, and lands; 

16 (7) areas where cooperative agreements may be 

17 anticipated; and 

18 ( 8) estimates of costs, both public and private, 

19 of implementing and insuring continuing conform20 ance to the plan. 

21 SEC. 5. TERMINATION. 

22 The Commission shall be dissolved ( 1) upon the ter23 mination, as determined by its members, of need for its 

24 continued existence for the implementation of the·plan and 

25 the operation or coordination of the entity established by 

•BR 1104 m 
24 

7 

1 the plan, or (2) upon expiration of a two-year period com2 mencing on the effective date of this Act, whereupon the 

3 completed plan has not been submitted to the Congress, 

4 whichever occurs later. 

5 SEC •. 6. PROPOSED AUTHORIZATIONS TO BE INCLUDED IN 

6 PLAN. 

7 (a) IN GENERAL.-It is contemplated that the plan 

8 to be developed may propose that the Commission may 

9 be authorized to10 (1) acquire lands and interests therein within 

11 the Great Falls of the Passaic/S.U.M. Historic Dis12 trict by purchase, lease, donation, or exchange; 

13 (2) hold, maintain, . use, develop, or operate 

14 buildings, facilities, and any other properties; 

15 (3) sell, lease, or otherwise dispose of real or 

16 personal property as necessary to carry out the plan; 

17 ( 4) enter into and perform such contracts, 

18 leases, cooperative agreements, or other transactions 

19 with any agency or instrumentality of the United 

20 States, the State of New Jersey, and any govern21 mental unit within its boundaries, or any person, 

22 firm, association, or corporation as may be nec23 essary; 

24 (5) establish (through covenants, regulations, 

25 agreements, or otherwise) such restrictions, stand-

•HR uo. m 
25 

8 

1 ards, and requirements as are necessary to assure 

2 development, maintenance, use, and protection of 

3 the Great Falls of the Passaie/S.U.M. Historic Dis4 trict in accordance with the plan; and 

5 ( 6) borrow money from the Treasury of the 

6 United States in such amounts as may be authorized 

7 in appropriations Acts on the basis of obligations is8 sued by the Commission in accordance with terms 

9 and conditions approved by the Secretary of the 

10 Treasury. 

11 (b) PuRCHASE OF OBLIGATIONS.- The Secretary of 

12 the Treasury is authorized and directed to purchase any 

13 such obligations of the Commission. 

14 SEC. 7. TITLE TO PROPERTY. 

15 Title to property of the Commission shall be in the 

16 name of the Commission, but it shall not be subject to 

17 any Federal, State, or municipal taxes. 

18 SEC. 8. AUTHORIZATION OF APPROPRIATIONS. 

19 There are authorized to be appropriated not to exceed 

20 $200,000 for the preparation of the plan authorized by 

21 this Act. 

0 

•HR 1104 m 
26 

Mr. VENTO. I wanted to comment, though, that for the past several years various activities have been under way in Wheeling involving National Park Service personnel and using Park funds for 

historic and cultural preservation purposes. Similarly, historic district redevelopment is occurring in the New Jersey proposal. 

So we are faced with trying to redefine and rationalize how these 

Park funds are utilized, how that fits in with the scope of the Park 

Service work, along with the corridor concept. 

We passed a few of these heritage corridors in the past laying out 

somewhat of a framework, but that is obviously not adequate to 

deal with the myriad of concerns that are rising from this issue. 

I believe the concept of heritage area corridors is one we need to 

examine carefully, and we can determine what action should be 

taken in these and other proposed areas. I am interested in hearing the views of my colleagues who are strong advocates of this position today. 

Without objection, my full comments, those of the witnesses, and 

the Members will be put in the record in their entirety. 

[Prepared statement of Mr. Vento follows:] 

PREPARED STATEMENT OF CONGRESSMAN BRUCE F. VENTO 

Today we will have a hearing on two bills, H.R. 1104, a bill to establish the great 

falls historic district commission in New Jersey, which was introduced by Representative Herb Klein, and H.R. 2843, a bill to establish the Wheeling National Heritage area, introduced by Congressman Mollohan. Both of these bills consider ways to pre- serve and interpret our nation's history and deal with aspects of our industrialized 

past. H.R. 2843 is identical to a measure currently pending before the Senate Energy 

and Natural Resources Committee, S. 1341, introduced by Senator Byrd. For the 

past several years various activities have been underway in Wheeling, WV involving 

national park service personnel and using NPS funds for historic and cultural preservation purposes. These activities have taken place without an express legislative policy directing the use of those federal personnel and funds. Concerns have been 

expressed as to the role of the national government in this project as well as the 

extent of the duties and responsibilities of the involved parties. The legislation we are considering today (H.R. 2843) would formalize the various duties and responsibilities of the involved parties. The legislation we are considering today (H.R. 2843) would formalize the various duties and responsibilities for the historic and 

cultural preservation activities proposed to be undertaken in this area. There needs 

to be a legislative authorization for the Wheeling project. The FY 1994 Interior Approptjation Act also recognizes that need by placing a restriction of the use of funds m th1s area. The second bill we are considering today, H.R. 1104, establishes the Great Falls 

Historical district Commission for the preservation and redevelopment of the Great 

Falls National Historic District in Paterson, New Jersey. I understand that representative Klein has been working with representatives from the National Park 

Service, as well as interested local officials and citizens, to refine some of the provisions of this legislation. While a bill incorporating some of the suggested changes was introduced last Wednesday, we lacked the time to notice that legislation, H.R. 

3498, for this hearing. However, I understand that the park service and minority 

have copies of the bill introduced last week, and the administration witness is prepared to answer questions on its provisions. 

While this subcommittee has authorized various heritage corridors, we have only 

begun to consider the heritage areas concept as another approach to resource preservation and interpretation. I believe that the concept of heritage areas is one that we need to examine carefully so that we can determine what appropriate action can or should be taken on these and other proposed heritage areas. Accordingly, I look 

forward to learning more about these proposed heritage areas and the concept behind heritage areas as well. 

Mr. VENTO. With that, I would be pleased to recognize the distinguished junior Senator from New Jersey, Senator Lautenberg. 
27 

STATEMENT OF HON. FRANK R. LAUTENBERG, A SENATOR IN 

CONGRESS FROM THE STATE OF NEW JERSEY 

Senator LAUTENBERG. Thank you very much, Mr. Chafrman. 

Being junior with all this white hair is kind of an anomalous position, but I thank you for holding this hearing and for helping us 

move the process. I am so pleased to join the other relatively junior 

colleague from' New Jersey, Congressman Herb Klein, who has 

done an outstanding job in the short time that he has been a Member of the House. I have enjoyed our opportunities to work together. · This one is particularly significant for me because I intend to introduce the Senate companion bill to Congressman Klein's bill H.R. 

3489, a bill that recognizes, as you noted, Mr. Chairman, the historic signi~cance of t~e. Great Falls area of Paterson, New Jerst;Y· 

Senator Bill Bradley JOmed me as a cosponsor of the Senate bill. 

I was born in Paterson. I am proud that my father, like so many 

others during the beginning years of this century, worked in those 

silk mills. I know firsthand the historic importance of industries in 

that city. 

Paterson is known as America's first industrialized city. Alexander Hamilton played a rol'e there when, in 1791, he chose the area 

around Great Falls for his laboratory and to establish something 

we called the SUM, the Society for the Establishment of Useful 

Manufactures. 

Textiles held a special significance, and Paterson was once called 

the Silk City as the center of the textile industry. While rich in history, the area is blessed by great natural beauty and splendor. 

As you can appreciate, Mr. Chairman, this is an urbanized community. This oasis where we have the Great Falls is a place to visit 

and think and remember that this was there long before any of us 

and that it is part of a whole matrix of development that ought to 

be preserved. The opportunities are not just educational and cultural but economic and recreational as well. 

The Federal Government acknowledged all of this by designating the area a National Historic Landmark, a formal recognition by the 

National Park Service. The roots and the contribution of this area 

run very deep. New industries were responsible for thriving, busy, 

tight-knit families, and for many of the residents, it was the first 

home of immigrants like my grandparents, who arrived in the 

United States through nearby Ellis Island. 

Many of the industries of Great Falls have moved elsewhere, but 

we are left with an area whose significance is great for people all 

around, but especially fer those like I who live there and who have 

a history in the community. , I find a source of inspiration in remembering that my father 

worked in those thriving mills of Paterson. So when I look at the 

city-and I still have active contact with my birthplace-! go back 

to the same barber that I went to when I was going to college, 

which was a long time ago, but it brings me back into the community, and I love to visit. 

We value our personal and collective histories because they connect us to our roots and to our families and to one another. And 

Paterson is not alone in this story. New Jersey has a rich industrial urban history. New Jersey played a major role in the Indus-
28 

trial Revolution, and I sought to highlight this role when I secured 

funds in the fiscal year 1992 Interior appropriations bill to establish the urban history initiative in three cities in New Jersey; 

Paterson was one of them. 

Paterson's urban history program is in its early stages. The cooperative agreement was recently signed, and things are moving. The 

infusion of funds has succeeded in initiating Paterson's historic revitalization, but this bill formalizes th~ current partnership among 

the city, its residents, and the Federal Government. It establishes 

the Great Falls Historic District and provides a long-term Federal 

presence in the area. 

The resources of the Great Falls are just beginning to be tapped, 

and we need this bill to give those resources the focus they deserve. 

Such historical recognition provides important educational and cultural benefits. Its value is immeasurable. 

The Secretary of the Interior will enter into a cooperative agreement with nonprofits, property owners, State and local governments, to assist in interpreting and preserving the . historical significance and contributions of the Great Falls to the city, to theregion, to the industry, and to our heritage. 

This bill doesn't impose the Federal Government's heavy hand on 

the residents and businesses. The city doesn't want that, neither 

does the Park Service. Instead, the bill initiates and facilitates cooperative agreements among the interested parties. The Secretary 

will determine properties of historical or cultural significance and 

provide technical assistance, interpretation, restoration, or improve 

these properties. This historical and cultural recognition will lead 

to economic revitalization in the area as well. 

Once again, Mr. Chairman, I want to thank my colleague, Congressman Klein, for his persistence and his skill as well as his diligence . in crafting a bill with broad support. The mayor of Paterson, 

Mayor Bill Pascrell-and I don't know whether the mayor has-----'-

Mr. KLEIN. He has just arrived. · Senator LAUTENBERG. Well, that is good timing. The mayor has 

a penchant for knowing just the right moment as we welcome him 

here, and Mr. Frank Blesso of Paterson as well, who was so instrumental in helping develop the coalition of support that we have~ 

and the · National Park Service which is working so hard on the 

urban history initiative in Paterson. 

So, again, Mr. Chairman, I thank you for the opportunity to testify, and I look forward to making this bill a reality and working 

with Congressman Herb Klein to make that happen. 

Thank you. 

[Prepared statement of Mr. Lautenberg follows:] 
29 

TBSTD!OHY OF SENATOR FRANK R. LA1J'.rERBKRG 

B.R. 3489 - Establishes the Great Falls 

Historic District in Paterson, Hew Jersey 

Bouse Subcommittee on Rational Parks, Forests & Public Lands 

November 16, 1993 

Good Morning. I'm pleased to join Congressman Herb Klein in 

introducing the Senate Companion to H.R. 3489, a bill that 

recognizes the historic si gnificance of the Great Falls area of 

Paterson, New Jersey. Senator Bradley will join me as a cosponsor of the Senate bill . 

I'm proud to say that I was born in Paterson. My father 

worked in the mills, and I experienced first-hand the historic 

importance of industry in the City. 

Paterson is known as America's first industrialized city. 

Alexander Hamilton played a role here when, in 1791, he chose the area around the Great Falls for his laboratory and and to establish 

the Society for the Establishment of Useful Manufactures. Textiles 

held special significance; Paterson was once called "Silk City" as the center of the textile industry. 

While rich in history, the area is also blessed by great natural beauty and splendor. Its resources offer not just educational and cultu~al opportunities, but economic and 

recreational ones as well. 

The Federal government acknowledged all this by designating the area a National Historic Landmark , a formal recognition by the 

National Park Service. 

The roots and contributions of this area run deep. New 

industries were responsible for thriving businesses, tight knit 

families and for many of the residents, the first homes of 

immigrants, who arrived in the United States through nearby Ellis 

Island. 

Many of the industries from Great Falls have moved elsewhere. 

But we are left with an area whose significance is great for people 

like me. 

I find a source of inspiration in remembering my father in 

those thriving mills of Paterson, so I look at Paterson, and the 

Great Falls area, as a reminder of who I am. We must value our personal and collective histories, because they connect us to our families and to each other. 

Paterson is not alone in this story. New Jersey is rich in 

industrial, urban history. New Jersey played a major role in the 

industrial revolution . 

78-797 0 - 94 - 2 
30 

-2-

I sought to highlight this role when I secured funds in the 

FY92 Interior Appropriations bill to establish the Urban History 

Initiative in three cities in New Jersey. Paterson is one of those 

cities. 

Paterson's urban history program is in its early stages. The 

cooperative agreement was recently signed and things are moving. 

This infusion of funds has succeeded in initiating Paterson's 

historic revitalization. 

But this. bill formalizes the current partnership among the 

City, its residents and the Federal government. It establishes the 

Great Falls Historic District and provides a long-term federal 

presence in the area. ·The resources of Great Fall·s are just 

beginning to be tapped -- we need this bill to give the resources the focus .they deserve. 

Such historical recognition provides important educational, 

economic and cultural benefits. Its value is immeasurable. 

The Secretary of the Interior will enter into cooperative 

agreements with nonprofits, property owners, state and local 

governments to assist in interpreting and preserving the historical 

significance and contributions of the Great Falls to the City, to industry and to our heritage. 

This bill does not impose Federal government's heavy hand on the residents and businesses. The City doesn't want that, and 

neither does the Park Service. 

Instead, the bill initiates and facilitates cooperative 

agreements among interested parties. The Secretary will determine 

properties of historical or cultural significance, and provide 

technical assistance, interpret, restore or improve these 

properties. This historic and cultural recognition leads to economic revitalization in the area. 

I thank Congressman Klein for his diligence in crafting a bill with broad support; Mayor Pascrell and Frank Blesso of 

Paterson for their dedication and perseverance; and the National 

Park Service, which is working so hard on the Urban History 

Initiative in Paterson. 

Thank you for the opportunity to testify, and I look forward to making this bill a reality. 
31 

Mr. VENTO. Thank you very much. 

Senator, I don't know if your schedule permits, but I was going 

to invite your colleague here, Representative Klein, to make his 

statement. Are you able to remain, or do you need to--

Senator LAUTENBERG. Depending on my beeper. 

Mr. VENTO. Okay. Then why don't we go ahead, and perhaps a 

few comments by myself to both of you and to others concerning 

the measure. 

Representative Klein-Herb-a friend of mine, serves with me on 

the Banking Committee, so I see him in a different venue here 

today. 

STATEMENT OF HON. HERB KLEIN, A REPRESENTATIVE IN 

CONGRESS FROM THE STATE OF NEW JERSEY 

Mr. KLEIN. Thank you very much, Mr. Chairman. It is always a 

pleasure to work with you on the Banking Committee and particularly a pleasure to work with you in connection with this legislation. I want to begin by thanking both you and Vice Chairman 

Hansen for the opportunity to have this hearing. I also want to thank and commend Senator Lautenberg, the junior Senator from New Jersey, for his leadership in connection with 

this very important legislative initiative. 

I also want to commend Mayor Pascrell, Mr. Frank Blesso, and 

others from the city of Paterson who, for many, many years have 

carried the torch for this very important project. 

It is my very sincere and distinct honor to represent the Eighth 

District of New Jersey, which is home to one of the truly unique 

areas in our great Nation. There are many areas of natural beauty 

throughout the United States and many areas of unique cultural 

significance, but I know of no other single area which brings together these two characteristics as does the Great Falls district of 

Paterson, New Jersey. 

At this time, I would only briefly describe the history and significance of the Great Falls since other witnesses will cover this in 

greater detail later. · In 1791, Alexander Hamilton and others founded an industrial 

venture known as the Society for the Establishment of Useful Manufactures, the so-called SUM. This was genera).ly known as the 

first planned ind1.1strial community in the United States, and the 

Society was the practical embodiment of the theory which Hamilton espoused in his Report on Manufacturers published in 1791 

that the establishment of American industries was the best way to 

fortify American independence. · Under Hamilton's guidance', the Society acquired land surrounding the Great Falls of the Passaic River in order to supply power 

to various mills and factories through a 2.5-mile system of raceways. 

As for natural beauty, the appeal of the Great Falls is obvious, 

and I just wish that we could have this hearing in the city of 

Paterson. If I may digress for a moment, we did have a field hearing of the Subcommittee of Technology in Paterson several weeks 

ago. Chairman Valentine at that time had the opportunity to see 

the Great Falls and the historic district, and he was most impressed, couldn't imagine that there was anything of that combined 
32 

beauty and historical significance anyplace in the entire United 

States. 

Where else in urban America can one find a waterfall of such 

magnitude? For those who do not know, Great Falls is the second 

largest waterfall east of the Mississippi. Great Falls is a magnificent sight which, unfortunately, is an underpublicized and an 

underutilized scenic resource. 

The preservation of the area's heritage and natural beauty has 

the potential to stimulate a large economic recovery in this economically hard hit region. The establishment of a National Heritage Area would not only give the Great Falls district the appropriate national recognition, it would also serve to attract tourism 

and stimulate the local economy. Past studies have shown that redevelopment of the Great Falls 

would serve as a linchpin to a larger revitalization plan, and this 

is one of the principal causes underlying my legislative efforts on 

behalf of this legislation. 

I initially introduced H.R. 1104, and that was done and modeled 

after legislation that had been introduced by my predecessor 

through the dedicated efforts of Congressman Bob Rowe. However, 

after discussions with the subcommittee staff and the National 

Park Service, it became apparent that there were areas in which 

H.R. H04 needed improvement and refinement. 

After incorporating many of these changes that had been suggested both by the subcommittee staff and the Park Service, H.R. 

1104 had changed so much, we introduced a committee substitute, and then we finally concluded that the best way to deal with the 

problem in terms of legislative clarity would be to introduce a new 

improved bill as a separate measure. 

I believe that the new bill, H.R. 3498, satisfies substantially all 

of the concerns of the subcommittee and of the Park Service, and 

I want to express my willingness to work with the subcommittee 

and the Park Service on any remaining items which may remain 

unresolved. 

In the absence of formal guidelines of what a, quote, National 

Heritage Area is and what it will do, this will give the Great Falls 

the national recognition it deserves. 

Although the Falls district is now included in the National Reg- ister of Historic Places, this is really not sufficient for an area as 

unique and notable as the Great Falls district. 

I understand that there is general legislation which would define 

National Heritage Areas, and at such time as that legislation 

might be passed, we would certainly comply with any technical or 

procedural requirements which might be necessary to bring it in 

line with the guidelines. 

However, I do not believe it is necessary to wait nor appropriate 

to wait until a National Heritage Area omnibus bill is introduced 

and that definition is defined since the situation in Paterson needs 

immediate attention. . While the Park Service and this subcommittee should be lauded 

in for its efforts to protect and preserve our national heritage, the 

preservation of the Great Falls cannot wait for that process to be 

completed. 
33 

H.R. 3498 does not ask the Park Service to be responsible for the 

entire redevelopment of Paterson. The bill simply formalizes and 

clarifies an existing relationship between the National Park Service 

and the city of Paterson in order to provide the specialized assistance that is needed to protect and preserve the unique structures 

and waterways of the Great Falls. 

While this effort was begun under Senator Lautenberg's Urban 

Historical Initiative, I believe that it is necessary for Congress to 

formalize the Federal Government's commitment to the Great Falls 

beyond a one-time influx of funds. Let's make sure that we see this 

task through to completion. 

I want to thank the subcommittee staff for its assista:Qce in perfecting the legislation. The guidance of the staff has been indispensable in creating a quality piece of legislation. I also want to thank 

the many people in the National Park Service both in Washington 

and in the regional office in Philadelphia for their advice on how 

best to proceed with the work that needs to be done, and I look forward to working with them in the future to ensure that this unique 

natural resource is preserved for future generations. 

Mr. Chairman, let me also note that, in addition to the city of 

Paterson, there is support for the Great Falls bill on the part of the 

State of New Jersey, the Port Authority of New York and New Jersey, and the Paterson Historical Society, all of whom, with the 

chair's permission, are willing to provide the subcommittee with 

written testimony for the record. 

Finally, I want to again thank my good friend, Senator Lautenberg, for his support and his leadership in this initiative and thank 

you, Mr. Chairman, for giving us the opportunity to be here today. 

[Prepared statement of Mr. Klein and attachment follow:] 
34 

TESTIMONY OF U.S. REPRESENTATIVE HERB KLEIN 

ON THE GREAT FALLS -HISTORIC DISTRICT 

OF PATERSON NEW JERSEY 

BEFORE THE SUBCOMMITTEE ON NATIONAL PARKS, FORESTS & PUBLIC LANDS 

NOVEM~ER 16, 1993 

Mr. Chairman, let me begin ~y thanking you and the ViceChairman, Mr. Hansen, for the opportunity to have this hearing. It is 

my sincere honor to represent the 8th District of New Jersey, which is 

home to one of the truly unique areas in our great nation. There are 

many areas of natural beauty throughout the United States, and many 

areas of unique cultural significance. But no single area ·brings together 

these two characteristics as does the Great Falls District Qr' P~terson, 

New Jersey. 

At this time, I will only briefly descri~ the history and 

significance of the Great Falls, as the other witnesses will cover this in 

greater detail later. In 1791, Alexander Hamilton and others founded 

an induStrial venture known as the Society for the Establishment of 

Useful Manufactures (S.U.M.) This society was the practical 

embodiment of the theory Hamilton espoused in his Report on 

Manufactures (1791), that the establishment of American industries was 

the best way to fortify American independence. Under Hamilton's 

guidance, the Society acquired land surrounding the Great Falls of the 

Passaic River in order to supply power to various mills and factories 

through a 2-1/2 mile system of raceways. 
35 

As· for natural beauty, the appeal of the Great Falls is obvious. 

Where else in urban America can one find a waterfall of such 

magnitude? For those who do not know, the Great Falls is the second 

largest waterfall east of the Mississippi. The Great Falls is a 

magnificent sight which, unfortunately, is under-publicized and underutilized scenic resource. 

The preservation of the area's heritage and natural beauty have 

the potential to stimulate a larger economic recovery in this 

economically hard-hit region. Past studies have shown that 

redevelopment of the Great Falls would serve as a linchpin to a larger 

revitalization plan. This is the root cause for my legislative efforts on 

behalf of the Great Falls. 

My first bill (H.R. 1104) was introduced as soon as I got to 

Congress, as the need for historic preservation and redevelopment in 

Paterson. For the most part, H.R. 1104 represented the dedicated 

efforts of my predecessor, Congressman Bob Roe. However, after 

discussions with Subcommittee staff and the National Park Service, it 

became apparent that there were areas in which H.R. 1104 needed 

improvement. 

After incorporating many of the changes that had been suggested 

by this Subcommittee and the Park Service, H.R. 1104 had changed so 

much that it seemed simpler just to introduce the improved bill as a 
separate measure. I believe that the new bill, H.R. 3498, satisfies most 

of the concerns of this Subcommittee and the National Park Service and 

I am want to express my willingness to work with the Subcommittee and 

the Park Service on any remaining matters which remained unresolved. 

In the absence of formal guidelines of what a "National Heritage 

Area" is and what it will do, this will give the Great Falls the national 

recognition it deserves. Although it is included in the National Register 

of Historic Places, this is hardly sufficient for an area as unique and 

notable as the Great Falls. Once "National Heritage Areas" are defined, 

only technical corrections would be required in order bring the Great 

Falls into accord with those guidelines. 

I have elected not to wait until a "National Heritage Area" is 

defined as the situation in Paterson needs immediate attention. While 

the Park Service and this Subcommittee should be lauded for its efforts 

to protect and preserve our national heritage, the preservation of the 

Great Falls cannot wait for that process to be completed. 

H.R. 3498 does not ask the Park Service to be responsible for the 

entire redevelopment of Paterson. This bill formalizes and clarifies an 

existing relationship between the National Park Service and the City of 

Paterson in order to provide the specialized assistance that is needed to 

protect and preserve the unique structures and waterways of the Great 

Falls. While this effort was begun under Senator Lautenberg's Urban 
37 

ffistorical Initiative, I believe that it is necessary for Congress to 

formalize the federal government's commitment to the Great Falls 

beyond a one-time influx of funds. Let's make sure that we see through 

this task to its completion. 

I want to thank the Subcommittee staff for their assistance in 

perfecting this legislation. Their guidance has been indispensable in 

creating a quality piece of legislation. Also, I want to thank the many 

people in the National Parks Service, both in Washington and in the 

regional office in Philadelphia, for their advice in how best to proceed 

with the work that needs to be done, and I look forward to working 

with them in the future to ensure that this unique national resource is 

preserved for future generations. 

Mr. Chairman, let me also note that, in addition to the City of 

Paterson, there is support for the Great Falls Bill on the part of the 

State of New Jersey, The Port Authority of New York & New Jersey, 

and the Paterson ffistorical Society, all of whom, with Chair's 

permission, are willing to provide the Subcommittee with their written 

testimony for the record. 
REBUILDING PATERSON: 

The Third Century 

OCTOBER 1991 

Local Assistance Program 

The Port Authority of 

New York and New Jersey 
LOCAL ASSISTANCE PROGRAM 
2 

INTRODUCTION 

~ 

~~~-. :.. -~~'.~' ' ,. .. .. '~ . ~~ ' 

' ' ' - . ~~~ 
INTRODUCTION 

3 
INTRODUCTION 

4 
EXECUTIVE SUMMARY 

5 
EXECUTIVE SUMMARY 

6 
1 

PHYSICAL REVITALIZATION 

Downtown 
8 

PHYSICAL REVITALIZATION 

Downtown 
9 

PHYSICAL REVITALIZATION 

Downtown 
10 

PHYSICAL REVITALIZATION 

Downtown 

:fi¥~1t~: ,,..., _;"/-: ·::-";'<_;. \:...,;1'~~~f.'·?;~J~~· ..., ~_;;_ .. ··}~·-~·r:.- _~,,r,~~. ::~--~> :' - ' •\' :t:t.~.· ;,.+ ~ '"--'·J• .~ -.· '" <N'B i"' .,1

;11 ... ,,. r'l''~-~~-~ • ~'i!!.< ·' ·.:!(~ .. ; ~- t-... ·~- ,;. \ .-~~~\ ' -~~ 
11 

PHYSICAL REVITALIZATION 

Downtown 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

12 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

13 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

14 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

. ·, 

15 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

~·~ ~ =~~::~~-· -~ :;; i L.;.. ·., 

. , I • _ __:____•--

16 
PARK PHYSICAL REVITALIZATION 

Great Falls Park 

17 
TRANSPORTATION 

18 
TRANSPORTATION 

19 
TRANSPORTATION 

20 
21 

PROMOTING PATERSON 

The ~ew Image 
22 

PROMOTING PATERSON 

The New Image 
-.] 

a:> 

I 

-.] 

\.0 

-.] 

0 

\.0 

""' 

w 

SUMMARY 

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Mr. VENTO. You are welcome, and thank you both for appearing 

here. It certainly underlies the importance of this, and I don't want 

to delay you and don't want to repeat myself throughout the hearing, and frankly, I very much appreciate tlle work that you have 

done. · 

I think the bill is a much improved bill. Although we didn't have 

time to notice it for the hearing today, I hope that others that are 

testifying today will reflect on the modifications made in your work 

with the subcommittee staff and with your local community. 

We face really two problems in this, two challenges. First is the 

issue of not having a well-defined heritage area or corridor generic 

legislation in terms of trying to define a partnership relationship 

between the Park Service and State and local communities to accomplish the mission and the goals that,you .both seek in terms of 

this preservation, whether it is cultural, recreational, or natural 

areas. So that is a major challenge. We have on the agenda anumber of proposals waiting for the definition of that format. 

The second problem is, once that is done, then we face the budget 

constraints. Once we formalize and talk about what the governance 

structure and the relationship is with the Department of the Interior and the National Park Service, we face the budgetary problems. 

Senator Lautenberg, with your work on the appropriations process, you and Senator Bradley have moved forward with funding, 

sort of putting it on a path before we have really defined what the 

policy is. This is not unique, but we obviously have a lot of tension 

between the committees trying to say what the policy path should 

be. It is not that we disagree. 

Much of this comes about too because of inadequate funding of 

programs like the Historic Preservation Fund, which is authorized 

for a big amount but which the Appropriations Committee has not 

made appropriate to fund that at a greater level. So the States and 

communities are strapped, and we have to come up ·with some sort 

of a common-sense notion and policy about how we are going to 

deal with that. 

I don't think that there is any disagreement, especially here, on 

the national landmark or the historic district in terms of how we 

could work together. I mean that is recognized. It is a question of 

trying to define whether this becomes a unit of the National Park 

Service, what the partnership role is going to be, and then trying 

to provide some consistency so that what we do in policy in New 

Jersey is similar to what I might do in Minnesota or California. 

That is a principal concern. 

Then I am certain that you would agree that if the national government places money in there we have other money matched from 

the local level, and it ought not to be disregarded in terms of what 

happens in the future to those properties or assets that are placed 

in that area. 

So there are really some very common-sense notions here. Do we 

need another additional governance structure at the local level? 

Can we build upon local or State governments on a compact basis? 

Should the national government, especially the Department of the 

Interior, be put in the place to appoint people to a group that is 
68 

going to . have some governance structure in local communities? 

These are common-sense questions. 

It seems to me that if you want local control, you ought to look 

to the people that are elected regularly and try to build on that 

basis. If they want to create advisory and other groups, so be it, 

but I don't know that I should be sitting here defining what the 

local government of Paterson, New Jersey, is in terms of how it 

deals with this historic district. It complicates matters greatly, and 

we need to have a· fiscally responsible agent, whether it be the 

State, the county, or. the local government, if we can establish a 

compact, an agreem~nt or contract. 

You talk about cooperative agreements in here. I think that is 

the right way to go, and I think most of it is common sense, and 

a lot of the other ends ·up p.ot just being window dressing but ends 

up complicating our job in 'terms of implementing a policy without 

any real benefit to the goals or objectives that you have. So I will 

work with you on this. 

Senator? 

Senator LAUTENBERG. Mr. Chairman, if I might respond to your 

very thoughtful comments, first of all, this is a relatively amorphous structure. What we are looking to do is to get the benefit of 

the experience that the National Park Service has, to get their 

input, to try and establish a yardstick by which historic preservation perhaps in the future will be measured, because everyone 

knows that that period, ·the. Industrial Revolution, the energy and 

the vitality that existed in that early part of our country, has to 

be preserved if we are to remember what it is that built this country. 

It is wonderful to see Yellowstone and the other National Parks, 

and they have great attraction, but their attraction is simply-not 

to dismiss it-the natural beauty, the splendor of those areas. They 

are breathtaking. I am a visitor to the National Parks and the 

countryside of our Nation. 

But when you look at what happened in the period of time that 

the Falls district was developed, Alexander Hamilton's presence, 

the condition of urban America today, what kind of hope, what 

kind of vision, can there be for kids who are brought up in a relatively bleak, competitive area where the natural beauty is a rare 

availability to them? 

Here we have it. right in the middle of Paterson, and as Representative Klein said, it has the second largest waterfall east of 

the Mississippi. It is truly unique, and it encourages those young 

people, and I know because I visit the schools in Paterson, and a 

lot of them are new immigrants. A lot of the youngsters come from 

very poor homes. A lot of them come from structures that are not, 

in my view, designed to help build the kind of interest that you 

hope to see in young people. And here we have a chance to bring 

them together to visit this facility, at the same time to acknowledge 

what it took to build our country. So what we are looking for, Mr. Chairman-and once again your 

comments were appropriately delivered-is to try and establish a 

structure that recognizes the budget constraints that exist. 

I am a member of the Appropriations Committee, as you noted. 

I am chairman of the Transportation Subcommittee. Mr. Chair-
69 

man, I don't know whether you have been to visit me yet, but I 

would say a lot of your colleagues have, and obviously, the bridge, 

the interchange, the rail spur, all those things are necessary, and 

I am not winking at you, Mr. Chairman, I promise you. 

But in the course of events, we are competing for very sparse resources, and in this bill we are not asking for anything specific. I 

am hoping that through the appropriations process we will be able 

to encourage the Park Service to focus on that area. 

So the admonition is heard, observed, and we appreciate your patience and interest. Mr. VENTO. I appreciate your response, and I will not repeat 

what I said, but it is beyond defining what type of focus could be 

this new special relationship, this partnership relationship between 

the national government, the Park Service, and these heritage 

areas, and/or corridors. Mr. KLEIN. Mr. Chairman. 

Mr. VENTO. Yes, Mr. Klein. 

Mr. KLEIN. If I just may add to what Senator Lautenberg has 

very eloquently stated, I specifically want to address your observations with regard to the generic legislation. 

We spent a good deal of time talking to the people at the National Park Service, first of all to get their concerns, and second to 

get some idea of what their view was of the concept of a National 

Heritage Area. Then we looked at some of the legislation that is 

already in place. 

I am sure the chairman is far more familiar than I with the fact 

that already National Heritage Areas have been established and 

indeed there are other bills pending for the establishment of them. 

So we have tried to model the latest bill after these predecessors, 

and we certainly want to be in keeping with the broad guidelines 

that have been established by prior precedents. · The one important thing I want to add specifically is that we 

have an area that I am sure the chairman and, I would suspect, virtually most all other Members of the House have been unaware 

of. The reason why you are unaware of it is because it has not received the national attention that it is clearly entitled to by virtue 

of its very unique and special combination of characteristics. We think that only through the establishment of a National Heritage Area or some affiliation with the National Park Service will 

it attain that recognition. We think it is very, very important for 

the reasons that are expressed by Senator Lautenberg and in order 

to achieve the attraction of tourism so that people in other parts 

of the country will learn about this, will have an opportunity to see 

this as part of America's great historical heritage, and will benefit 

from that experience. Mr. VENTO. Thank you very much. I know that all of our agendas 

are busy and full. Thank you, Senator. 

Senator LAUTENBERG. Thank you, Mr. Chairman. 

Mr. VENTO. And Representative Klein, if you have the time and 

would like to join the committee at the dais, I would invite you. I 

know the Senator has to return to the other side, but if you would 

like to do so, you are free to do so now or later if you would desire. 
70 

Mr. KLEIN. I would be most pleased to remain throughout the 

hearing and to join you at the dais ifl may. 

Mr. VENTO. Yes. 

Congressman Rahall is present and obviously has an active interest in the measure for West Virginia. 

Representative Mollohan had appeared at the onset ·of the hearing ·but has been: called away to the Appropriations Committee, and 

we will invite him to participate as he can return and his schedule 

permits and it is appropriate within the context of our witness list. 

Did the gentleman from West Virginia have any initial comments 

that he wanted to make? 

STATEMENT OF BON. NICK JOE RAHALL II 

Mr. RAHALL. Just briefly, Mr. Chairman, I would like to commend you for holding this hearing on H.R. 2843, a bill establishing 

the Wheeling National Heritage Area in the State of West Virginia 

and sponsored by my very fine colleague and friend from the northern part of the State, Representative Allan Mollohan. In this regard, I would note that the Senate sponsor of. the same 

measure is our senior Senator and chairman of the Appropriations 

Committee, Senator Byrd. 

The bill is based on a final concept plan prepared by the Park 

Service and is intended to highlight the numerous and outstanding 

cultural and historical resource values in the Wheeling area. These 

values, I might add, are, in my opinion, worthy of Federal assistance so that they may be preserved and interpreted for the benefit 

of all Americans. 

I again wish to commend my colleague, Allan Mollohan, for his 

leadership in this area and you, Mr. Chairman, for allowing us to 

hold this hearing today on this issue. Mr. VENTO. Well, thanks. 

I think we will now ask the regional director, B.J. Griffin, who 

has just recently assumed that post, to offer her testimony-B.J., 

first on the New Jersey matter for some degree of continuity, and 

then perhaps if Representative Mollohan appears, we will place 

him on the agenda for comments, and then we can go to the Wheeling discussion briefly. 

So if you would, in that order, I think it would be helpful to the 

Members. 

Ms. GRIFFIN. Thank you, Mr. Chairman. 

Mr. VENTO. Your statement has been made part of the record. 

You can feel free to summarize it. I have read the preliminary 

statements last evening. I commend you for the thorough analysis 

which is very helpful to me in terms of both these matters. 

STATEMENT OF B.J. GRIFFIN, REGIONAL DIRECTOR, MID-ATLANTIC REGIONAL OFFICE, NATIONAL PARK SERVICE, DEPARTMENT OF THE INTERIOR, ACCOMPANIED BY KATE STEVENSON, ASSOCIATE REGIONAL DIRECTOR FOR CULTURAL 

RESOURCESANDP~G 

Ms. GRIFFIN. I will briefly summarize the comments since you do 

have the testimony for the record. First let me say how pleased I am. This is my first appearance 

before you, Chairman Vento, and I look forward to a long, good, 
71 

and productive relationship with the committee. It is nice to be in 

uniform, too, again. Mr. Chairman, thank you, and we will comment on H.R. 1104, 

the Great Falls· Preservation and Redevelopment Act of 1993. It 

would establish in Paterson, New Jersey a nine-member commission to .prepare a plan for the Great Falls Historic District. 

We recommend against enactment of H.R. 1104. The National 

Park Service is already fulfilling an appropriate preservation .assistance role in the historic district of Paterson. We understand 

though that Congressman Klein has offered a substitute, and we 

are happy to work with him on the items of mutual interest and 

concern in that new bill, and it is getting much closer to what the 

National Park Service would recommend in the area. 

It is important to point out that the Great Falls Historic District 

has already been federally designated. It was designated a National Historic Landmark by the Secretary of the Interior, May 11, 

1976. The Park Service has undertaken community-based planning 

in Paterson over the last 15 months as part of the New Jersey 

Urban Heritage Initiative, a congressionally funded initiative to 

provide technical assistance to local governments. 

The bill, while accurately capturing both the significance and potential of the district, would result in a duplication of efforts. In 

contrast, the New Jersey Urban Heritage Initiative efforts are already funded and limit the National Park Service role to a temporary technical assistance one. This assistance is designed to create mechanisms that would enable the city to manage the district 

and Paterson's other historic resources on its own. 

The National Park Service has been involved in planning for the 

long-term preservation since the summer of 1992. At that time, the 

National Park Service commenced work in three New Jersey cities 

for which approximately $7.8 million had been appropriated in 

1992. These foster historic preservation activities; $4.147 million of 

this money was appropriated for Paterson. A cooperative agreement between the National Park Service and the city establishing the mechanisms by which these funds are to be obligated was executed September 30, 1993. The following objectives set down the National Park Service role 

in providing technical assistance in Paterson: Long-term regulatory 

mechanisms, build on prior Federal investment, promote and facilitate development, and foster a local constituency. 

With these assumptions in mind, the National Park Service proposed and the city's advisory committee enthusiastically accepted a 

list of projects which are provided to you for the record in my testimony. 

The Park Service recognizes and shares the bill's intention to create a management structure for the district that effectively contributes to its long-term preservation. Where the Department takes exception to the bill is over the question of what, in fact, is the most 

appropriate management structure for the district. 

The work that the Park Service has been doing to date in 

Paterson has essentially been a community-based planning effort 

designed to keep management decisions in the hands of the local 

community while strengthening the mechanisms and the quality of 

information available to the community. 
72 

We believe it sends the wrong message to suggest, as does H.R. 

1104, that the best way or only way to protect such resources as 

the district is through the establishment of a Federal commission 

or long-term Federal presence. In the long run, the district will be 

the best protected by local commitment and acceptance of a broad 

range of preservation techniques. The success or failure of such 

local mechanisms in the district will also have a profound effect on 

whether and how the city decides to manage its other historic resources. 

[Prepared statement of Ms. Griffin on H.R. 1104 follows:] 
73 

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November 16, 1993 

Mr. Chairman thank you for the opportunity to present the 

Department of Interior's views on H.R. 1104, the "Great Falls 

Preservation and Redevelopment Act of 1993." 

H.R. 1104 would establish in Paterson, New Jersey a 9-member 

commission to prepare a plan for the Great Falls Historic District. 

The plan would be required to be submitted to Congress in 18 

months. A substitute drafted on September 10 by Representative 

Klein would establish a 5.-member commission to prepare a plan for 

the historic district, acquire and restore property, and provide 

assistance to owners of significant properties in the district. 

The substitute would also authorize the Secretary of the Interior 

to provide rescue, firefighting, and law enforcement services. 

We recommend against the enactment of either H.R. 1104 or the 

proposed substitute. The National Park service is already 

fulfilling an appropriate preservation assistance role in the 

historic district of Paterson. 
74 

2 

I:n addition, we understand. that the Department of .Justice . has 

concerns regarding the process for appointing commission members. 

We also note that the President has issued an Executive Order 

requiring each agency to prepare ·a detailed review of all existing 

advisory committees. As a general policy and pending completion of 

this review, the Administration does not support provisions that 

would establish or reauthorize advisory commissions. 

It is important to point out first that the Great Falls Historic 

District has already been federally designated. The area under 

consideration is a National Historic Landmark District, having been 

so designated by the Secretary of the Interior on May 11, 1976. 

The National. Park Service has already undertaken community-based 

planning in Paterson over the last fifteen months as part of the 

New Jersey urban Heritage Initiative (NJUHI), a congressional. 

funding initiative to provide technical assistance to local 

governments. H. R. 1104, and the proposed substitute, while 

accurately capturing both the significance and potential of the 

District, would result in duplication of efforts and would require 

a permanent National Park Service presence in the District and its 

management. In contrast, the NJUHI efforts are already funded and 

limit the NPS role to temporary technical assistance, probably over 

a period of a few more years. This assistance is designed to 

create mechanisms that would enable the City to manage the District 

and Paterson's other historic resources on its own. The NPS does 
75 

3 

not wish to expand permanently its responsibilities by 

participating in a commission, and believes that its limited funds 

can be better spent elsewhere. 

The National Park Service has been involved in planning for the 

long-term preservation of the Great Falls District since the summer 

of 1992. 

At the time, the National Register Programs Division of Planning 

and Resource Preservation in the Mid-Atlantic Regional Office 

commenced work in three New Jersey cities for which approximately 

$7.8 million had been appropriated in FY92 to foster and support 

historic preservation activities. Of these funds, collectively 

known as the New Jersey Urban Heritage Initiative, $4.147 million 

was appropriated for Paterson, with the balance being divided 

approximately equally between Trenton and Perth Amboy. These funds 

are in the NPS construction budget. A Cooperative Agreement 

between NPS and the City establishing the mechanism by which these 

funds are to be obligated was executed on september 30, 1993. 

The City of Paterson had originally proposed a variety of ambitious 

projects in its pursuit of the NJUHI funding. The Park Service and 

the City quickly realized, however, that some of these were not 

currently feasible--in particular, the proposal to re-fill with 

water substantial portions of the historically important raceway 

system that originally powered the District's mills. The resulting 
76 

4 

reevaluation of the proposed projects was undertaken primarily by 

the Park Service but with the full understanding and input of an 

Advisory Committee assembled by the City at NPS's request. The 

Committee consists of representatives from a range of City 

government departments as well as private non-profit organizations 

active in the District. 

The following objectives on which the NPS based its revised list of 

projects were presented to and accepted by the Advisory committee: 

Projects should focus on long-term regulatory and 

administrative mechanisms for the City to manage the District 

on a sound historic and professional basis, without the 

involvement of the Park Service beyond the life of the NJUHI 

funds. 

Projects should to the extent possible build on prior feder~l 

investment in the District, primarily including the six 

certified historic rehabilitation projects. 

Projects should promote and facilitate development that is 

compatible with the District's historic industrial character. 

Projects should foster a local constituency for the District's 

preservation by interpreting and promoting its history for the 

city's residents. 

With these assumptions in mind, the National Park Service proposed 

and the City's Advisory committee enthusiastically accepted a list 
77 

5 

of projects including but not ·limited to the following: 

Assessment of existing physical condition of all buildings in 

the District; 

Physical stabilization of selected buildings to halt imminent 

deterioration and prevent loss of fabric; 

Establishment of low-interest facade rehabilitation revolving 

funds and purchase of historic facade easements; 

Participation in the development of District-specific design 

guidelines and zoning overlay proposals; 

Environmental assessment of a 7-acre City-owned abandoned 

industrial site to prepare for it reuse and development; 

An oral history project; 

Funding of a staff position for the recently-established 

Paterson Historical Commission for a 1-2 year period; 

Undertaking a marketing analysis of the economic development 

opportunities and constraints in the District; 

Supporting and quiding an overall plan for interpretation and 

future development in the District; 

Possible rehabilitation of selected building(s) and/or part of 

the raceways as a model for work by private entities. 

The Cooperative Agreement executed on September 30 incorporates the 

framework for the projects that I have just summarized, although it 

is less specific about the component projects, to allow for future 

flexibility. 
78 

6 

As these proposals show, the Park Service recoqnizes and shares 

H.R. 1104's intention to create a manag-ent structure for the 

District that effectively contributes to its long-term 

preservation. Where the Department takes exception to H.R. 1104 is 

over the question of what in fact is the most appropriate 

manag-ent structure for the District. 

The work that the National Park Service has been doing to date 

through NJUHI in Paterson -- as I hope the above summary has made 

clear -- has essentially been a community-based planning effort, 

designed to keep management decisions in the hands of the local· 

community, while strengtheni ng the mechanisms and the quality of 

information available to that community. 

Allow me to give you a specific example of this approach. It is 

only recently that the City has created the Paterson Historic 

Preservation Commission, while simultaneously designating the Great 

Falls District as its first local historic district. We understand 

that the creation of this local Commission and District was the 

culmination of a lengthy and difficult local political process, and 

it is the most important example to date of the City's recognition 

of the District's special management needs. 

As is typically the case, this new local Commission has oversight 

to the District • s resource through the City's building permit 

process, which gives it the most direct and immediate influence 
79 

7 

possible. In its work with the City through NJUHI, the Park 

Service has recognized that this fledgling local Commission 

presently has none of the human resources or regulatory and 

administrative tools necessary to do its important work. ~ number 

of the NJUHI projects described earlier and developed in concert 

with the City are designed to address these needs. They include 

the development of a zoning overlay study for the District; the 

preparation of design guidelines for new construction and 

alteration within the District; the stabilization of threatened 

structures (so as to avert the inevitable future cases before the 

commission of demolition by neglect); and even the funding of a 

staff position for the Commission. All these activities are 

already locally authorized, but need support and expertise to be 

realized. 

I hope this example demonstrates our support for and belief in a 

locally-based planning process for Paterson. Moreover, we believe 

it sends the wrong message to suggest, as does H.R. 1104, that the 

best or only way to protect such resources as the District's is 

through the establishment of a federal Commission. In the long run 

the District will be best protected by local commitment and 

acceptance of a broad range of preservation techniques. The 

success or failure of such local mechanisms in the District will 

also have a profound effect on whether and how the City decides to 

manage its other historic resources, which are considerable. 
80 

8 

This concludes -.y prepared remarks, Mr. Chairman. 

pleased to respond to questions at this time. 

I would - be 
81 

Ms. GRIFFIN. That concludes my remarks on the Great Falls leg-

[slation. Do you want me to proceed with Wheeling? 

Mr. RAIIALL [presiding]. Yes, please. Why don't you proceed on 

the West Virginia bill, H.R. 2843. 

Ms. GRIFFIN. Okay. H.R. 2843 would designate the Wheeling National Heritage Area in Wheeling, West Virginia, and authorize the 

establishment of the Wheeling National Heritage Area Corporation 

to carry out the purposes of the area. We recommend deferral on 

the action until the Administration has submitted its proposal on 

National Heritage Areas. 

The fact that we are recommending that Congress defer action 

on the bill does not mean that we oppose the purposes or intent 

of H.R. 2843. Also, the Secretary and the director have committed 

to having legislation on the heritage proposal by the next session. 

As you know, there is considerable interest within the Congress 

for designating National Heritage Areas evidenced by a variety of 

bills pending before you. In addition, there is a great deal of pressure on the Park Service to add new units to the system. 

The notion of a National Heritage Area as an alternative to the 

traditional designation as a unit of the National Park System has 

been discussed with the agency over the past few years. In response to this interest, we are reviewing our proposal that should 

be to you shortly. 

A National Heritage Area could be defined as a place where natural, cultural, and historic resources combine to form a cohesive, 

nationally distinctive landscape arising from patterns of human activity shaped by geography. These areas provide rich educational, 

recreational, and environmental opportunities, yet they may not 

currently enjoy any special recognition or management. 

The idea is a concept for a national effort to help communities 

conserve these landscapes in a new way that would confer national 

recognition and support while keeping management decisions in 

the hands of the local community. The National Park Service is developing a program to establish National Heritage Areas, and, as 

I said before, that will be in front of you shortly. 

We have worked extensively with the State of West Virginia, the 

city of Wheeling, and the Wheeling Heritage Area Task Force to 

develop a strategy for conserving, interpreting, and promoting the 

natural, historical, and cultural resources of Wheeling and the region. 

Given the considerable quantity of unmet needs at existing National Park Service units, we need to consider the priority of Federal expenditure related to new areas and programs. 

If the Congress were to act on this measure, we would request 

an authorization ceiling. Designation as a National Heritage Area, 

if that concept is approved, may provide a viable means for advancing the goals of recognition and conservation while keeping management and financial responsibility primarily at the local level. 

The plan for the Wheeling area calls for a Federal funding level 

of some $45 million over the next 10 years. Of this amount, the 

plan recommends approximately $28 million come from the National Park Service. Funding for this bill would be subject to the 

administration's budgetary priorities consistent with the Omnibus 

Budget Reconciliation Act of 1993. We understand the Department 
82 

of Justice is reviewing the bill and may have comments regarding 

the appointment of corporation members and the corporation's executive powers. 

This concludes my prepared remarks, Mr. Chairman. I would be 

pleased to respond to your questions. 

[The prepared statement of Ms. Griffin on H.R. 2843 follows:] 
83 

STATEMENT OF B. J. GRIFFIN, REGIONAL DIRECTOR, MID-ATLANTIC 

REGION, NATIONAL PARK SERVICE, DEPARTMENT OF THE INTERIOR, BEFORE 

THE SUBCOMMITTEE ON NATIONAL PARKS, FORESTS AND PUBLIC LANDS OF 

THE HOUSE COMMITTEE NATURAL RESOURCES CONCERNING H.R. 2843, A 

BILL TO ESTABLISH THE WHEELING NATIONAL HERITAGE AREA IN WEST 

VIRGINIA. 

NOVEMBER 16, 1993 

Mr . Chairman, thank you for the opportunity to present the 

Department of the Interior's views on H.R. 2843, a bill that 

would establish the Wheeling National Heritage Area in West 

Virginia . 

H.R. 2843 would designate the Wheeling National Heritage Area in 

Wheeling, West Virginia and authorize the establishment of the 

Wheeling National Heritage Area Corporation to carry out the 

purposes of the area . 

We recommend that action on H. R. 2843 be deferred until the 

Administration has submitted its proposal on National Heritage 

Areas later this fall. The fact that we are recommending that 

Congress defer action on the bill does not mean that we oppose 

the purposes or intent of H. R. 2843. 

As you know, there is considerable interest within the Congress 

for designating "National Heritage Areas", as evidenced by a 

variety of pending bills including H.R. 2843 and its Senate 

companion bill, S. 1341. In addition, there is a great deal of 

pressure on the Park Service to add new units to the National 
84 

Park System. The notion of a "National Heritage Area" as an 

alternative to the traditional designation as a unit of the 

National Park System has been discussed within the Agency over 

the past few years. In response to this interest, we are 

reviewing a proposal that offers an alternative approach that 

would meet the needs of local communities without creating a 

management and financial burden for the federal government . 

A "National Heritage Area" could be defined as a place where 

natural, cultural, and historic resources combine to form a 

cohesive, nationally distinctive landscape arising from patterns 

of human activity shaped by geography. These areas provide rich 

educational, recreation, and environmental opportunities, yet 

they may not currently enjoy any special recognition or 

management. 

This idea is a concept for a national effort to help communities 

conserve these landscapes in a new way that would confer national 

recognition and support, while keeping management decisions in 

the hands of the local community. 

The National Park Service is developing a program to establish 

National Heritage Areas. This needs to be reviewed within the 

Department before we will be able to comment definitively on 

specific heritage area proposals . 

2 
85 

Wheeling West Virginia enjoys a rich heritage. It began as an 

early Ohio River crossing, and grew to national importance as a 

center of transportation and industry in the first half of the 

nineteenth century. It played an important part in the 

settlement of this country by serving as the western terminus of 

the National road in the early 1800s, by serving as the 

crossroads of America throughout the nineteenth century, and by 

serving as one of the few maj or inland ports during that period. 

The diversity of geologic resources found in the area contributed 

to Wheeling's development as a commercial and industrial center. 

Industries there that were crucial to the development of our 

nation include: coal, iron and steel, tobacco, glass, china and 

tile, and boat building. Many of these resources are still 

active today or have the means to be easily interpreted. The 

numerous resources that the City of Wheeling possesses are of 

exceptional value in illustrating and interpreting the themes of 

our Nation's heritage and are worthy of national recognition and 

conservation for future generations. 

The National Park Service has worked extensively with the State 

of West Virginia, the City of Wheeling, and the Wheeling Heritage 

Area Task Force to develop a scracegy for conserving, 

interpreting and promoting the nacural, historic and cultural 

resources of Wheeling and the region. Given the considerable 

quantity of unmet needs at existing NPS units, we need to 

consider the priority of Federal expenditures related to new 
86 

areas and programs. If the Congress were to act en this measure, 

we would request an authorization ceiling. Designation as a 

National Heritage Area, if that concept is approved, may provide 

a viable means for advancing the goals of recognition and 

conservation while keeping management and financial 

responsibility primarily at the local level. 

The plan for the Wheeling National Heritage Area calls for a 

Federal funding level of some $45 ~iilion over the next 10 years. 

Of this amount, the plan recom~er.ds hat approxima~ely $28 

million come from the National ?ar~ Service. Funding for this 

bill would be subject to the Ad~;~.;s ration's budgetary 

priorities consistent with t~~ :-~:t~s Budget Reconciliation Act 

of 1993. 

We understand that the Depart~.;:~~ c.:: .Justice is reviewing the 

bill and may have comments re-::1::l;::g the appointment of 

corporation members and the -:·;: : •·:::::1.'s executive powers. 

This concludes my prepared :·····a:< .' ··~:. Chairman. I would be 

pleased to respond to your .· · . .. ~. 
87 

Mr. VENTO [presiding]. Yes, thank you. · I regret I had to step away for a moment but, having had the 

testimony, I at least had the preliminary understanding of what 

your testimony was, Director Griffin. . · We are getting into a general discussion of the heritage areas 

and corridors,. but let me just revert to some of the specifics with 

regard to the Great Falls issue first. 

What is the nature of the agreement between the city of Paterson 

and the Park Service as of this date with regard to the urban historic renewal funding program there? 

Ms. GRIFFIN. We have followed the guidelines that we would normally follow in our Grants Administration Program, incorporating 

into that agreement plans for spending the $4.1 million that has 

been appropriated. 

Mr. VENTO .. How much has been spent, do you know? . Ms. GRIFFIN. No; I don't know how much has been spent, but the 

agreement does defl1;1e about $3 million worth of those projects. 

Mr. VENTO. For instance, in that grants program, are there reverters or any assurance that once money is expended, that the improvements will not be. d,isregarded by future action of the city? 

Ms. GRIFFIN. Yes, Mr .. Chairman, there are covenants in all of 

those projects. 

Mr. VENTO. So what is the remedy in the event that something 

were to happen that would change or modify or vitiate the Park 

Service expenditure or grant? 

Ms. GRIFFIN. Mr. Chairman, I have with me the associa:te regional director for cultural resources and planning, and I would 

like to have Kate Stevenson respond to that. 

Mr. VENTO. Yes. 

Kate, welcome; and we appreciate your help ~oday. Did your hear 

my question? ' . Ms. STEVENSON. Yes, sir, I did hear your question. 

We have not actually executed any grants to any individual properties. The procedure we·would follow is the similar procedure that 

we follow with the grants-in-aid that we use under the Historic 

Preservation Fund, and they would be consistent with the amount 

of money that was actually expended on a property. So there would 

be a commitment of .a property owner or of the city to long-term 

maintenance consistent with the amount of money that was funded. · 

Mr. VENTO. There has been further assessment of the raceway 

areas in terms of reevaluation, I understand, in Paterson, Ms. Griffin-you are obviously aware of it-and that there is some question 

as to whether the expenditure should go forward in this area, that 

the ramifications of the cost of doing it and the feasibility is 

apparently--

Ms. GRIFFIN. Okay, I would ask Ms. Stevenson to respond. 

Mr. VENTO. Yes. 

Ms. STEVENSON. Yes. · We have been working very closely with 

the city. There is a· problem with rewatering the raceways, and we 

have been working with them to identify alternatives to the expenditures of funds on the raceways. They are very interested in 

maintaining and preserving the raceways, and since they are an integral part of the National Historic Landmark we share those con-
88 

cerns. We need to find a way with them to make that happen effectively. 

Mr. VENTO. The initial legislation before us has been pretty dramatically modified by a subsequent version introduced by Congressman Klein, but your testimony is focusing on the initial version. I know that your testimony highlighted it, but I wanted to 

also amplify that through this question. 

What would be the change in terms of the Park Service relationship with the city or the State of New Jersey based on the legislation that we have, the initial legislation that was introduced? 

Ms. GRIFFIN. The initial legislation proposed a nine-member commission. I think the new legislation does not include that provision. 

Mr. VENTO. I know that, but if we had taken the first measure, 

what would be the effect on the relationship between the city and 

the Park Service as it exists now? I mean my point is, wouldn't this 

radically change? In other words, wouldn't there be an entire sea 

change here in terms of whom you would be dealing with based on 

this legislation? 

Ms. GRIFFIN. Yes, sir. There would be quite an array of different 

partners involved, whereas now we are dealing with the two parties to the agreement right now, the National Park Service and the 

city only. 

Mr. VENTO. And this would be a wholly new entity. 

Ms. GRIFFIN. It would introduce a whole new entity into the situation. 

Mr. VENTO. The Justice Department has initiated a whole series 

of questions about the whole commission structure and issue even 

in some that we had set up in the past where we have given the 

Secretary clear authority. I am now told that, for instance, there 

are questions with the date in the Aviation Historic District. Are 

you aware of that? 

Ms. GRIFFIN. I am aware that they have concerns and that they 

are reviewing it. I anxiously await their advice. 

Mr. VENTO. Would the Park Service view be that there ought to 

be some clear necessity and need to have such a commission with 

actual power and authority? 

Ms. GRIFFIN. Yes, sir. I think that that is what is behind the heritage legislation proposal to the National Park Service. 

Mr. VENTO. It is behind what? 

Ms. GRIFFIN. The national heritage legislation proposal. It would 

put a process in place that would carefully guide these and determine what the levels of involvement should be in the partnership 

mix. 

Mr. VENTO. Well, I agree, but I would think that the focus could 

or would be on a partnership agreement in a compact with the 

local government or the State. Wouldn't this be a much more clear 

or coherent way to establish such relationships? 

If they want to establish advisory groups or delegate responsibility, I think it might be appropriate on the local or State level, but 

I don't know why we should be involved in terms of setting up another local unit of government from the national level with the 

Park Service in charge or the Department of the Interior in charge 

of appointing the officials. 
89 

Ms. GRIFFiN. Yes, sir, I hear your concerns. I don't know what 

is exactly in the proposal for the heritage legislation. I am fairly 

new to the process in being at the regional level. But I do understand that there is a provision for different levels of involvement. 

In other words, it wouldn't necessarily involve a Federal official on 

the commission depending on the plan, the scope, the complexity, 

and significance of the site that is being considered. · Mr. VENTO. You mean a national official? 

Ms. GRIFFIN. Right. 

Mr. VENTO. I think these should be Federal heritage areas. 

Ms. GRIFFIN. There is an overall Federal commission overseeing 

the program. 

Mr. VENTO. A national commission? 

Ms. GRIFFIN. A national one, yes, sir. 

Mr. VENTO. What commission is that? 

Ms. GRIFFIN. That would be in the new proposal, as I understand 

it. 

Mr. VENTO. Oh, this is the proposal that is being refined by the 

Park Service. 

Ms. GRIFFIN. Yes, sir. 

Mr. VENTO. We get a little confused because we have these two 

bills before us and then the other ideas. 

Well, I think the Park Service, insofar as that, ought so get advice wherever they need it. Ms. GRIFFIN. I agree. 

Mr. VENTO. But whether or not we should further subdivide the 

authorities of the Department of the Interior and the Park Service 

in terms of setting up other groups-is the Park Service unable to 

exercise this particular authority for some reason that they need to 

establish other governance structures within the Department of the 

Interior to do so? Do we have such for National Park work? I am 

not aware of it. I think the commissions are almost individual to the legislation 

but not to the generic law, are they? 

Ms. GRIFFIN. As far as I know, they are specific legislations. Mr. VENTO. To the actual unit. 

Ms. GRIFFIN. To the actual unit. 

Mr. VENTO. As opposed to some sort of--

Ms. GRIFFIN. That is correct. Mr. VENTO. I mean the subdivision or the further delineation of 

the agency-restructuring it-is this part of reinventing government? I wasn't aware of that. 

Ms. GRIFFIN. Congressman Vento, I am not sure that I can respond with any intelligence to what you are saying. 

I think that the basis for the legislation, as I understand it, is 

to give a cohesiveness to an area that is better off managed locally 

without necessarily a heavy Federal investment or Federal presence, and it gives continuity, recognition, and adds to the quality 

of life in the area. This is a mechanism to provide for that. Mr. VENTO. Yes. 

Well, there are just a lot of questions here that I think need to 

be resolved. I think sometimes people get carried away with these 

different ideas about how they want to restructure things, but I 

think you are almost always better off to rely on the State or the 
90 

local government that has all the fiduciary and other legal and 

other responsibilities. 

If they want to create groups that can help them, so be it, but 

I think our relationship ought to be the Department of the Interior 

Park Servic~ .to the State or local government, then we can set up whatev~r advisory groups we need to advise you, if you want national consistency, you had better keep the Park Service and Department clearly in charge, and then at the local level, and then 

you have got a true Federal relationship of a Federal heritage area 

or corridor. 

Ms. GRIFFIN. Yes, sir. I hear your concerns, and I would be 

happy to discuss them with the National Park Service, and I know 

the National Park Service would be delighted to work with you on 

this. 

Mr. VENTO. I would just suggest that we have obviously written 

on an ad hoc basis a number of heritage areas, but they are not 

inconsistent with what I am suggesting other than the fact we have 

on occasion set up advjsory groups or commissions, but in the end 

they end up being subordinate to a general management plan approved by the Department of the Interior. 

So we may be guilty of bad nomenclature in terms of referring 

to them, but we will remedy that. I think these things ought to be 

remedied in whatever generic and/or whatever legislation we pass 

out prior to passing ·out generic legislation. 

There are some proposals that are being placed under the concept of heritage corridors which were never established as such. 

They were more or less established as studies with the commission, 

but now they are taking on apparently the cloak of being a heritage 

corridor. As far as I know, there are only three or four of these that 

we have done. 

I notice that Representative Mollohan is here, and I know he has 

a busy schedule. We need him back in the Appropriations Committee to deal with the recision and reinventing government issue. 

So, Alan, if you would take a chair and present your testimony. 

We have heard from the Park Service witness. Regional Director 

Griffin, I don't know if you have met our colleague. In any case, 

he is someone that you will be working closely with in your capacity as regional director on this Wheeling, West Virginia, proposal. 

But Alan, let me invite you to make your presentation, and then 

we can respond to maybe a few questions or just permit you to 

leave and get back to work. 

Please proceed. 

STATEMENT OF HON. ALAN B. MOLLOHAN, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF WEST VIRGINIA 

Mr. MOLLOHAN. Thank you, Chairman Vento. I am especially 

pleased to appear before you and my colleague and close friend, 

Congressman Rahall, who has served with great distinction on this 

subcommittee for a long time. 

This is very familiar, being back here; it is familiar territory. I 

started my career in the United States Congress serving on the Interior Committee. It is a pleasure to be back, and thank you for 

your welcome. 
91 

I am particularly pleased to be here today to testify on behalf of 

legislation that l have introduced, H.R. 2843, companion legislation 

to S. 1341 introduced by Senator Byrd on the Senate side, to establish the Wheeling National Heritage Area in the State of West Virginia. 

I would like to thank you, Chairman Vento, for the opportunity 

to discuss H.R. 2843 in this hearing before the Subcommittee on 

National Parks, Forests and Public Lands. 

I would also like to offer my personal welcome, Mr. Chairman, 

to the witnesses who have traveled from the First District of West 

Virginia to participate in today's hearing. I am glad to see Patrick 

Cassidy and Roland Hobbs, cochairmen of the Wheeling National 

Heritage Area Task Force; Paul Mcintire, director of the Department of Development for the city of Wheeling; Rebecca Payne, director of West Virginia Independence Hall for the West Virginia Division of Cultural History; and Emory Kemp, director of the Institute for the History of Technology and Industrial Archeology located at West Virginia University. I look forward to hearing from 

each of these witnesses as well as the other witnesses joining us 

today. 

Senator Byrd, Mr. Chairman, has been working with local leaders in Wheeling and the National Park Service in addition to the 

State of West Virginia since 1989 in a cooperative planning effort 

to conserve Wheeling's unique historic, cultural, and scenic resources. 

Wheeling originated as an early Ohio River crossing, and it grew 

to national importance in the nineteenth century as the western 

terminus of the National Road. When the Wheeling Suspension 

Bridge was completed in 1849, Wheeling became the gateway to 

the West. As such, the city became a center of trade and industry. 

The city played a significant role in the Civil War's pro-Union 

movement and in the creation of our Nation's 35th State, West Virginia. When West Virginia seceded from Virginia in 1863, Wheeling 

became the first State capital. . As the Nation's transportation infrastructure came to be dominated more by canals and railroads, the country became less reliant on the National Road. Wheeling's predominance in the region 

continued nevertheless, a function of its growing significance in 

America's basic industries, coal mining, iron and steel making, 

glass manufacturing, chemical production, just to name a few. 

Of course, with such a significant industrial base, Wheeling was 

ripe to play a formidable role in the development of organized labor 

in the late nineteenth and early twentieth centuries, a movement 

of global significance for workers' rights. 

I offer this brief history, Mr. Chairman, of the city of Wheeling 

so that you may appreciate why bringing this multifaceted past to 

life in historic interpretation is a most worthy endeavor for the National Park Service. The local community, the State, and the National Park Service together produced a draft concept plan in 1991 

for the development of the Wheeling Heritage Area. Mter the extensive public comment process, the plan was approved by the Park 

Service's Washington office. This plan addresses the interpretative themes of the endeavor 

and details a strategy for project management and financing. It has 
92 

been carefully worked through, Mr. Chairman. This plan forms the 

basis for the legislation that we are holding hearings on today. The financing package for Wheeling heritage deserves special 

mention, Mr. Chairman, because I know that you are particularly 

interested in the financing of such a proposal. Wheeling's proposal 

should be very attractive for the Federal Government because the 

citizens of Wheeling are committed to making this heritage area financially self-sustaining. The Federal Government is only asked to 

provide short-term funding to aid in the influx of capital to assist 

in the development of the interpretative venues for the project. Wheeling Heritage will become self-sustaining because the legislation requires that operational responsibility for the project be assumed locally. · Of course, oversight of the area will be shared by all parties so 

that the integrity of this national designation is maintained. These 

innovative provisions make the Wheeling project quite different 

from the traditional National Park model. 

The current Federal budget situation makes it very difficult to 

start new discretionary initiatives in the National Park Service, to 

be sure. However, our valuable historic resources cannot be allowed 

to expire. The Wheeling National Heritage Area model will allow 

the Federal Government to provide leadership in the heritage area 

arena now without having to assume significant Federal outlays in 

the future. As a member of the Appropriations Committee, I am particularly 

sensitive to the significance of this approach. As you are aware, 

Mr. Chairman, the National Park Service is currently working on 

a proposal to proceed with the heritage area concept nationwide. I 

believe the Wheeling National Heritage Area can serve as a prototype in creating self-sustaining National Heritage Areas. All the 

preparation for the Wheeling National Heritage Area is complete. Once Congress has formally designated the Wheeling National Heritage Area, we can proceed with the implementation of this important project because of the fine high-quality groundwork that has 

been laid. Mr. Chairman, I thank you again for the opportunity to appear 

before you. [Prepared statement of Mr. Mollohan follows:] 
93 

REMARXS BY CONGRESSMAN ALAN B. MOLLORAN 

BEFORE THE HOUSE COMMITTEE ON NATURAL RESOURCES 

SUBCOMMITTEE ON NATIONAL PARKS, FORESTS, AND PUBLIC LANDS 

ON 

ON H.R. 2843, A BILL TO ESTABLISH THE WHEELING NATIONAL HERITAGE AREA 

NOVEMBER 16, 1993 

Good Morning, Mr. Chairman. I am very pleased to be here 

today to testify on behalf of legislation that I have introduced, 

H.R. 2843, to establish the Wheeling National Heritage Area in 

the State of West Virginia. I would like to thank Chairman Vento 

for the opportunity to discuss H.R. 2843 in this hearing before 

the Subcommittee on National Parks, Forests, and Public Lands. 

I would also like to offer my personal welcome to the 

witnesses who have travelled from the First District of West 

Virginia to participate in today ' s hearing. I am glad to see 

Patrick Cassidy and Roland Hobbes, Co-Chairmen of the Wheeling 

National Heritage Area Task Force; Paul Mcintire, Director of 

the Department of Development for the City of Wheeling; Rebecca 

Payne, Director of West Virginia Independence Hall for the West 

Virginia Division of Culture and History; and Emory Kemp, 

Director of the Institute for the History of Technology and 

78-797 0 - 94 - 4 
94 

Industrial Archaeology . I look forward to hearing from each of 

you, as well as the other witnesses joining us here today. 

H.R. 2843 is a companion bill to S. 1341, introduced by 

Senator Robert c. Byrd. Senator Byrd has been working with local 

leaders in Wheeling, the State of West Virginia, and the National 

Park Service since 1989 in a cooperative planning effort t o 

conserve Wheeling's unique historic, cultural and scenic 

resources . 

Wheeling originated as an early Ohio River crossing and it 

grew to national importance in the 19th century as the western 

terminus of the National Road . When the Wheeling Suspension 

Bridge was completed in 1849, Wheeling became the "gateway to the 

west" . As such, the City became a center of trade and industry. 

The City played a significant role in the civil war's proUnion movement and in the creation of our Nation's 35th State, 

West Virginia. When West Virginia seceded from Virginia in 1863, 

Wheeling became the first State Capital. 

As the Nation's transportation infrastructure came to be 

dominated more by canals and railroads, the country became less 

reliant on the National Road. Wheeling's predominance in the 

region continued nevertheless, a function of its growing 

significance in America's basic industries coal mining, iron 

and steel making, glass manufacturing, and chemical production, 
95 

to name a few. 

Of course, with such a significant industrial base, Wheeling 

was ripe to play a formidable role in the development of 

organized labor in the late nineteenth and early twentieth 

centuries -- a movement of global significance for workers' 

rights. 

I offer this brief history of the City of Wheeling so that 

you may appreciate why bringing this multifaceted past to life in 

historic interpretation is a most worthy endeavor for the 

National Park Service. 

The local community, the State, and the National Park 

Service together produced a draft concept plan in 1991 for the 

development of the Wheeling Heritage Area. After an extensive 

public comment process, the plan was approved by the Park 

Service's Washington, DC office. This plan addresses the 

interpretive themes of the endeavor, and details a strategy for 

project management and financing. It also forms the basis for 

the legislation that I bring to you here today. 

The financing package for Wheeling Heritage deserves special 

mention. Wheeling's proposal should be very attractive for the 

Federal government, because the citizens of Wheeling are 

committed to making this heritage area financially self -

sustaining. The Federal government is only asked to provide 
96 

short - term funding to aid in the influx of capital to assist in 

the development of the interpretive venues for the project. 

Wheeling Heritage will become self-sustaining, because the 

legislation requires that operational responsibility for the 

project be assumed locally. Of course, oversight of the area 

will be shared by all parties, so that the integrity of this 

national designation is maintained . These innovative provisions 

make the Wheeling project quite different from the traditional 

National park model. 

The current federal budget situation makes it very difficult 

to start new discretionary initiatives in the National Park 

Service. However, our valuable historic resources cannot be 

allowed to expire. The Wheeling National Heritage Area model 

would allow the federal government to provide leadership in the 

heritage area arena ~ without having to assume significant 

federal outlays in the future. As a Member of the Appropriations 

Committee, I am particularly sensitive to the significance of 

this approach. 

As you are aware, the National Park Service is currently 

working on a proposal to proceed with the heritage area concept 

nationwide. I believe that the Wheeling National Heritage Area 

can serve as a prototype in creating self - sustaining National 

Heritage Areas. All of the preparation for the Wheeling National 

Heritage Area is complete . Once Congress has formally designated 
97 

the Wheeling National Heritage Area, we can proceed with the 

implementation of this important project. 

Mr. Chairman, I thank you again for the opportunity to 

appear here today. I hope that your committee will be able to 

report H.R. 2843 to the Full House very soon. 
98 

Mr. VENTO. Thank you very much, Alan, for your testimony and 

your interest in this and your willingness to be a guinea pig. I don't 

know that we will take you up on that. I do think that, whatever 

we do, we want to have in this bill consistent with at least some 

sort of a broad agreement in terms of issues. 

I notice that Representative Klein made the point as well as Senator Lautenberg and yourself about the historic nature of not just 

Wheeling but the Great Falls area in Paterson. In my way of thinking, we have numerous areas across the country that could qualify, 

from a cultural, a recreational, or a natural resource view. When 

you talk about the second greatest height in terms of waterfall east 

of the Mississippi in Paterson-! see you do have some natural 

qualities here that could, in fact, take on this particular type of a 

responsibility or try to achieve a certain designation. 

Alan, this also represents a pretty significant commitment on the 

part of the State and/or the local government in this area, doesn't 

it? 

Mr. MOLLOHAN. Yes, it does. There is a commitment in this instance, speaking for the Wheeling heritage project, the local citizenry and the State. They are most willing to pick the project up. 

Mr. VENTO. So they obviously have some landmarks. Do they 

have an historic district designation right now in West Virginia in 

Wheeling? 

Mr. MOLLOHAN. Yes, indeed, and a number of historic designations associated with this. 

I think what will impress you and the committee as they look 

into this is the preparatory work that has preceded the introduction of this legislation. It is impressive, and I know that you and 

your committee rightly want to look at these kind of proposals in 

terms of some standard, some sort of objective criteria by which to 

judge their merit. 

I think because of the preparatory work that has been laid, the 

Wheeling group and the Park Service working together in wonder- ful cooperation, that this is an excellent opportunity to see what 

would be appropriate objective criteria. I propose the Wheeling 

Heritage Area project as a prototype for that reason. 

Mr. VENTO. I think that there has been a lot of work done here, 

and I think it is just a question now of trying to develop the type 

of compact or agreement between the local and State governments 

and the Department of the Interior, Park Service, and then defining a role. 

I note in your comments that you believe that after a certain 

point, it would become self-sustaining, that there would not be a 

necessity for operation and maintenance dollars from the national 

government after an initial period. Is that correct? . Mr. MOLLOHAN. I think we are particularly sensitive to that for 

a couple of reasons: First of all, because we recognize the kind of 

budgetary environment that we are all operating in; and, second, 

I am particularly impressed by your concerns in that area. Of 

course the Park Service has legitimate concerns about how it can 

spare resources beyond its current commitments. 

Obviously, the heritage area concept is an example of thinking 

in different terms. One of the things that has to be considered as 

we think about how we preserve, nurture, present, and interpret 
99 

areas is the cost that would be associated with an area's designation if the Park Service were to pick up that responsibility. I think 

we agree that that would make this a very difficult thing for you. 

Mr. VENTO. Obviously, Congress has from time to time designated areas, and I think the end result is that it becomes a hollow designation, that it doesn't fulfill the expectations of those that 

perhaps have moved in that direction. In the end I think it ends 

up representing really an enigma, a real problem to the Park Service in terms of not having a governance structure or expectations 

or responsibilities and articulation of what the Park Service is to 

do or the Department of the Interior and the local or State government. 

If you are going to have a partnership, you both have to come 

to the table. In these areas where there are all sorts of the regular 

problems with any type of community or area, you aren't going to 

have the control that you have over the boundaries of a Yosemite 

or an Independence National Historic Park in Philadelphia. So we 

have got to define that and point the way. For instance, we are talking about matching funds which is very 

helpful. Part of this grows out of the lack of availability of funds 

in the Historic Preservation Fund in recent years, and so the consequence is that the States and others are saying, "Well, we have 

got special areas that we are willing to take on this responsibility 

and do something beyond the norm in terms of preserving this historic district," or these landmarks. Clearly trying to tie them together and bring them together and present them in a format holistically with the community which is making this considerable effort is a goal that is worth attempting to define. 

Mr. MOLLOHAN. Mr. Chairman, may I just make an observation? 

You used the word "expectation," which I think is insightful. There 

is this wellspring of nostalgia partially because of true intellectual 

and academic understanding of the value of these areas, what they 

have meant to our history, what they have meant to the culture of 

our people, and what they mean in dealing with industries that are 

in a decline. It is very important to deal with them in a way that 

will make them meaningful to the current generation and, in an 

historic sense, lay an interpretive groundwork, to carry on that 

meaningfulness in a broad societal sense into the future. There is 

a very strong groundswell of desire to have these areas managed 

in a way to make them meaningful for future generations. 

Now there are all kinds of different expectations associated with 

that need to have these areas interpreted. I think controlling these 

expectations, through the authorization process is an appropriate 

way to approach that need and to satisfy that need. It is thinking 

in new terms, but I believe the country and this committee need 

to do that. 

Mr. VENTO. It causes, I think, the Park Service and the precepts 

in terms of a consistent national recognition of significant feasibility and the other factors that go into designation of traditional 

Park Service units, some deterioration when issues are brought up 

or if they appear to be designated it as a unit of the National Park 

and then are managed at a much lower common denominator. 

Mr. MOLLOHAN. I didn't understand that, Mr. Chairman. 
100 

Mr. VENTO. Well, I think that there is a deterioration of the designation of national consistency with designation of Park Service 

units when something is managed at a lower common denominator. 

It has a tendency to slip itself into what areas would not be and 

should not be managed in that way. So I think we need to define 

this ~ccurately. 

Mr. MOLLOHAN. We are agreeing on that. 

Mr. VENTO. Yes, we are. I think we are. In any case, let me yield 

to my colleague from West Virginia, Mr. Rahall, if he has any questions of you or comments. 

Mr. RAHALL. Thank you, Mr. Chairman. I have no questions of 

my distinguished colleague. This has been an excellent discussion, 

and I think we are in agreement on what has been said. 

Alan, you have given an excellent, although brief, history of the 

Wheeling area, and I know you have assembled an excellent panel 

that will supplement your testimony in those individuals that you 

have already introduced. 

I want to pay special recognition to the gentleman sitting almost 

directly behind you, Dr. Emory Kemp, who will be tE~s~ifying later 

and whom you have already introduced. He is probably one of our 

most respected scholars in the State of West Virginia on matters 

relating to the ·preservation of our cultural heritage. I am very 

much aware of the excellent study he has done on Blair Mountain 

down in the southern coalfields which I have the honor of representing, and I just want· to say he has also made a number of 

contributions to our Coal Heritage Initiative down south, and I 

want to particularly welcome Dr. Kemp to our committee today as 

well. Thank you for your excellent testimony. 

Mr. MOLLOHAN. Thank you. 

Mr. VENTO. Did you have any questions? 

Mr. RAHALL. No, no questions. 

Mr. VENTO. Well, thanks, Alan, very much, and if your time permits, I would welcome you to join us at the dais. 

Mr. MOLLOHAN. Thank you. 

Mr. VENTO. You can join us, and we will be in communication 

with you about these issues. 

I wanted to return now to the questions of Ms. Griffin, the regional director, and see if my colleagues had any questions of her 

at this point. 

Mr. MOLLOHAN. May I express appreciation to Ms. Griffin for allowing me to interrupt this testimony. When I sat down at the 

table, I didn't actually understand I was interrupting testimony. 

Mr. VENTO. Well, we were just asking 8ome ·questions. She had 

concluded her te.$timony. 

Mr. MOLLOHAN. Okay. 

Mr. VENTO. We appreciate her patience with our erratic schedule. . Mr. MOLLOHAN. I du:t~'t recognize that, and let me say now that 

I very much appreciate your allowing me to interrupt. 

Mr. VENTO. I had asked her indulgence prior to your appearance. We understood the schedules and problems. 

Mr. MOLLOHAN. Thank you, Mr. Chairman. I will join the committee later if I have time. Thank you. 
101 

Mr. VENTO. Yes, you are certainly welcome to do so. Thanks. 

Alan. 

Congressman Rahall, did you have any questions of Ms. Griffin? 

Mr. RAHALL. No questions, Mr. Chairman. 

Mr. VENTO. Congressman Klein, without objection, you may 

question the witness. 

Mr. KLEIN. Thank you, Mr. Chairman. 

First of all, I just want to commend the gentleman from West 

Virginia for his fine presentation. Like West Virginia, New Jersey 

would like to participate in the prototype so that both projects can 

go forward. 

I did want to just clarify for the record two things with Ms. Griffin. 

Ms. Griffin, in the meetings that you and I have had, you have 

voiced objection to the commission concept, as the chairman did, 

and as a result of your suggestion, I think you did suggest that we 

remove that from the legislation. Am I correct? 

Ms. GRIFFIN. That is correct. 

Mr. KLEIN. Okay. 

Of course, as you know, the new bill, at your suggestion, does 

eliminate that. Just so that the record is clear, it is my understanding that the Park Service has not had an opportunity as of yet to 

complete its analysis of the new bill, and none of the testimony 

that you have given today is directed toward the new bill. Am I 

correct? 

Ms. GRIFFIN. That is correct. 

Mr. KLEIN. Thank you very much. 

Mr. VENTO. The magni~ude of these projects is really very significant. 

I note in the document accompanying this, · the approved plan 

that my colleague from West Virginia was commenting on, that the 

funding to complete this project in Wheeling, West Virginia, is $57 

million. That is the total from all sources, and nearly $28 million 

from the Park Service. I think your testimony suggested it was a 

different number. Am I misunderstanding something? 

Ms. GRIFFIN. The $28 million one is consistent--

Mr. VENTO. That is the Park Service responsibility. 

Ms. GRIFFIN. Yes. I had $45 million for the total. 

Mr. VENTO. Yes, the total actually says it is $57 million here, unless it is a different plan, that it is going to be modified in some 

way that I am not aware of. 

The other point is, I think the magnitude of this has to be looked 

upon as the basis. What is the budget for the entire mid-Atlantic 

region in terms of projects this past year? 

Ms. GRIFFIN. Are you asking about the Federal involvement? The 

National Park Service share? 

Mr. VENTO. Well, I am asking about your whole mid-Atlantic region. Are you aware for the Parks what the budget is? What is 

your budget for the Parks for the mid~Atlantic region? 

Ms. GRIFFIN. The budget for the operating dollars-! guess the 

point to be made here is that this would be capital investment. 

This would not be a continuing presence of operations. 

Mr. VENTO. I know, but what is your capital budget for the entire 

mid-Atlantic region? 
102 

Ms. GRIFFIN. I don't know what the capital budget was. It varies 

from year to year. 

Mr. VENTO. Yes, I know it does and it can. Last year it was $55 

million. That would be almost half of it just for a single year. Considering the numoer of units you have, it obvious is a big-I am 

just trying to point out the magnitude of a single area, and of 

course you have some other single areas in the mid-Atlantic region 

that have been also championed and have had a significant impact 

on availability for funds generally. . So if we go through this, I think we have to understand it would 

obviously be capital. It would be a one-time expenditure. Do you agree, Director Griffin, that the operation and maintenance ought not to fall back to the Park Service in most of these 

areas, heritage areas, or heritage corridors? 

Ms. GRIFFIN. That is correct. We would look at this kind of concept as the National Park Service providing, for the most part, 

technical assistance. The money would be a one-time expenditure 

but not necessarily a one-year expenditure. 

Mr. VENTO. Yes, and I think that is important, and that is your 

point, that it wouldn't come all out of the---

Ms. GRIFFIN. We would bring it to a certain point then, and the 

concept of the partnership then would take it on as an 

operational--

Mr. VENTO. Yes. What I have seen here is that they are talking 

about Phase 1 and Phase 2 and Phase 3 in terms of the Wheeling 

proposal. It is a 10-year commitment, so it would be something like 

$2.8 million a year in terms of Wheeling. These particular proposals, especially the Wheeling proposal and 

many other heritage have in them the economic development as 

one of the goals of these projects. Do you have any views on that? 

Do you think that ought to be articulated in the legislation, and 

what role does the Park Service play or should they play? 

Ms. GRIFFIN. My view is that the objectives of this kind of project 

would be conservation, education, environmental enrichment. The 

spinoff or the by-product of the quality of life that has been enhanced as a result of that would certainly be an economic benefit 

to the area, but that would be secondary to the primary objectives. 

Mr. VENTO. Do you believe that the heritage areas ought to have 

access to the Historic Preservation Fund as units of the National 

Park Service would have access to or to the Land and Water Conservation Fund funding from the Park Service? 

Ms. GRIFFIN. It is my understanding that this is thought to be 

a separate appropriation, but I am not sure about that. 

Mr. VENTO. Yes, but what would be your recommendation? I 

mean should I put in the legislation that they can't have access to 

it, or they should have access to it, or should it come out of the Historic Preservation Fund authorization? Should these funds come 

wholly out of it, as we are proposing for the black universities and 

colleges? Do you have any view with regard to that? 

Ms. GRIFFIN. I haven't thought that one through, Mr. Vento. I 

would have to get back to you on that. 

Mr. VENTO. You see, there are many questions. When we are expending money in such areas, should they only be expended on authorized units of the Park Service or landmarks or other structures 
103 

that have actually been recognized under the Historic Preservation 

Act? In other words, what type of criteria do we use in expending 

dollars in such areas? Do you have any views with regard to what 

criteria we should utilize in expending dollars in these areas? 

Ms. GRIFFIN. I think that the National Park Service would-the 

planning that is involved in the ones that you alluded to earlier 

and the ones that are before us today should yield very good guidance as to the level of significance of the structures that would receive Federal money. But it is important to realize that then the 

National Park Service would have to put in priority any of the heritage concepts that would be so designated so that the more nationally significant properties would receive the proper level of funding. 

Mr. VENTO. Do you believe with a not-for-profit corporate structure as is developed in the Wheeling, West Virginia, proposal before us, that that assures adequate control by local government and 

State officials with such a stl"\!cture, with appointed people by the 

Department of the Interior to such slots? , Ms. GRIFFIN. I think that we would certainly have further agreements that would protect the investment. 

Mr. VENTO. My point is, in a partnership, how can we be certain 

that a commission or a not-for-profit corporation would actually 

represent the constituency in the Wheeling, West Virginia, area if 

they are appointed by the Department of the Interior Secretary? 

Ms. GRIFFIN. I think I could speak for the Park Service in saying 

I share your concern, and we would want to ensure that the undertaking would have the protection in it that you speak about. 

Mr. VENTO. Do you believe it is desirable to put in place another 

level of protection at some juncture in the system other than, for 

instance, a local government putting in place a State historic preservation office approval or some other structure to try and screen 

or to qualify actions by the government within such an historic 

area or heritage area or corridor? 

Ms. GRIFFIN. I think in a unique proposal such as this, we ought 

to look at the mechanisms in place, and if we feel unsure that they 

would provide add adequate protection, then I think the Park Service would want to add protection to it. 

Mr. VENTO. You agree and worked with Congressman Klein in 

terms of setting up the cooperative agreements compact, and those 

agreements would satisfy that particular concern for at lease the 

Park Service commitments in dollars. Is that right? 

Ms. GRIFFIN. That is correct, and that is mainly because we used 

the rules that we already had in place for the other programs, and 

that was agreed to by the city. It was a very good agreement. 

Mr. VENTO. But that really is the key, whether the city or the 

State-! mean who else could sign such agreement? 

The other question is not to specify in a compact or such cooperative agreement, and then for the city and for the National Park 

Service to, in essence, delegate to some other intermediary group 

the right to make such decisions. Ms. GRIFFIN. I would certainly make every effort to have such an 

agreement that would protect that. 

Mr. VENTO. Well, it just raises too many questions. Now I know that in Blackstone Corridor where we had done such 

designation that, before dollars are expended on any particular 
104 

grant, that the Secretary of the Interior must approve that and 

that they have an overall plan. So that, in essence, does on a 

project-by-project basis give the Secretary of the Interior the opportunity to judge the validity and to put in place such reverters and 

other limitations as to assure the soundness and the future of such 

investments. Is that correct? 

Ms. GRIFFIN. I don't know whether it is correct or not. I think 

it is the way it should be. 

Mr. VENTO. Yes. Well, that is what we strove to do. I don't know 

in each instance whether or not that has occurred. But we have 

had a number of models out there. Can you, at this point, point to 

any particular model that works better than another model in 

terms of the Park Service experience with such partnerships? If 

you had to select a model or an example of what we would be enacting, could you point to models today? 

Ms. GRIFFIN. I am just beginning to look into the different structures and the way the ones operate ·m my region. I have not looked 

into it enough to comment. 

Mr. VENTO. I think we have a whole host of things, some of 

which have been invented out of thin air, and others-for instance, 

you have the Michigan-Illinois, not to pick on that model, but I 

wonder how it works. I didn't work on that. It was the handiwork 

of the Appropriations Committee, and I would be interested to see 

what the level is. 

So we don't really have to make these decisions based on my best 

guess or yours. I mean we can look at what actually exists, and I 

was just wondering if we had some blueprint here for what actually 

would predictably work. I think it is important that we d() that. 

I appreciate the fact that we have gone beyond the scope. I am 

certain most of the panelists waiting to testify are wondering what 

the hell I am talking about. But the truth is, there isn't any debate 

here about the historic or cultural resources that are here. These 

are admittedly important cultural and historic resources. Wouldn't 

you agree, Regional Director? 

Ms. GRIFFIN. I would agree that they are very important, and the 

hallmark of this is the local people being interested in doing this 

SJ.nd being interested in being partners. 

Mr. VENTO. Well, there is a lot of willingness, but things don't 

always turn out well in these marriages if you don't define what 

the expectations are. 

The concern here is, how are we going to accomplish it? What 

types of commit~ents are being made? The Park Service isn't going 

to take over the town of Wheeling, West Virginia, nor Paterson, 

New Jersey, unless you want them to. They run larger things. 

Mr. Klein has been moved to make some statements. 

Mr. KLEIN. I simply was going to state, first of all, the obvious; 

we don't expect the Park Service to take over Paterson, New Jersey. I have been listening very, very intently to the chairman's 

comments, and ·I do want to say that we have endeavored diligently 

to try to pursue a model that would satisfy both the Park Service 

and the committee, and certainly any suggestions that can improve 

the governance model would be welcome by us. 

Mr. VENTO. Well, I think you are on track. I think there is a 

broader issue, as I implied to you when we spoke of this, and I 
105 

think you are on track, but good intentions are always better to engage prior to the initiation of the activity, not after the fact, because sometimes the assumptions don't manifest themselves in the 

reality of what takes place. 

I no longer am going to take a leap in faith with regard to some 

of these matters, and I would hope the discussion here would help 

both to work with the Park Service and with the sponsors of these 

initiatives to try to better define and focus on a policy path concerning the heritage areas and corridors. 

I think we can do something, but we have got a real dilemma because there are a lot of these waiting in the wings, and I think we 

want to define what the requirements or expectations are in such 

a way that will benefit the Park Service and its role. There is a 

great enthusiasm to be designated. Ms. GRIFFIN. Yes. 

Mr. VENTO. But after that, it ought to do something. If we are 

going to designate, it ought to carry with it some consequence, 

some reality in what happens on the ground rather than just be 

a little extra feather in someone's hat with regard to the 1

area. That 

is the expectation of the sponsors today, and that is what everyone 

ought to understand, that there ought to be some commitment responsibilities that follow that can reasonably be carried out and be 

expected to be funded. You have been very patient, Regional Director, and we will move 

along and give you an opportunity to discuss this at numerous instances in the future. We appreciate your willingness. It just so 

happens, your region has good examples of such creative thinking. Ms. GRIFFIN. Yes, it does. 

Mr. VENTO. In fact, you have Delaware LeHigh. 

Ms. GRIFFIN. Lackawanna. 

Mr. VENTO. And the Blackstone. I don't know if that is in your 

area. 

Ms. GRIFFIN. No. Mr. VENTO. But the other canals, and there is something in 

southwest Pennsylvania. ,We don't know quite what it is yet. I 

thought the word "amorphous" would quite well fit that particular 

creature. 

So we will be looking further at that and maybe others that 

should be considered partnerships. Thank you very much for your patience, and now we will get 

back to hear about all of the cultural and historic splendor of these 

sites which often occupies a goodly amount of our consideration of 

these matters. But if we want to accomplish the goals, we have to 

have the structure in place and the money to do it. Thank you very 

much. 

Ms. GRIFFIN. Thank you. We look forward to working with you 

on it. 

Mr. VENTO. I am pleased to welcome a panel of witnesses from 

the community of Paterson, New Jersey, the Honorable William 

Pascrell, Junior, the mayor, who was introduced and recognized 

upon his entrance by the Senator; the Honorable Pat Kramer, 

former mayor of Paterson; and Frank Blesso, the director of community development, Paterson, New Jersey. 
106 

Mr. Kramer isn't here. We will have to do with the two witnesses, who I am sure will be able to carry this heavy responsibility. 

Mayor, do you want to yield to your director of community development? Is that what you are indicating? 

Mr. PASCRELL. Yes, if we may, Mr. Chairman. 

Mr. VENTO. Director Blesso. Did the gentleman have my comments to welcome his colleagues 

here, or do you want them just to go ahead with their testimony? 

Mr. KLEIN. I will very, very briefly welcome both Mayor Pascrell 

and Mr. Blesso. Mayor Pascrell and Mr. Blesso together have led 

the work in connection with the preservation of the Great Falls 

Historic District. Mr. Blesso, of course, has been more responsible 

than any other person in terms of the hands-on work that has been 

done in that area, working with the National Park Service, and 

Mayor Pascrell has for many years, even before he became mayor, 

been the inspirational leader for the preservation of the Great Falls 

Historic ~~.strict, and it is a pleasure to welcome both of these gentlemen to the committee. 

I might say that former Mayor Pat Kramer, I understand, has 

had some personal problem that prevented him from being here 

today, but nonetheless I know he is totally committed to the 

project. 

Thank you very much, Mr. Chairman. 

Mr. VENTO. Thank you. 

Mr. Blesso, please proceed with your statement. It has been 

made part of the record, so feel free to summarize it. 

PANEL CONSISTING OF FRANCIS J. BLESSO, DIRECTOR OF 

COMMUNITY DEVELOPMENT, PATERSON, NJ; HON. WILLIAM 

PASCRELL,JR., MAYOR, PATERSON, NJ;AND D~ RUSSELL 

FRIES 

STATEMENT OF FRANCIS J. BLESSO 

Mr. BLESSO. Thank you, Mr. Chairman. I am happy to be here 

to talk about the Great Falls and Paterson. I have prepared some 

quite lengthy statements, but those I will try to summarize briefly. 

My involvement in Paterson came about 25 years ago when I 

came to work for the city. At that time, there was a major highway 

planned to cut right through the center of town and through the 

historic district. It had planned to demolish about 50 mill buildings. 

There was an effort through the local citizens, primarily led by 

Pat Kramer's wife, Mary Ellen, particularly with the help of some 

graduate students from Columbia University who provided the detailed documentation to prepare a nomination form for the National Register. That nomination form, once it was accepted, had 

the impact of really stopping the highway acquisition work and resulting in a revised shortened highway connecter which took about 

15 years ultimately to build. But the research and the documentation for the National Register put into effect a chain of events that turned the emphasis for 

Paterson back on its beginning, back on the Great Falls, back on 
107 

the area, back on the types of manufacturing and products that 

were developed over the 200 years of our existence. During that period, , we undertook many studies, and it seems 

that the chairman and the committee are well aware of the national significance, so I will not dwell on that matter but just talk 

about some of the studies, high quality studies, that are already in 

place. We don't think additional studies are needed, and in fact 

under the present cooperative agreement, one of the activities is to 

review the studies that are already in place. We think any additional work can be done through the present cooperative agreement. I would like to talk for a few minutes about the agreement. 

The present agreement under the New Jersey Urban History Initiative has set forth an excellent program for the city and for the 

Park Service. We have had some excellent cooperation. We have a 

program of about 16 specific activities that we are working on together. These activities were developed jointly and are responsive 

to our current needs. The original activities were to be concerned 

with the raceway and some of the physical improvements. 

We had meetings in Paterson: We stressed our current urgent 

need to care for the vacant and abandoned properties in the city 

of Paterson. Right now, this is our pressing need, and in some of 

the documentation we have one site of seven acres in which there 

were originally approximately 24 individual structures. Right now, 

there are only perhaps two or three that can be salvaged. Together 

with the Park Service and their technical assistance, we have a 

program to evaluate that and try to undertake and solicit a development proposal to salvage what can be salvaged in that sevenacre site. 

As part of my involvement, the city has built many high-quality 

public improvements in the historic district. We have been fortunate to use our own resources to get some other Federal and State 

resources and have done some excellent quality work in restoring 

sections of the raceway, restoring actual buildings, building decorative streetscape and pavements appropriate for that area. We have 

done some good work, and we have other projects planned in the 

future. 

I was very encouraged to see the West Virginia proposal and the 

use of the word "self-sustaining." That certainly is our objective, to 

be self-sustaining. I would like to point out, though, that because 

of the high percentage of public areas in our district and the 

unique nature of the raceway; for example, hand-cut stone walls 

with a clay bottom, three different tiers, spillways, flow to be maintained, and things like that, streetscape improvements involving 

bluestone, brick sidewalks and so on, things that are very difficult 

and expensive to maintain. 

In terms of the interpretative program, we share the concern of 

the Park Service and already have a very significant visitors bureau staffed really by one person, almost singlehandedly at a salary 

that is pretty much a volunteer salary and doing an excellent job. 

We have a tremendous demand for interpretative work and for 

tours that far outstrips our ability to service it at this time. 

In terms of the current legislation, we are confident that some 

of the management plan will be developed under the Urban History 

Initiative. We feel that we have an advantage in that we already 
108 

have a good relationship with the Park Service staff. We are working on activities that will help set up that district management 

plan. 

Our concern is in the ability to become self-sustaining, and perhaps Mayor Pascrell can speak to that issue. 

[Prepared statement of Mr. Blesso follows:] 
109 

TESTIMONY OF FRANCIS J. BLESSO 

ON THE GREAT FALLS HISTORIC DISTRICT 

OF PATERSON, NEW JERSEY 

Mr. Chairman, would like to thank you and the members of 

your sub- committee for the opportunity to speak about the Great 

Falls District in Paterson, New Jersey. My name is Francis J. 

Bless o , and my empl oyment with the City of Paterson started in 

1966 . I am the Redevelopment Director f o r the Ci t y. 

EARLY HISTORY 

When Alexander Hamilton first visited the Great Falls of 

the Passaic River, he not only viewed 77 feet of natural beauty, 

he recognized a tremendous ene rgy source. Hamilton envisioned 

building the new nation' s first manufacturing center as a step 

towards true independence. In 1791, he encouraged the creation 

of the Society for the Establishment.of Useful Manufactures, 

SUM, with major help from New Jersey's Governor, William 

Paterson. Hamilton conceived harnessi ng the massive power of 

the falls, using it to move the water wheels of future mills. 

Pierre L'Enfant was hired to plan and engineer the town . The 

plan required substantial modification by others, ·but evolved 

over three decades into a three-tiered mile-long network of open 

stone-walled channels called raceways. These were used to 

funnel water in and out of the mills and eventually back to the 

river. 

~aterson was incorporated on July 4, 1792, establishing 

itself as the Cradle of American Industry. The original 

·- 1 ·-
110 

cotton-based industries developed over two centuries to include 

the wh~le spectrum of manufacturing, from revolvers to 

locomotives and aircraft engines. But it was through textiles 

that the world came to know Paters o n a s the S i lk City. 

ROUTE 20 PERIPHERAL HIGHWAY 

In 1966 when Lawrence "Pat• Kramer~ Jr. took office, 

Paterson had only a handful of active silk mills. Its 

industrial base, although diversified, had declined. Downtown, 

whi c h was once a thriving regional commercial center, was also 

i n decline and suffering from the competition of highway 

s hopping centers. 

On September 20, 1968, in what was generally hail d a s a 

majo~ accomplishment, Kramer signed off on the 200 ··scale 

planning map for the new peripheral highway . Route 20 would 

intersect with Interstate 80, then under construction through 

Paterson . The alignment was to skirt the western and nothern 

side of the central business district (CBD) and parallel the 

Passaic River on its south side and connect to the existing 

McL e an B~ulevard in the City's Riverside section. The New 

Jersey Department of Transportation began aggressively carrying 

out its land- a cquis ition program while the h i ghway moved _into 

the final design stage. 

ENTER COLUMBIA UNIVERSITY STUDENTS 

Shortly afterward, a . group of architectural students from 

Co lumbia University came to Paterson t o study its industrial 
111 

architecture. The group, led by John Young, met with Mary Ellen 

Kramer, the Mayor's wife, and began to explore, photograph and 

d ocument the industrial area near the Great Falls. 

John Young's Master's thesis "A Proposal for Paterson" 

helped raise the awareness of Mary Ellen Kramer and others of 

the rich treasure present in the industrial architectural fabric 

of Paterson. Young's research provided the documentation for a 

nomination form, to place the Great Falls/ SUM area on the U. s. 

Department of Interior National Register of Historic Places; as 

an 89-acre historic district. The nomination was approved and 

entered on the Nationa1 Register on April 17, 1970. 

GREAT FALLS COMMITTEE 

Meanwhile, Mrs . Kramer had helped organize a citizens group 

which began to question whether the planned highway was good for 

Paters on. The three-tiered mile-long raceway system which once 

energized the mills would be purchased and obliterated. Many of 

the ma jor buildings which contained active and productive 

industries had already been acquired and others were shutting 

down in anticipation of purchase . The loss of ratables and jobs 

wo uld be s ignificant. John Young and his associates, became 

Urban Deadline, a group of advocate architects, who sought out 

low- or no-budget pr6jects overlooked or rejected by 

professional architects. Urban Deadline prepared a proposal to 

the Great Falls project c ommittee including sketches and 

drawings showing how, with community involvement and input, the 

- 3 -
112 

buildings could continue to function as factories, community 

centers, restaurants or industrial museums. 

The citizens group began to explore modifications to the 

highway such as reduction from a six-lane elevated expressway to 

a four - lane at-grade boulevard . Ramp simplifcations or 

eliminations were studied. Specific modification plans were 

prepared by John Young and his Urban Deadline organization, Cahn 

Engineers for the Paterson Red!!velopment Agency and the Regional 

Plan Association. Although DOT officials listened politely to 

the group, the modifications were never officially endorsed by 

the Mayor, and therefore were not taken seriously by the State. 

Everything changed, however, when the realization of the 

significance of the listing of the Great Falls Historic District 

on the National Register hit home. DOT officials, many of the 

City business leaders and a few highway right - of-way property 

owners not yet acquired were devastated. Since the peripheral 

highway was to be constructed with 50% to 80% federal funding, 

it now fell upon the Department of Transportation to evaluate 

all possible alternatives to minimize impact on the District. 

All acquisition ceased . The citizens group had never intended 

to stop the highway. They merely wanted to reduce its visual 

and economic consequences; to integrate it lnte the City rather 

than having it divide the City. 

GREAT FALJ,S PARK 

The citizens group began capitalizing on the renewed 

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113 

interest around the Great Falls. An unu~cd and ignored a r ea at 

the top o f the Falls was turned into Great Falls Park, largely 

through Mrs. Kramer's ability to solicit donations of labor and 

t~rial~;. A deck wa s pl a c e d over a bridge s upporting a wat e r 

pipe , thu~ opening access for pedestrians to Great Fal l s Park 

and providing a s pectacul a r vi e w close enough to feel the s pray 

of thP. F'r.llls. 

GREAT FALLS DEVELOPMENT CORPORATION 

Th e citizens group was incorporated into the Gr eat Falls 

Dev elopment Corporation in 1971, a nonprofit public members hip 

organ ization designed to plan and execute development of th e 

ar ea . 

GREAT FALLS FESTIVAL 

On Labor Day weekend of the same year, Mrs. Kr·ame r 

spearheaded the first Great Falls Festival, a four - day cu ltural 

and entertainment celebration of Paterson including the return 

of a daredevil aerial act over the Falls. The Festival wa s a 

tremendous succe~s and brought tens of thousands of citize ns to 

the area. 

SMITHSONIAN INSTITUTION REPORT 

After the District wa s entered on the National Register, 

Mary Ellen Kramer called upon the Nat ional Park Service and the 

Smiths o ni an Institution to evaluate what was there in terms of 

national slg nifi ca n~e. Fleld visits were made by both agencies 

in 1972. Ro b e rt Vogel, an industrial expert from the 
114 

Smithsonian Institution wrote: "No other American city has the 

pros pect for the imaginative development of a historically 

impo rtant industrial area than is now Paterson's." The field 

visits and reports provided additional national credibility to 

the a r e a and helped set the stage for the involvement of the 

National Park Se rvice . The pr o j e ct began t o receive national 

att e nti on. Publicati o ns abou t th e Di s tri c t h~ ve appeared in 

American Home , Architectural Forum, Constructlonee.r, H.li.D. 

Challenge, New York Times, Preservation News , Civil Engineering 

and Suburban Life . 

HYDROELECTRIC PLANT 

The local utility company, Public Servi c e Electric and Gas , 

PSE&G, had operated a hydroelectric plant at the Falls when it 

was closed in 1969 after some flood damage. The plant, built by 

SUM in 1914, did not fit in with their future plans which were 

geared to nuclear power. Mrs. Kramer pers uaded PSE&G to donate 

the facility to the City. In 1974, the Great Falls Development 

Corporation, prepared and submitted an application to t h e 

National Endowment of the Arts under its City Options 

c ompetition , to explore the feasibility o f reactivating the 

plant. The application was funded ; and after several years of 

effort and design, the plant is now restored and operatin~. 

Flow in the Passaic River, however , has b e en reduced due to 

a controversial upstream-diversion project, called the Two 

Bridges Diversion which was unsuccessfully opposed by the Great 
115 

Falls Committee. There currently exists the dilemma of weighing 

sc:P.nl c va lne of flow over the Fa lls and through the racewnys , 

versus the economic value of flow dropping through the 

pennstocks of the hydroelectric plant, an·d generating p ower and -

revenue. 

THE ROGERS BUILDING 

DOT, in order to acquire the right-of-way for the Route 80 

storm drain, purchased the rear yard and boiler room of the 

Rog e rs Erecting Shop on Spruce and Market Street . Mrs . K, again 

using her persuasive powers, convinc:ed the owner to donate the 

r ema i ning structure to the Great Falls Development Corporation. 

ARCHAEOLOGY 

The design and construction of Interstate 80 required a 

storm drain through the District to the P~ ssaic Riv e r. This 

intrusion gave the Great Falls Committee the ability to 

negotiate an agreement with DOT to install the drain by jacking 

or tunneling it under most of the District, and to fund a 

salvage archaeology project related to its work. The project 

uncove red hundreds of artifacts and photographed and documented 

numerous features of the early raceway and building 

cons truction. Perhaps its mos t interesting find was the 

accide ntal discovery , as a result of the Department of 

Trnnsportat i on's storm-drain excavation, of a completely intact 

covered sec tion of the lower raceway extending along the north 

si;:le o f Market Street from Mill Street. 

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116 

HAER TEAM 

The National Park Service's Histori c American Engineer ing 

Record (HAER) spent two summers measuring and preparing detailed 

drawings of many nf the structures and feature s in the Distri c t . 

This work, which included over 40 quality maps and the research 

into the history of the buildings, provided further. 

documentation of the significance of the area. 

NATIONAL LANDMARK 

During the early '70s, several trips to Trenton and 

Washington were made to seek consideration of the establishment 

of a State and/or National Park. Unfortunately, the efforts 

were not successful. At the federal level, the admini s tras ti on 

was trying to close, not open, national parks. 

A former member of the HAER team, Russell Fries, who will 

t esti fy today, was hired by the City and prepared a voluminous 

report proposing a National Park which resulted in the 

designation of the Great Falls as a national landmark. 

President Gerald Ford visited Paterson on Jun e 6, 1976, and mad e 

the presentation at a ceremony attended by 60,000 residents. 

DISTRICT EVENT3 

The Falls area had always attracted tourists. The new 

publicity brought groups and individuals from all over the world 

to visit and participate in tours. The Great Falls Development 

Corporation , on February 15, 1976, sponsored a "Winter Walk of 

Paterson and the Great Falls" that drew 1,300 people o n a co ld 
117 

and dreary Sunday. On May 15, 1977, a 12-mil e bike tour 

featuring the District and the Paterson area attracted hundreds 

from the region. Many groups, such as the Northeast Victorian 

Studies Association, the Victorian Society of America, the 

American Society of Civil Engineers and the Association of 

American Geographers, organized tours around the Di~tri~t. 

The Di s trict served as the backdrop for a Paters on 

dire~t r's firs t feature - length film. The film contained many 

shot ~ of the District including a grizzly murder scene from the 

int e rior of the unrestored Rogers Building. "Communion," 

premiered in Paterson on November 13, 1976, at the downtown 

Fabian Theater. Proceeds from this gala world opening were 

donated to the Great Falls Development Corporation. The 

murder ··mystery, ultimately released as "Alice Sweet Alice," is 

perhaps most notable for containing the debut of a New Jersey 

12-year old, Brooke Shields. 

NATIONAL CIVIL AND MECHANICAL ENGINEERING LANDMARK 

The Great Falls power and raceway system were designated as 

a national Civil and Mechanical Engineering landmark. A 

dedication ceremony was held May 29, 1977, the 50th anniversary 

of Lindbergh's crossing the Atlantic powered by a Wright 

aeronautics engine made in Paterson. 

EDA TITLE IX FUNDING 

In the late '70s, Paterson received substantial funding 

from the federal Economic Development Administration, under its 
118 

Title IX program. This enabled the City to make substantial 

progress in implementing the Great Falls Di s trict multi-use 

concept. The preliminary s urvey and plann i ng work undertaken by 

John Young and the Redevefopment staff, in the early 1970s, was 

updated and expanded. An official redevelopment area was 

designated for the Great Falls Dist~ict. This enabled the City 

to have both contr;l and flexibility when dealing with 

developers. 

The Title IX funding enabled the complete restoration of 

the Rogers Erecting Shop, transforming it into a modern office 

building with the City museum on the first floor. This highquality work serves as a standard for private developers. 

Properties acquired by DOT intended for demolition were 

re-acquired by the City to be resold to private developers under 

the redevelopment plan . 

The Essex and Phoeni x mills we re convert e d into 141 units 

of attractive loft apartments for artists and families. The 

City's Department of Community Development succeeded in 

obtaining a special waiver from HUD to permit single artists to 

receive Section 8 rent subsidies which are normally only granted 

to families, ·the elderly or the handicapped. 

The Franklin mill was purchased and converted into a modern 

four-story office building retaining all the exterior features 

of the building. 

Federici Park, with its gleaming fountain and attractive 

1 0 .. 
119 

gazebo, was created to ease the transition from the Histor i c 

District to the downtown area. 

·rhe upper-raceway area was transformed into a park with a 

walkway, lighting and benches. 

The Ivanhoe Wheelhouse and adjacent spillway were r e stored. 

New parking areas were created along with roadway and 

street··scape improvements. 

The City amended its Zoning Ordinance to encourage loft 

apartments and to provide for a local Historic Preserva tion 

Commis:.ion with the responsibility for reviewing all 

construction in the District. 

FIND A LOCOMOTIVE 

Fr om 183 7 to 1923, Paterson was the home of six steam 

locomotive manufacturers which built approximately 23% of all 

19th century American steam engines. They included the Rogers 

"General" anCI the Danforth-Cooke "Texas" Civil War engines, and 

the Roger s "119" Golden Spike Ceremony engine. Yet, there was 

not a singl e example remaining in Paters on. Mary Ellen Kramer 

and the City's Department of Community Development staff set out 

to remedy that situation. They searched the world and located 

an Alco-Cooke tender engine rusting away in Pennsylvania. The 

Great Falls Development Corporation mounted a fund - raising 

effort and brought the engine back to Paterson. The real prize 

example, however, a Cooke 2-6-0 "Mogul" engine "299" and tender 

were s itting on display since 1955 at the Balboa Heights 

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120 

railroad station in the Panama Canal Zone. Only a few days 

before the Canal Zone was turned over to Panama, Mayor Pat 

Kramer, after a lengthy negotiation, st ood on the docks at dawn 

in the Canal Zone when Engine "299" was placed on a giant tender 

for its final passage through the locks of the Panama Canal . At 

the end of its canal journey, it was hoisted onto a freighter 

for its final trip home, arriving on June 6 , 1979. Both 

locomotives are now on display in the yard of the Rogers 

building and City museum. 

MODIFIED HIGHWAY CONNECTOR 

DOT officials and engineers, after b ei ng forced to abandon 

the o~iginal peripheral highway concept, wor ked with City 

officials and citizen groups to redesign the highway to a 

connector road, whose sole purpose is to serve the downtown and 

Great Falls area. The highway engineers adopted the City's 

design elements, w~ich were developed for the Historic District 

and incorporated them into the connector road. The connector, 

now known as Route 19, was opened in October 1992. The early 

reviews and renewed interest by developers, in both the Historic 

Distric.t and downtown, appear to support the notion that the 

City at long last has a transportation link that serves rather 

than severs. 

PROJECT UPDATE 

The concepts and ideas developed in the late '60s and early 

'70s are still only partially realized. Th er e were severe 

!. 2 
121 

setbacks due to disastrous fires and a depressed real estate 

market. The National Park Service, as a result of Senator 

Lautenberg's efforts, in 1992 allocated $4.1 Million for the 

Great Falls Historic District under the New Jersey Urban History 

Initiative and is currently working with City officials on 

further improvements, focusing on the fire-damaged vacant and 

under-utilized structures in the District. A core advisory 

group of citizens and officials is working with the National 

Park Service staff. 

Former Congressman, Robert A. Roe, in 1974, pursued the 

establishment of a National Park under the auspices of the Park 

Service. The City administration, however, had reservatio,ns 

about the possibility of losing local and community control of 

the area. Concerns vanished after seeing the impact of federal 

dollars successfully applied to another early industrial 

community, Lowell, Massachusetts. 

There has been renewed activity related to the physical 

development of the District. The largest vacant structure, the 

four-story Cooke mill, has been completely restored as a $9 

Million mixed-use project, involving St. Joseph Hospital's 

Family Care Center on the first two floors and 34 units of 

affordable rental housing on the two upper floors. 

The City recently foreclosed and regained possessio·n of 13 

parcels of land and buildings from a developer who was unable to 

obtain financing to complete the rehabilitation. One structure, 

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1~ 

the former School 2 at Hill and Passaic Streets, vacant and 

deteriorating since its purchase by DOT in 1970, has been 

transferred to the school district. Plans are being prepared 

and funding is in place to restore the building to its original 

school purpose as a modern early-childhood learning center. The 

Department of Community Development is currently negotiating 

with several developers for the sale. and redevelopment of the 

remaining parcels, including a seven-acre tract along the river, 

which contains the historic but fire-damaged Colt, Todd and 

Waverly mills. 

CONCLUSION 

We believe that the national significance of the Great 

Falls Historic District has been well documented through 

numerous high-quality studies over the past 25 years. If any 

review or refinement is necessary, it can be performed und er the 

current cooperative agreement with the National Park Service. 

The City of Paterson, with its own resources along with 

significant financial assistance from the State of New Jersey 

and the Federal government, has constructed many high-quality 

and historically accurate public improvements in the Great Falls 

District. These improvements, however, are constantly 

threatened by the City's inability to provide proper routine 

maintenance due to other demands on its limited resources . 

Although we operate a Visitors' Center headed by Grace 

George, a retired Paterson School Teacher, who does a tremendous 

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job, the demand for tours and public information far outstrips 

our ability to properly interpret this great national treasure. 

Help us do the job for the country. 

Thank you for the opportuni·ty to present. these comments . 
124 

Mr. VENTO. Yes, Mayor, please proceed with your statement. 

STATEMENT OF BON. WILLIAM PASCRELL, JR. 

Mr. PASCRELL. Good morning, Mr. Chairman. 

Mr. Chairman, this is the third largest city in the State of New 

Jersey of which we speak today, and a part of that city, 120 acresa little bit more than 120 acres-60 of those acres are privately 

owned. We are talking about approximately 40 acres that we would 

consider to be in the public domain. 

To be very specific and direct with you, Mr. Chairman, I listened 

very carefully to your remarks today, and I am enthused at what 

you see as a necessary because up until this day-I will be very 

frank with you-I hav~ always felt that urban historic preservation 

was an oxymoron. When I look at the past history of the Park Service in terms of urban park areas, I find that policy is tremendously 

wanting. I studied in the seventies the relationship between the Park 

Service in Lowell, Massachusetts, where for the first time a commission was established through legislation or else they still would 

not have developed into what they are today. I remember the 

words of Senator Tsongas at the time. We don't wish to in any 

manner, shape, or form to come before you with our hat in hand. 

We are a very proud city, a gritty city, an old city. We don't wish 

to put purple ropes around the old buildings or blocks in order to 

preserve them for whatever. 

We are talking about preservation of values. The very source of 

economic development in industrialization of this Nation started in 

the Lowells and the Patersons of this country. 

We need support and help in whatever kind of partnership and 

agreement that we come to in the maintenance and the security of 

this area where people from all. parts of the world started their 

families. People from all parts of the world started to manufacture 

sails and trains and the Colt revolver. These started, and the mills 

developed into the places where the silk industry of Paterson was 

the silk capital of the world at one time. Like many other urban 

areas in the past 30 to 35 years, manufacturing has left us primarily because there was no manufacturing policy or industrial 

policy in this Nation, and, second of all, because we did not understand the value. 

So we are returning to our roots, you might say. We are returning to where the city started in the very center of things. Three 

minutes from City Hall, there is this magnificent falls; one minute 

from the falls is an area that you heard Frank Blesso talk about 

just a few moments ago that, since 1980, there have been 13 fires. 

The city does not have the resources to maintain these historic 

areas which are not simply bricks and mortar. We are talking 

about the very values which this historic district represents, the 

values that I know you support, Congressman Vento, and be assured that we support it as well. 

Whatever this agreement is, we don't want to get caught up in 

the minutiae of deciding which kind of a contract or agreement, because we will go another 25 years with nothing happening. Part of 

the fact that nothing happened is our fault, because we did not 
125 

move swiftly enough, because we couldn't decide what we needed 

and what we wanted. We are not asking to have our hand held, we are asking not only 

for technical involvement and environmental involvement on the 

part of the Park Service, and to that degree they have been splendid in their desire to help us, but what I am talking about is preserving what is left, helping us secure those areas and then moving 

on. 

We believe in self-help. We believe that it is the cities and the 

historic preservation of those cities and particular parts of those 

cities that is going to be the very basis of economic development 

in the future. If we write those areas off, then the very jewel at 

the center of Paterson's crown and all cities' crowns will have been 

lost forever. 

Mr. Chairman, we know of your tremendous amount of work in 

this committee. This is not Yellowstone Park we are talking about, 

but there was in commission in Yellowstone Park. If we want to 

preserve these areas in urban America that are worth preserving, 

that do reflect the values that you have heard spoken about today, 

whether it be Wheeling or Paterson, whether it be Lowell or the 

other cities of America, then I ask that we sit together and work 

an agreement that does not defy reason but that will help us accomplish what we all want to accomplish, to make these areas livable, to improve the quality of life, and to preserve and have the 

ripple effect affect the entire community of our city itself. 

So, Mr. Chairman, I would be more than happy to answer any 

questions that you have. 

Mr. VENTO. Yes, thank you very much, Mayor. I am encouraged 

by your comments. 

As I said, the historic or cultural resource values are beyond 

question in areas such as this. I think it is really a question of how 

the Park Service can come together in terms of a general designation and what type of commitment or expectation there would be 

from such designation and whether there would be a local agreement. 

Have you had a relationship with your State historic preservation authority or office with regard to this area? 

Mr. PASCRELL. Yes, Mr. Chairman, and most of our State legislators, so we have tried at the same time to involve the State as 

much as possible so that there really is a comprehensive partner- ship. 

Mr. VENTO. Do they have a regular funding program through the 

State that is trying to facilitate preservation or prevent the deterioration of such resources as exist in your community in this district? 

Mr. PASCRELL. A very small amount of resources are available in 

the State of New Jersey, Mr. Chairman. 

Mr. VENTO. Do you have an overall plan that you put together 

under the auspices of this urban historic preservation initiative 

that Senator Lautenberg had provided funds for? Could you briefly 

describe that plan? 

Mr. PASCRELL. This is an area, Mr. Chairman, that is involved 

with industry, it is involved with residential living, and it is involved with parks and also some retail and commercial endeavors. What we have attempted to do is forge a plan which would include 

78-797 0 - 94 - 5 
126 

the city and those people who live and work in this particular area 

rather than impose a plan upon the area, which government is very 

good at. 

Mr. VENTO. Well, I know we are, and you do a lot more of it precisely and definitively and on a !;iite-specific basis than what I think 

the Park Service or I want to do. 

I think one of the difficulties here is, once a commitment is 

made-for instance, I note that the general plan here looks like 

there is a lot of open space, but along comes a project, and you say, well, that was a nice park, but we need to develop some jobs and 

housing. So the concern is you could always make exceptions to a 

plan and so forth, and I think there has to be some flexibility with 

local governments to deal with that. 

Do you see any need for the Park Service or for the local governments here to give up authority to some intermediate group? 

Mr. PASCRELL. No, Mr. Chairman, I don't. To clarify, we expect 

to preserve the open public area that exists right now. The area 

that Mr. Blesso spoke about before, which is called the Colt-Waverly Area, where we have had many of these fires that have 

burned down what were fairly good buildings. We want that area 

perhaps to have some development and also have some open space. We foreclosed on this property. There was a developer who 

owned that parcel and didn't do anything with it, so we foreclosed 

and took that property over. Other properties that we have taken 

over in that district were where the private owners either did not 

pay their taxes or walked away or were playing the city for fools. 

Those properties are now being developed or in the process of being 

developed. But we want to maintain the open spaces we have now. Mr. VENTO. When I asked about the general plan, one of the 

things I was going to try to do was to try to put some sort of a 

dollar parameter here of what the expectations would be over a 

long period of time. I appreciated Mr. Blesso commenting about the operation and 

maintenance dollars for some facilities into the future and the necessary of high-cost hand-cut stones, the bluestones that came from 

up the Hudson River and so forth. 

Our concern is with the operation and maintenance that it would 

be attainable without Park Service ongoing funding. The question 

is trying to bring some of the capital to stabilize some of the sites 

or whatever plan you have over a period of time. Do you have any 

dollar figure at this time, or it still too preliminary a period to give 

a dollar figure? 

Mr. PASCRELL. Frank. 

Mr. BLESSO. We do not have any dollar figure. We expect that 

some of the studies going now, the technical assistance, will help 

develop and move us in that direction. 

Mr. VENTO. Yes. I want to point this out because I think it is important for you all to note that we are · not going to act on legislation that just says such sums as are necessary. So we are going to 

have to have a specific dollar figure, and there are obviously no 

odds in putting a figure that is high because it is going to be a red 

flag in any case in terms of the action on the Floor. We are obviously in that type of environment. 
127 

You recognize that there should be a matching effort by the State 

or by nonprofit sources and tie the local governments. Is that true? 

Mr. PASCRELL. Right now, the matching is 100 percent of what 

the city is doing in terms of maintaining and securing. We have a 

lot of volunteers that help us, for instance, clean the area, try to 

keep the area clean. It is a lot better than it was four or five years 

ago. 

We are really talking about a bipartisan effort because this is an 

effort that has brought the community together over 25 years. It 

didn't matter what one's political persuasion was. People are involved. 

What we are saying here is that in order to secure this property, 

because you can enter it in many different ways, we don't have the 

police power to do that. You may say, "That is your total responsibility, Mr. Mayor, to do that kind of thing," but if we are talking 

about preserving of historical values, then I think we need help. 

That is why we are looking to the Federal Government for some 

kind of partnership. That is what part of this is all about. 

Mr. VENTO. I understand that. I don't know whether or not we 

can meet those expectations on the practical basis. Through shots 

on the Appropriations Committee much can happen, but I don't 

know that I could hold it out as a national model in terms of being 

attained. 

The other point that I would make is obvious here, but we don't 

talk about it. I work with my colleague on the Banking Committee, 

and we find very frequently that the costs of repairing or maintaining the cultural or historic integrity of buildings under the guidelines of the Historic Preservation Act actually mean that a house 

or a building is far more expensive than what it would be to construct a new house or building. I think probably that may be overstated in some cases, but it at least is a dilemma in terms of property values, especially when you are trying to repair a home that 

is a hundred years old. You may put hundreds of thousands of dollars into it, and then the neighborhood values end up pushing the 

value of it way down. But once you get a certain critical mass of investment, you may 

then find that turns around in terms of gentrification and other aspects. I don't know how we would refer to it on the commercial side 

of it, but clearly trying to find means to, what we call adaptive 

reuse of these buildings, is the best policy with regard to making 

it self-sufficient and in meeting the expectations that you might 

have under such law or under such historic district designation. 

Mr. PASCRELL. Mr. Chairman, I think if one were to look objectively at the buildings that have been preserved, we have been successful either by the public or private ownership. I think you would 

be very pleased to see these buildings. They are very functional. 

They fit into the community, the public loves them, and they are 

not simply idle buildings. They are buildings that are important. 

Mr. VENTO. You have the same problem that we have nationwide 

with an excess of commercial office and sometimes industrial space, 

millions of square feet of mill space. We have no need for that and 

for manufacturing space, as you have indicated. Sometimes it is 

policy. 
128 

But here we are trying to put something in place in a dynamic 

community that has to keep changing, and so it represents a real 

special challenge. It is easy for us to set something aside and to 

hold it as it were in the early 1900s, but it is far different than 

to try to do it in a community that has the type of responsibility 

and growth necessity that you may have, Mayor. Mr. Klein. 

Mr. KLEIN. Thank you, Mr. Chairman. You know, the old Chinese adage that a picture is worth one 

thousand words-I don't know whether the chairman has had an 

opportunity to see the---

Mr. VENTO. Are you saying I should have come with pictures 

today? 

Mr. KLEIN. Yes, I am taking the pictures today. 

But here's a great view, and it is in the packet that has been provided to all the Members, of the falls itself, and a statue of Alexander Hamilton is in the foreground. But I think it gives you an idea 

of what the scenic beauty is of this area. 

There is also in the packet which we have provided to Members 

pictures of some of the buildings that have been restored. Incidentally, those that have been restored have been restored preserving 

both the historic heritage and at the same time providing a functional basis which makes sense today. 

For example, you have got the Essex Mill property which has 

been refurbished into apartments which are primarily occupied by 

artists and others. There is also a photograph of the Waverly Mill 

which the mayor referred to, and that is the one that has been ravaged by fires. There is a photograph also of the raceway itself 

which is the oldest historic structure in the area. 

But I think that if the Members do have an opportunity-and l 

realize, Mr. Chairman, that you are very, very diligent in thatI think it will give you an idea of what this area was, what it is 

today, and what it can be if the project that has been proposed by 

the city and is to be embodied in this legislation reaches fruition. I think it is very, very important. 

You know, I was in Europe, I was in Spain, this past summer, 

and when one sees what those in Europe have done to preserve 

their historic heritage, I think we ought to do a lot more. We have 

got some great things to be very, very proud of. I don't think we 

want to lose them, and if we let them deteriorate and disintegrate, 

we lose them for future generations. 

Mr. VENTO. I appreciate your insights. I think a lot of it has to 

do with our role in terms of urban policy and how we bring together very real cultural and historic resources and how those 

urban policies complement and amplify that particular need. So 

there is a real crossover here. I think the mayor's comments and 

the director's spoke to that precisely as well. So it is an important 

piece. 

These heritage areas or corridors could be an important part of 

an urban policy in the Park Service, how to work with urban areas. 

You know, trying to transpose what we do in Yellowstone to 

Paterson and/or to Wheeling, West Virginia, is not a good fit, and 

it is becoming more and more apparent as we see these things ex-
129 

trapolated out in tenns of policy, in my judgment. But maybe others don't see it that way. But I hope that we can come to a meeting of the minds here on 

this. I think that you have come a long way in your proposal. It 

seems to me you have got a good response from the mayor and the 

director here concerning this issue. 

So I won't torture you with any more questions, Mayor. You have 

been very patient. Mr. P ASCRELL. You are not torturing at all. 

Mr. VENTO. And I appreciate the efforts you are making there. 

It is very encouraging. And I will look through my pack, when I 

receive it, at the photos. Thank you very much, both of you. 

Mr. KLEIN. And thank you again, Mr. Chainnan, for all of your 

help, and I look forward to working with you. 

Mr. VENTO. You are welcome. Thank you. We have a comment here from Mr. Blesso. 

Mr. BLESSO. Mr. Chainnan, in the absence of Pat Kramer, werequest your pennission to introduce another witness to speak briefly 

on the background, a person who was involved in the early seventies in doing the documentation, now employed in the Washington 

area, Doctor Russell Fries, if we could indulge the committee for 

a few minutes. 

Mr. VENTO. Well, just briefly. I think we can take a few minutes, 

but we really have to move to the other panels, if Dr. Fries is with 

you today. 

Dr. Fries, we will just give you a few minutes. It is very unusual 

to have witnesses not scheduled. Someone may take their place. 

But in trying to be considerate of the mayor's request and the director. 

STATEMENT OF RUSSELL FRIES 

Mr. FRIES. Mr. Chainnan, thank you very much for this special 

consideration. It is indeed a pleasure to be here today and to be 

able to talk with you just a little bit about Paterson and its role 

in the past. · I have a prepared statement that I have passed in. 

Mr. VENTO. Without objection, it will be made part of the record. 

Mr. FRIES. I would like to focus, I think, on why Paterson is important as part of our national heritage? 

I guess the most important aspect for me in looking at the developments in Paterson has been its role in the changing industrial 

fabric of America, first as the planned industrial development that 

helped to bring this country from a state of literally economic dependency into the future direction of America, which was industrial 

development. 

I think the most important aspect in this work was the concept 

of an industrial policy. Alexander Hamilton planned this. Pierre 

L'Enfant, the architect of the national capital, worked for many 

years on the Paterson development as well and helped to forward 

the development and bring European engineering talents to bear 

on the problem of how do we develop the area. All of these individuals worked to make Paterson a place that would work for the 

United States. It is now our opportunity to turn back and look at 

that past and say where have we been, where can we go? 
130 

The other thing that I think is characteristic, and Frank and 

Senator Lautenberg talked about it very eloquently, is that we 

have a heritage of diverse people coming together in Paterson. 

Each new wave of immigration, whether it was English or Irish or 

Italian or French Canadian or German or Czechoslovakian, each 

one brought its own special character and identity to the city of 

Paterson. There are new waves of immigration that have come to 

the city since then. Blacks and Puerto Ricans are in large numbers 

in the area now. I think each one of these waves represents remaking Paterson into a new image, and I think Paterson's historic fabric there can be as important for rebuilding this image as the new 

people that are there now. 

With that, I would just like to say thank you again for the time. 

[Prepared statement of Dr. Fries follows:] 
131 

PATERSON- INDUSTRIAL PROTOTYPE 

Paterson represents the first of a string of American industrial "start-ups". In the 

days when it was OK to have an industrial policy, Paterson was America's industrial 

policy. It was our first attempt to take "Junk Bonds" (Hamilton's federal securities 

backed by nothing more than the credit of a totally debtor nation impoverished by the 

American Revolution) and eliminate America's complete dependency on a dominant 

economic power (Great Britain) and tum our debt into the means of obtaining our 

freedom. 

It was our first attempt to harness these bonds and the relatively wealthy investors 

into a coherent policy to build industry to compete with Great Britain, the dominant 

economic power. While it did not reject agricultural pursuits, Hamilton's policy clearly 

looked to industries, primarily textiles, as the way to break our dependence. The Status 

Quo at the time of the writing of the Constitution was simply political independence but 

almost total economic dependence. Textiles were to be the key to breaking Great Britain's 

dominance, to be produced in mills owned by the Society for Establishing Usefull 

Manufactures, which Hamilton suggested and actively fostered. 

Paterson also marked the first large scale attempt in the United States to harness 

our abundant water-power resources for a large-scale development project. The Great 

Falls of the Passaic was 65' high, too-high to be used on the heavy wooden waterwheels of 

the time for which 20' was about the largest practical diameter. Only a massive 

engineering project could tame the flow of the Passaic, and tum the impressive Great Falls 

into a powerful, but thoroughly domesticated industrial power source, divided into three 

20' levels each individually compatible with the mill wheels of the time. 

To develop this power Paterson drew on both domestic and foreign engineering 

talent. First to try to develop the Great Falls was the impractical American land 

speculator and financier William Duer, with dreams of thousand acre real estate sales 

fueled by industrial development. Then followed the thoroughly practical but capital -

hungry European-trained engineer, Pierre Charles L'Enfant. He in tum was succeeded by 

the modest but successful local self-made engineer, Peter Colt, who completed one tier at 

a time. Colt's plan succeeded where L'Enfant's failed because small incremental ideas 

sometimes work better than Grand Designs, particularly when cash is short. 

What came of Hamilton's industrial vision? There were both successes and 

failures. The first S. U.M. textile mill failed to compete successfully with British firms, 

leaving to Samuel Slater of Rhode Island the task of successful industrial espionage that 

brought British textile machinery to this country. But the S.U.M.'s failure was balanced 

by the start-up firms that sprang up to replace it. In the 1815 period John Colt spun flax 

into sails for the ships of this country. In the 1830's Thomas Rogers switched from textile 

machinery to railroad engines, and helped to develop the standard 4-4-0 style of 

locomotive that dominated American railroads during the 19th century. Samuel Colt built 

some hundreds of his patent revolvers in Paterson in 1836-1839, and supplied the budding 

Texas Republic with some of its arms. John Ryle, an immigrant from Ireland, helped to 

give Paterson its 19th century fame for silk manufacture that made its reputation around 

the world. And even the Wright Brothers had their association with Paterson, for Curtiss-
132 

Wright had its factories in Paterson before and during World War II, making the Wright 

Cyclone and Whirlwind engines that helped power both Lindbergh's plane and America 

itself to a dominant position in the aircraft industry. 

Behind these industrial successes lay thousands of stories of hard work, whether by 

natural born Americans, or the hundreds and then thousands of immigrants that streamed 

into Paterson during the 19th century. At first the workers were primarily English or Irish, 

but as time went on larger groups began to arrive from other countries such as Germany, 

Italy and French Canada until almost every European ethnic group was represented. They 

made Paterson into the melting pot of the history books. Some of these immigrants, like 

R yle, succeeded beyond their dreams. Others failed and died with little but their dreams, 

but all contributed their stories to the vibrant community that Paterson was during the 

19th century and early 20th century. Other later efforts developed larger water power 

sites. Other cities outgrew Paterson as steam and then electricity replaced water power for 

industry. Nowadays the idea of waterwheels and leather belt-driven machines seems only 

nostalgic and quaint rather than dynamic. But Paterson was the model that established the 

vision of what America was to become in the 19th century, and set the country on its path 

to equal and then surpass Great Britain. Hamilton was right. His vision of an independent 

America based on manufacturing fueled American development throughout the 19th 

century and well into the 20th as well. 
133 

Mr. VENTO. Thank you very much. I appreciate the expertise and 

the effort, and we will examine your prepared statement. 

Mr. Kramer also can place a statement in the record if he chooses. We will keep the record open for ten days. 

Mr. PASCRELL. Thank you. 

Mr. VENTO. Thank you very much, gentlemen. 

We have a vote. I will just ask the next panel to remain available. I will be back as quickly as I can from casting the vote on 

the Journal, and we will then be able to proceed hopefully through 

that panel and the other witnesses today. I won't ask as many 

questions. We will use some pictures. 

[Recess.] 

Mr. VENTO. The subcommittee will resume its sitting. 

We have on this next panel four individuals who I think are 

around: Patrick Cassidy, the cochair of the Wheeling Heritage Task 

Force, who is accompanied by Roland Hobbs, whom I met when he 

was introduced to me by Congressman Mollohan earlier this morning; Ms. Rebecca Payne, director of the West Virginia Independence 

Hall; and Mcintire, project coordinator and director of development 

of the city of Wheeling; and, finally, Dr. Emory L. Kemp, director 

of the Institute for the History of Technology and Industrial Archeology, West Virginia University. 

We are pleased to welcome you and appreciate your patience. Your statements have been made part of the record. I think I am 

about to receive copies of them, and you can summarize them. It 

will probably facilitate the testimony process. 

I regret that it is such a hectic and busy day for most Members, 

but please proceed with your statement, Mr. Cassidy. Welcome. 

PANEL CONSISTING OF PATRICK S. CASSIDY, COCHAIR, 

WHEELING NATIONAL HERITAGE AREA TASK FORCE; REBECCA J. PAYNE, DIRECTOR, WEST VIRGINIA INDEPENDENCE HALL, WEST VIRGINIA DIVISION OF CULTURE AND 

IDSTORY, DEPARTMENT OF EDUCATION AND THE ARTS, 

WHEELING, WV; PAUL T. MciNTIRE, JR., PROJECT COORDINATOR AND DIRECTOR, DEPARTMENT OF DEVELOPMENT, 

THE CITY OF WHEELING; AND DR. EMORY L. KEMP, DIRECTOR, INSTITUTE FOR THE IDSTORY OF TECHNOLOGY AND 

INDUSTRIAL ARCHEOLOGY, WEST VIRGINIA UNIVERSITY 

STATEMENT OF PATRICK S. CASSIDY, ESQ. 

Mr. CASSIDY. Thank you, Mr. Chairman, and thank you for the 

opportunity to present the views of the Wheeling National Heritage 

Area Task Force on H.R. 2843, a bill to establish the Wheeling National Heritage Area in Wheeling, West Virginia. 

Over the past three years, the city of Wheeling has been engaged 

in a partnership process in working towards the establishment of 

the Wheeling National Heritage Area with the city, the State, the 

National Park Service, and numerous community groups and individuals in the Wheeling area. 

We have set out, Mr. Chairman, from the beginning to ensure 

that the Wheeling National Heritage Area would be established as 

a self-sustaining system, not dependent on continuing Federal appropriations beyond the initial years and managed locally by a not-
134 

for-profit corporation. In this way, we believe that this would serve 

as a prototype of the kind envisioned by the National Park Service 

in its Heritage Partnerships Program. 

Rather than depending on long-term Federal financial assistance, 

the role of the Federal Government is envisioned as short-term to 

aid in the influx of capital. This will assist in the planning and development of facilities and interpretative resources with a local 

nonprofit entity managing and financing its operation while maintaining representation of the interests of the Secretary of the Interior or his designee on the board of the local management corporation. 

The proposed Wheeling National Heritage Area Corporation has, 

of course, been outlined in detail in the legislation, and we are currently in the process of developing a business plan to fully project 

how the system will work and to ensure its viability as a self-sustaining entity. 

Mr. Chairman, Wheeling is a city proud of its historical, cultural, 

and natural resources and a city which is committed to preserving 

and sharing its largesse not only with its own citizens but the 

many visitors who come to Wheeling each year. It is a city which 

played an important part in the settlement of this country in the 

nineteenth century as the terminus of the National Road, the Baltimore and Ohio Railroad, and as a provisioning and departure point 

to the development of the Northwest Territories. With the completion in mid-century of the historic Wheeling suspension bridge, the longest suspension bridge of its kind in existence at the time and now recognized as the most important civil 

engineering structure in the United States built before the Civil 

War, Wheeling became well established as the crossroads of America, a role it still largely plays today as Interstate 70 and 470 traverses the Ohio River near the historic suspension bridge which is 

now a National Historic Landmark. 

Nearly 100,000 vehicles daily still pass through Wheeling and 

over the Ohio River. The location of Wheeling and its commerce 

and trade were so important to the young nation in the nineteenth 

century that Congress designated Wheeling as one of the few inland ports of entry in 1831. 

Wheeling has numerous cultural resources. Oglebay Park, with 

more than 1,500 acres, is recognized as the only self-sustaining municipal park in operation in the United States. It serves as a national model for municipal parks. Another city park, Wheeling 

Park, with an additional 406 acres, Oglebay Institute, the Wheeling Symphony, WWVA, and Jamboree, U.S.A., six historic districts, 

and numerous historic structures listed on the National Register of 

Historic Places, and our fine Victorian architecture, all constitute 

treasures enjoyed today by not only Wheeling citizens but by three 

million visitors yearly from all over the Nation as well as Canada 

and other countries. 

Many of Wheeling's seminal industries-steel, glass manufacturing, cigar making, such as the manufacturers of the famous Wheeling stogies-are still operating today as they have for over one 

hundred years. 

When this Nation was involved in that great struggle for survival 

during the Civil War, the citizens of West Virginia met in Wheeling 
135 

in the Federal Custom House and established the new State, the 

Restored State of Virginia, which ultimately became the State of 

West Virginia, and Wheeling served as the capital of the Restored 

State of Virginia for two years and the first capital of the State of 

West Virginia. The Custom House, now West Virginia's Independence Hall, has also been designated a National Historic Landmark. 

WhP#ling played a role in the development of the great State of 

West Virginia much like Williamsburg did in the development of 

the great State of Virginia. All of these resources provide an excellent opportunity for the interpretation of nineteenth century America. 

We feel confident the plan best represents the interests of everyone in recognizing the special importance of the history and development of the Wheeling area in the cultural heritage of the Nation, 

that it provides a framework to assist the city of Wheeling and 

other public and private entities and individuals in the city to preserve, enhance, and interpret its extant resources, and that it does 

so in a way not to constitute a continuing financial or management 

burden to the Federal Government but, rather, in a way consistent 

with the Par~ Service's plan for future heritage areas. 

We urge passage of the Wheeling heritage bill. 

Thank you, Mr. Chairman. 

[Prepared statement of Mr. Cassidy follows:] 
136 

l-"a1 ( <~);.~idy 111.: ,:.a::: ·:.,.,.1 kiJII t-lotoh.~ ., ,.: ,',l.; •1::::•' 

Co. ('hairmcn 

WHEELING NATIONAL HERITAGE AREA 

WITNESS STATEMENT-ll/16/93 

STATEMENT OF PATRICK S. CASSIDY, ESQ., CO-CHAIRMAN, WHEELING 

NATIONAL HERITAGE AREA TASK FORCE, BEFORE THE SUBCOMMITTEE ON 

NATIONAL PARKS , FORESTS AND PUBLIC LANDS OF THE HOUSE COMMITTEE 

ON NATURAL RESOURCES CONCERNING HOUSE BILL H.R.2843, A BILL TO 

ESTABLISH THE WHEELING NATIONAL HERITAGE AREA IN WEST VIRGINIA. 

------------------------------------------------------------- H~RITAGEMr . Chairman, thank you for the opportunity to present the views 

of the Wheeling National Heritage Area Task Force on H.R. 2843 a bill that would establish the Wheeling National Heritage Area in 

West Virginia. I am here today representing the Task Force along 

with Co-Chairman Roland Hobbs, and Paul Mcintire, Director of the 

Department of Development for the City of Wheeling, West 

Virginia. 

Over the past three years the City of Wheeling has been engaged 

in a partnership process in working towards the establishment of 

the Wheeling National Heritage Area with the city, the state, the 

National Park Service and numerous community groups and 

individuals, that have been involved in celebrating Wheeling's 

heritage through the years. We have set out from ::he beginning to ensure that the Wheeling National Heritage Area would be 

established as a self-sustaining system, not dependent on continuing federal appropriations beyond the initi al years, and 

managed locally by a not-for-profit corporation . i n this way, it serves as a prototype of the kind of National Heri tage Area 

envisioned by the National Park Service in its Heritage 

Partnerships Program. 

Rather than depending on long-term federal financial assistance, 

the role of the Federal Government is envisioned as short-t"erm to aid in the influx of capital. This will assist in the planning 

and development of facilities and interpretive resources, with 

the local non-profit entity managing and financing its operation, 

while maintaining representation of the interests of the 

Secretary of the Interior or his designee on the Board of the 

l ocal management "corporation . 

The proposed Wheeling National Heritage Area Corporation has been 

outlined in detail in the legislation and we are currently in the 

process of developing a business plan to fully project how the 

system will work and to ensure its viability as a self-sustaining 

entity. 

Mr. Chairman, Wheeling is a city proud of its historical, 

cultural and natural resources, and a city which is committed to preserving and sharing its largess not only with its own 
137 

citizens, but also the many visitors who come to Wheeling each 

year . It is a city which played an important part in the 

settlement of this country in the nineteenth century as the 

terminus of the National Road, the Baltimore and Ohio Railroad, 

and as a provisioning and departure point to the development of 

the Northwest territories. With the completion in mid-century of 

the historic Wheeling Suspension Bridge, the longest suspension 

bridge of its kind in existence at the time, and now recognized as the most important civil engineering structure in the United 

States built before the Civil War, Wheeling became well 

established as the Crossroads of America, a role it still largely 

plays today as Interstate 70 and 470 traverses the Ohio River near the historic suspension bridge, which is now a National 

Historic Landmark. Nearly 100,000 vehicles daily still pass 

through Wheeling and over the Ohio River. The location of 

Wheeling and its commerce and trade was so important to the young 

nation in the nineteenth century that Congress designated 

Wheeling as one of the few inland ports of entry in 1831. 

Wheeling has numerous cultural resources, Oglebay Park, with more than 1,500 acres, is recognized as the only self-sustaining 

municipal park in operation . It serves as a national model for 

municipal parks. Another city park, Wheeling Park, with an additional 406 acres, Oglebay Institute, the Wheeling Symphony, WWVA and Jamboree U. S.A., six historic districts and numerous historic structures listed on the National Register of Historic 

Places , and our fine Victorian Architecture all constitute 

treasures enjoyed today by not only Wheeling's citizens, but by 

three million visitors yearly from all over the nation, as well as Canada and other countries. Many of Wheeling's seminal 

industries--steel, glass manufacturing , and cigar making such as the manufacturers of the famous "Wheeling Stogies" are still 

operating today as they have f or over 100 years . 

When this nation was involved in that great struggle for survival 

during the Civil War, the citizens of Western Virginia met in 

Wheeling in the Federal Custom House and established a new state, The Restored State of Virginia, which ultimately became 

the State of West Virginia,and Wheeling served as the capital of 

The Restored State of Virginia for two years and the first 

Capital of the State of West Virginia. The Custom House, now West 

Virginia's Independence Hall, has also been designated a National 

Historic Landmark . Wheeling played a role in the development of 

the great State of West Virginia much like Williamsburg did in 

the development of the great State of Virginia . 

All of these resources provide an excellent opportunity for the 

interpretation of nineteenth century America . 

We feel confident the Plan best represents the interests of 

everyone in recognizing the special importance of the history and 

development of the Wheeling Area in the cultural heritage of the 

Nation, that it provides a framework to assist the City of 

Wheeling and other public and .private entities and individuals in 
138 

the city to preserve, enhance and interpret its extant resources, 

and that it does so in a way not to constitute a continuing 

financial or management burden to the federal government, but 

rather in a way consistent with the Park Service ' s plan for 

future heritage areas. 

We urge passage of the Wheeling Heritage Bill . 
139 

Mr. VENTO. Thank you, Mr. Cassidy. 

Ms. Payne, I have your statement, and if you want to summarize 

it, that would be helpful in terms of facilitating the hearing. So 

please proceed. 

STATEMENT OF REBECCA J. PAYNE 

Ms. PAYNE. Thank you, Mr. Chairman. 

My name is Rebecca Payne, and I want to express sincere appreciation for the opportunity to speak with you and also to thank you 

for your interest in and consideration of this issue. 

I would certainly be remiss if I did not also express-consideration 

and appreciation to Congressman Mollohan for his introduction of 

this bill and also to Congressman Rahall for his continued interest 

in heritage development throughout West Virginia. I am director of West Virginia Independence Hall for the West 

Virginia Division of Culture and History, Department of Education 

and the Arts. 

West Virginia Independence Hall was completed in 1859, having 

been constructed by the Federal Government as the Wheeling Cus- tom House. West Virginia Independence Hall is a National Historic 

Landmark in recognition of its engineering and architectural significance and for its role as the Union-loyal capital for Virginia and 

birthplace of the State of West Virginia during the Civil War. 

My responsibility today is to provide you with a description of 

the national significance of the resources in Wheeling and to explain why these resources and their interpretation justify the designation of Wheeling as a National Heritage Area. 

I am sure you wonder, Why Wheeling, West Virginia? As an answer, let me give you a very brief overview of Wheeling's development. 

Prior to settlement by Europeans, the area was primarily used 

as a hunting ground for a number of Native American tribes. The 

first Europeans to settle in what became Wheeling arrived in 1869, establishing residences and forts. 

Because of its location on the Ohio River and the Wheeling creek 

system, Wheeling flourished, and by 1800 the population was 500. 

The river was the primary means of transportation prior to the 

road construction, and Wheeling served as the northern terminus 

of the Ohio River due to the summer dry season and winter freezing. 

When the Federal Government began its first highway project, 

the route for the National Road was selected to intersect with the 

Ohio River network. Terminating in Wheeling in 1818, the National Road was the only established route for overland travelers 

and goods in westward expansion. Approximately 90 percent of all 

travelers followed the National Road. 

Imagine, if you will, only one route from the east for all travelers 

and goods as the country was growing westward. This would have 

been the traffic level through Wheeling during most of the 1700s. 

Many of these people also decided to settle in Wheeling because by _ 1820 the population had increased to 1,500 people. _ The presence of abundant natural resources in the Wheeling area 

added to its growth and development. For example, the high qual-
140 

ity silica sand fostered the first commercial potteries which were 

established in the mid-18-teens. 

This was also the beginning of one of Wheeling's more intricate 

contributions. Window glass, hollow wear, and eventually flint 

glass, better known today as lead crystal, were readily manufactured in Wheeling. Later, the formula for lime glass was perfected 

in Wheeling, revolutionizing the pressed glass industry. Colored 

and decorative glass were becoming popular, and by 1879 Hobbs 

Brockunier of Wheeling was noted as the largest glass company in 

the United States. Numerous other companies including Warwick, Wheeling Tile, 

and Central Glass also thrived during Wheeling's heyday of glass 

production. The abundance of coal also provided resources for much 

needed iron and eventually steel as the demand increased for nails 

and other building materials. 

Wheeling's first iron business was established by about 1832 

with the construction of Top Mill. Centre Foundry, which is still in 

operation today, was opened in 1840, and in 1851 Bailey Woodward 

and Company was opened. Today that company is still operating as 

La Belle Nail Works of Wheeling Pittsburgh Steel and is the largest producer in the world of cut nails. 

Tobacco was transported up the Ohio River to be made into stogies named for the Conestoga wagons and distributed regionally 

from Wheeling. M. Marsh and Sons opened in 1840 and is still in 

business today as is Bloch Brothers Tobacco, now part of Helme Tobacco Company. 

Through construction of the National Road, the first bridge 

across the Ohio River was not built until 1849. This was the 

Wheeling suspension bridge, now another of Wheeling's National 

Historic Landmarks and still a part of the State highway system. The suspension bridge encouraged even more traffic through the 

area. With the Ohio River, the National Road, and by 1852 the railroad, Wheeling was certainly the hub of transportation for the entire region and continued its role as gateway for goods and travelers heading west. By the late 1800s, Wheeling was also establishing itself as a melting pot with a diverse ethnic structure. The largest segment of the local population was German with German 

banks, German newspapers, German churches and breweries. 

Other nationalities also sought jobs and homes in Wheeling including people from Greece, Ireland, Poland, and Italy, all bringing 

their talents, cultures, religions, and traditions with them. Many of 

these traditions have survived and even flourished, with many 

churches continuing their individual festivals of food and music. 

Wheeling has what has been described as the greatest ethnic diversity in West Virginia with what has seemed to be a continuation 

of cultural pluralism rather than complete assimilation. 

The Civil War brought conflict to Wheeling. Though no military 

battles were fought there, all the questions of a border State were 

personally felt by the families and businesses in the area. The Federal Government had constructed the Custom House in 1859 and 

retained that structure as a foothold for control of the all-important 

railroad. Troops were encamped on Wheeling Island, and numerous 

officers who contributed to the cause of the Union had temporary 
141 

headquarters in Wheeling homes. A group of Union-loyal Virginians established a State government also in the Wheeling Custom House and eventually worked to bring about the formation of 

West Virginia. The war also allowed businesses to expand through 

numerous war contracts. 

By the 1880s, Wheeling was producing thousands of tons of iron 

products, particularly square cut nails. Nail plants in the Wheeling 

area produced one-third of the Nation's nail output and solidly 

dominated the nail market until after the Great Nail Strike of 

1885/86. 

Wheeling's period of greatest growth came with the industrial 

age. The National Road evolved into U.S. 40 and eventually Interstate 70, still a major east-west route. As is evident, Pittsburgh 

and other cities surpassed Wheeling. This allowed Wheeling to retain much of its built-in environment from the years before the 

skyscraper. La Belle Nail Works, Warwick Tools, Centre Foundry, 

M. Marsh and Sons, and Bloch Brothers Tobacco are just a few of 

the industries still in operation. 

So the question I initially set out to address: Why Wheeling, 

West Virginia? can best be answered by the explanation that 

Wheeling is an excellent example of a National Heritage Area. We 

are a living, breathing community with outstanding operating examples of what one could term the American experience. 

The growth and development of the country are embodied in 

Wheeling's growth and development from frontier town to transportation center, gateway for westward expansion, industrial growth, 

Civil War strife, birthplace of a State, and typical utilization of our 

natural resources. Yet we have maintained and fostered ongoing 

preservation of ethnic traditions and cultures, retained our built 

environment, and also fostered a tradition of environmental heritage. . Why Wheeling? Because the millions of people who currently 

visit Wheeling for its existing attractions and the many more millions who travel Interstate 70 should know the American experience of Wheeling as an early transportation hub, gateway, and industrial center. This heritage should be interpreted and recognized 

by having our existing and thriving resources designated as the 

Wheeling National Heritage Area. Thank you very much. 

[Prepared statement of Ms. Payne follows:] 
142 

TESTIMONY OF REBECCA PAYNE BEFORE THE 

U. S. HOUSE OF REPRESENTATIVES 

COMMITTEE OF NATURAL RESOURCES 

SUB-COMMITTEE ON NATIONAL PARKS, FORESTS AND PUBLIC LANDS 

FOR ~ESIGNATION OF THE WHEELING NATIONAL HERITAGE AREA 

NOVEMBER 16, 1993 
143 

My name is Rebecca Payne. I am Director of West Virginia 

Independence Hall for the West Virginia Division of Culture and 

History, Department of Education and the Arts. West Virginia 

Independence Hall was completed in 1859, having been constructed by 

the federal government as the Wheeling Custom House. The structure 

has been architecturally restored to the architect's original 

specifications, which were obtained from the National Archives. 

West Virginia Independence Hall is now part of the state museum and 

is open to the public on a daily basis with exhibitions and 

interpretive tours. The building is a National Historic Landmark in 

recognition of its engineering and architectural significance and 

for its role as the Union-loyal capitol for Virginia and birthplace 

of the State of West Virginia during the Civil War. 

My responsibility today is to provide you with a description of 

the national significance of the resources in Wheeling and to 

explain why these resources and their interpretation justify the 

designation of Wheeling as a National Heritage Area. I am sure many 

of you wonder--Why Wheeling, West Virginia? As an answer, let me 

give a very brief review of Wheeling's development. 

Prior to settlement by Europeans, the area was primarily used 

as a hunting ground by a number of Native American tribes. Though 

there are burial mounds in the region, none exist in the city and 

there have been no archeological findings of Native American 

habitation. 

The first Europeans to settle in what became Wheeling arrived 

in 1769, establishing residences and forts. Because of its location 

on the Ohio River and the Wheeling Creek system, Wheeling flourished 

in 1800 with a population of 500. The first shipyard was started in 
144 

1808, and steamboats arrived on a regular basis as early as 1811. 

The river was ~ primary means of transportation prior to road 

construction, and Wheeling served as the northern terminus of the 

Ohio River due to the summer dry season and winter freezing. When 

the federal government began its first highway project, the route 

for the National Road was selected to intersect with the Ohio River 

network. Terminating in Wheeling in 1818, the National Road was the 

only established route for overland travelers and goods in the 

westward expansion. Approximately 90% of all travelers followed the 

National Road. Imagine, if you will, only one route from the east 

for all travelers and goods as the country is growing westward. 

This would have been the traffic level through Wheeling during most 

of the 1800s. 

Many of these people also decided to settle in Wheeling because 

by 1820 the population had increased to 1,500. The Wheeling 

tradition of strong education began as early as 1814 with the 

founding of Linsly Academy known eventually as Linsly Military 

Academy and today is Linsly School. The need for food stuffs and 

hardware allowed for the establishment of various wholesale and 

retail businesses. 

The presence of abundant natural resources in the Wheeling area 

added to its growth and development. The high quality silica sand 

fostered the first commercial potteries which were established in 

the mid 18-teens. Settlers heading west carried goods in crockery, 

which could not survive the trip across the mountains. This brought 

the demand for pottery upon travelers' departure from Wheeling. 

This was also the beginnings for one of Wheeling's more intricate 

contributions. Window glass, hollow-ware, and eventually flint 
145 

glass, known today as lead crystal, were readily manufactured in 

Wheeling. Later, the formula for lime glass was perfected in 

Wheeling, revolutionizing the press glass industry. Colored and 

decorative glass was becoming popular and, by 1879, Hobbs Brockunier 

of Wheeling was noted as the largest glass company in the United 

States. Numerous other companies including Warwick, Wheeling Tile, 

and Central Glass also thrived during Wheeling's heyday of glass 

production. 

The abundance of iron ore and coal also provided resources for 

much needed iron and eventually steel, as the demand increased for 

nails and other building materials. Wheeling's first iron business 

was established by about 1832 with the construction of Top Mill. 

Centre Foundry, which is still in operation today, was opened in 

1840. And in 1851, Baily, Woodward and Company was opened. Today, 

that company is still operating as La Belle Nailworks of Wheeling 

Pittsburgh Steel, and is the largest producer in the world of cut 

nails. 

Tobacco was transported up the Ohio River to be made into 

"stogies," named for the conestoga wagons, and distributed 

regionally from Wheeling. M. Marsh and Sons opened in 1840, and is 

still in business today, as is Bloch Brothers Tobacco, now part of 

Helme Tobacco Company. 

Though construction of the National Road continued to Vandalia, 

Illinois, the first bridge across the Ohio River was not built until 

1849. This was the Wheeling Suspension Bridge, now another of 

Wheeling's National Historic Landmarks, and still a part of the 

state highway system. The Suspension Bridge encouraged even more 

traffic through the area, as ferrying was no longer necessary. 
146 

However, the bridge added to the rivalry with Pittsburgh, which was 

well established. Those boats which could have continued up the 

Ohio River, could not pass under the Suspension Bridge, until the 

development of smoke stacks which would tilt. The City of 

Pittsburgh even sued the City of Wheeling to remove the bridge until 

Congress established the National Road and the Suspension Bridge as 

a postal route. 

The rivalry between the cities continued with arrival in 

Wheeling of the railroad in 1852. The route for the Baltimore to 

Ohio River railroad was to have been through Pittsburgh, but that 

was blocked by the State of Pennsylvania with the construction of 

the Pennsylvania Railroad to Pittsburgh. 

With the Ohio River, the National Road and now the railroad, 

Wheeling was certainly the hub of transportation for the entire 

region, and continued its role as gateway for goods and travelers 

heading west. By the late 1800s, Wheeling was also establishing 

itself as a melting pot with a diverse ethnic structure. The 

largest segment of the local population was German, with German 

banks, German newspapers, German churches, and breweries. Other 

nationalities also sought jobs and homes in Wheeling, including 

people from Greece, Ireland, Poland, and Italy, all bringing their 

talents, culture, religions and traditions with them. Many of these 

traditions have survived and even flourished, with many churches 

continuing their individual festivals of food and music. The Upper 

Ohio Valley Italian Festival is the most popular, though St. John's 

Greek orthodox, Our Lady of Lebanon, Our Lady of Perpetual Help 

Ukrainian Church, and others all offer celebrations at least once 

each year. Wheeling has what has been described as the greatest 
147 

ethnic diversity in West Virginia, with what has seemed to be 

continuation of. cultural . pluralism rather than complete 

assimilation. This diversity is threatened by extinction, however, 

with a recently announced plan to close a number of these churches. 

Thanks. to current federal funding for the Wheeling Heritage Area, 

plans are proceeding to conduct an ethnographic survey to expand 

celebrations of Wheeling's ethnic diversity by July 4, 1994. 

The Civil War brought conflict to Wheeling. Though no military 

battles were fought there, all the questions of a border state were 

personally felt by the families and businesses in the area. The 

federal government had constructed the Custom House in. 1859, and 

retained that structure as a foothold for control of the all 

important railroad. Troops were encamped on Wheeling Island and 

numerous officers who contributed to the cause of the Union had 

temporary headquarters in-wheeling homes. The group of Union-loyal 

Virginians established a state government, also in the Wheeling 

Custom House, and eventually worked to bring about the formation of 

West Virginia, as the "Child of the Storm" as the state was 

poetically described. 

The war also allowed businesses to expand through war contracts 

which provided a much needed boost to the local economy. Wagon 

manufacturers, grocers, textile factories and hardware companies 

flourished during those difficult years. By the end of the war, 

Wheeling boasted the following businesses: seven iron mills, two 

railroad iron works, severn foundries, · five glass works, ten 

breweries, six tanneries, three paper mills, two oil distilleries, 

seventeen stogie makers, four steam saw mills, three planing mills, 

three sash and blind factories, plus suppliers of woolen goods, 
148 

clothing, furniture, harnesses and lead pipe. Though Wheeling had 

felt deeply the personal conflict of war, the city continued to 

thrive in what was to be the height of development. 

By the 1880s, Wheeling was producing thousands of tons of iron 

products, particularly square cut nails. Nail plants in the 

Wheeling area produced one-third of the nation's nail output and 

solidly dominated the nail market until after the Great Nail Strike 

in 1885-1886. Even after the cut nail dropped in popularity, the 

iron and steel industry in Wheeling continued to be important 

because the mills were able to focus on manufacturing steel 

fabricating products. 

Though use of the railroad had greatly surpassed the travel on 

the National Road, improvements to the Ohio River began in 1874 with 

the construction of a dam between Pittsburgh and Wheeling. This 

guaranteed a channel of adequate depth for increased traffic, and 

further solidified the continued growth of industry in Wheeling, due 

to the abundant natural resources and labor. 

Wheeling's period of greatest growth came with the industrial 

age. Population continued to increase, and the use of the area's 

coal resources brought added development. The National Road was 

eventually improved in the 1920s and '30s with construction of U.S. 

40, and eventually Interstate 70, still a major east/west route. 

However, as is evident, Pittsburgh and other cities surpassed 

Wheeling, which allowed Wheeling to retain much of its built 

environment from the years before the skyscraper. The 1990 census 

reports that ov~r 56' of our residential buildings were constructed 

before 1939. This was housing for workers and industrialists alike. 

La Belle Nailworks, Warwood Tool, Centre Foundry, M. Marsh and Sons, 
149 

and Bloch Brothers Tobacco are just a few of the industries still in 

operation. 

Today local organizations and state agencies provide extensive 

support through collections of archives and artifacts. A wide range 

of local groups have a wealth of information and appreciation for 

Wheeling's heritage. You have been given just two of the numerous 

publications relating some history of our built environment. 

So, the question I initially set out to address--Why Wheeling, 

West Virginia--can be best answered by the explanation that Wheeling 

is an excellent example of a National Heritage Area. We are a 

living, breathing community, with outstanding examples of what one 

could term "The American Experience." The growth and development of 

the country are embodied in Wheeling's growth and development, from 

frontier town, to transportation center, gateway for westward 

expansion, industrial growth, Civil War strife, birthplace of a 

state and typical utilization of natural resources. Yet we have 

maintained and fostered ongoing preservation of ethnic traditions 

and cultures, retained our built environment, because we did not 

experience urban renewal of the 1960s and '70s, and also fostered a 

tradition of environmental heritage: Wheeling Creek provided fish 

for re-population of the Potomac, and the Ohio River is a National 

Wildlife Habitat, over 200 species of birds use the islands as 

habitat or migratory stop over. 

Why Wheeling? Because the millions of people who curr~ntly 

visit Wheeling for its existing attractions, and the many more 

millions who travel Interstate 70, should know "The American 

Experience" of Wheeling as an early transportation hub, gateway, and 

for industrial center. This heritage should be interpreted and 
1~ 

recognized by having our ·existing and thriving resources designated 

as the Wheeling National Heritage Area. 

Thank you. 
151 

Mr. VENTO. Thank you, Ms. Payne, for your statement. 

Mr. Mcintire, I have your statement and have read it, and you 

can highlight it if you want or read it. 

STATEMENT OF PAUL T. MciNTIRE, JR. 

Mr. MciNTIRE. Thank you, Mr. Chairman. On behalf of the city 

of Wheeling, West Virginia, I would like to thank you and the committee for this opportunity to speak to you today in support of H.R. 

2843 establishing the Wheeling National Heritage Area. I would 

also like to extend sincere thanks to Congressman Mollohan and 

Congressman Rahall for their continued support and interest in 

this endeavor. 

As director of the Department of Development for the city of 

Wheeling, I am acutely aware of the economic conditions within the 

Wheeling area and the past and current trends, and I am very excited-in fact, extremely excited-about the potential of the Wheeling National Heritage Area plan to reinforce our current economic 

development efforts. 

The city of Wheeling has undergone dramatic change over the 

past 20 years, moving from an area once dependent on the coal and 

steel industries to a very diversified service-oriented economy. This 

change has been emphasized by the emerging tourism industry 

brought on primarily because of our rich stock of existent visitor 

resources as well as the aggressive initiatives by the people of 

Wheeling who recognize that cultural tourism is an important aspect of our local economic future. 

One of the most significant initiatives is the creation of the 

Wheeling National Heritage Area. The city of Wheeling, West Virginia, enjoys a rich heritage, a place where a diverse mix of people, 

culture, and natural resources has contributed to a long and exciting history, and it is a source of great civic pride. 

In the late 1980s, our community leaders recognized that there 

is a national story in Wheeling to be told, that part of the city's 

future may be tied to telling that story to residents and visitors, 

and that conserving Wheeling's heritage can and will maintain and 

enhance the city's character as well as its quality of life. It is ·also 

widely recognized that tourism is becoming a dynamic contributor 

to the local and regional economies. 

Encouraged by a group of Wheeling citizens to plan for a futur~ 

based upon the city's heritage, a cooperative effort has been established in 1989 among the city of Wheeling, the State of West Virginia, and the National Park Service. Wheeling City Council appointed a task force representing a broad base of community interest to guide this planning effort. 

The first of five objectives contained within the plan for the 

Wheeling National Heritage Area is-and I'll quote-"to create an 

environment in Wheeling which highlights the city's heritage and 

enhances future community growth in a way that conserves natural and cultural resources, provides new employment opportunities 

for Wheeling citizens, and fosters economic revitalization based on 

those resources." 

To this end, it is estimated that the heritage plan will have significant economic impact on the local area. Implementation of the 

plan will result in additional visitation and increased length of stay 
152 

for current visitors. An estimated 500,000 persons will visit the 

heritage area annually. Additional visitor expenditures in the local 

economy are estimate to exceed $20 million annually, and this is 

all in addition to our existing current tourism base. 

The investments represented in the plan represent the infusion 

of substantial construction into the community. The estimated investment in the district plans and transportation infrastructure 

should help leverage well over $100 million in private induced development. Construction of the proposed improvements will represent approximately 1,150 man years on construction-related work 

for the public service expenditure and well over 1,800 man years 

for the induced private development. In addition many, many fulltime jobs will be created in the local economy to service this increased tourism base. Finally, construction expenditures will generate direct and indirect expenditures within the Wheeling area 

through increased household earnings and business sales. 

In summary, the various public and private investments anticipated within the heritage program will have significant positive 

economic impacts over the next decade. A recent economic strategy 

prepared in a cooperative effort with representatives of city and 

county government, the Wheeling Area Chamber of Commerce, the 

Ohio Valley Industrial and Business Development Corporation, and 

many, many other interests identifies the Wheeling National Heritage Program as the centerpiece of Wheeling's economic development program. In closing, the community-wide participation and energy that has 

been invested in the heritage program to date is only the first step 

in the revitalization of Wheeling. 

Mr. Chairman, there is an air of excitement in Wheeling today. 

It is an excitement supported by the expectation of a bright economic future via our rich heritage and by the continued support 

over the last four years from Congress and the National Park Service. With your continued help and passage of the Wheeling heritage 

bill, we at the city are eager to take our city into the twenty-first 

century. Thank you. 

[Prepared statement of Mr. Mcintire follows:] 
Cil 

HERITAGE 

153 

WHEELI.O .ATIO•AL HERITAGE AREA 

WITNESS STATEMENT 11/16/93 

STATEMENT OF PAUL T. MCINTIRE, DIRECTOR OF THE DEPARTMENT OF 

DEVELOPMENT FOR THE CITY OF WHEELING BEFORE THE SUBCOMMITTEE 

ON NATIONAL PARKS, FORESTS, AND PUBLIC LANDS OF THE HOUSE 

COMMITTEE ON NATURAL RESOURCES CONCERNING H.R. 2843, A BILL TO 

ESTABLISH THE WHEELING NATIONAL HERITAGE AREA IN WEST 

VIRGINIA. 

Mr. Chairman, on behalf of the City of Wheeling, West 

Virginia, I want to thank you for this opportunity to speak to 

you in support of H.R. 2843, establishing the Wheeling 

National Heritage Area. 

As Director of the Department of Development for the City of 

Wheeling, I am acutely aware of the economic conditions within 

the Wheeling area and the past and current trends, and I am very excited about the potential of the Wheeling National 

Heritage Area plan to reinforce our current economic development efforts. 

The City of Wheeling has undergone dramatic change over the 

past twenty years, moving from an area once dependent on the 

coal and steel industries to a very diversified service 

oriented economy. This change has been emphasized by the 

emerging tourism industry brought on because of our rich stock 

of existent visitor resources, as well as the aggressive 

initiatives by the people of Wheeling who recognize that 

cultural tourism is an important aspect of our local economic 

future. 

One of the most significant initiatives is the creation of the 

Wheeling National Heritage Area. The City of Wheeling, West 

Virginia, enjoys a rich heritage. A diverse mix of people, 

culture, and natural resources has contributed to a long and 

exciting history that is a source of great civic pride. 

In the late 1980s, our community leaders recognized that there 

is a national story to be told in Wheeling - that one part of 

the City's future may be tied to telling that story to 

residents and visitors, and that conserving Wheeling's 

heritage can maintain and enhance the City's character and 

quality of life. It is also widely recognized that tourism is 

becoming a dynamic contributor to the local and regional economies. 
1M 

Encouraged by a group of Wheeling citizens to plan for a 

future based on the City's heritage, a cooperative effort was 

established in 1989 among the City of Wheeling, the State of 

West Virginia, and the National Park Service. Wheeling City 

Council appointed a Task Force representing a broad base of 

community interests to guide this planning effort. 

The first of five objectives contained within the Plan for the 

Wheeling National Heritage Area is, and I quote, 

"Create an environment in Wheeling which highlights the City's 

heritage and enhances future community growth in a way that 

conserves natural and cultural resources, provides new 

employment opportunities for Wheeling's citizens, and fosters 

economic revitalization based on those resources." 

To this end, it is estimated that the Heritage Plan will have 

significant economic impact on the local area. 

Implementation of this plan will result in 

additional visitation and increased length of 

stay for current visitors. An estimated 500,000 

persons will visit the Heritage Area. Additional 

visitors• expenditures in the local economy are 

estimated to exceed $20 million annually. 

The investments represented in the plan represent 

the infusion of substantial construction into the 

community. The estimated investment in the district 

plans and transportation infrastructure should help 

leverage well over $100 million in private induced 

development. 

Construction of the proposed improvements will 

represent approximately 1,150 man years on 

construction related work for the public sector 

expenditure and over 1,800 man years for the 

induced private development. In addition, full 

time permanent jobs would be created in the 

local economy to service the visitors. 

Construction expenditures will generate direct 

and indirect expenditures within the Wheeling area through increased household earnings and 

business sales. 

In summary, the various public and private investments 

anticipated within the Heritage Program will have significant 

positive economic impacts over the next decade. A recent 

economic strategy prepared in a cooperative effort with 

representatives of the City and County governments, Wheeling 

2 
155 

Area Chamber of Commerce, The Ohio Valley Industrial and 

Business Development Corporation, and numerous other 

interests, identifies the Wheeling National Heritage Area 

Program as the centerpiece of Wheeling's economic development 

program. 

In closing, the community-wide participation and energy that 

has been invested in the Heritage Program to date is only the 

first step in the revitalization of Wheeling. There is an air 

of excitement in Wheeling today, an excitement supported by 

the expectation of a bright economic future via our rich 

heritage and by the support over the last four years from 

Congress and the National Park Service. With your continued 

help and passage of the Wheeling Heritage Bill, we at th~ City 

are eager to take our fine city into the twenty-first century. 

3 
156 

Mr. VENTO. Thank you, Mr. Mcintire. 

Finally, we have Professor Emory Kemp. 

Welcome, and your statement is part of the record. Please proceed, Dr. Kemp. 

STATEMENT OF DR. EMORY L. KEMP 

Dr. KEMP. Thank you, Mr. Chairman. 

I wish at this time to recognize the leadership and support from 

Congressman Rahall and Congressman Mollohan in the Wheeling 

initiative. 

I guess I am serving as the cleanup batter, and I will try to keep 

my remarks brief, but I stand ready to answer any questions after 

the panel presentations that you may have. 

My name is Emory Kemp from West Virginia University, where 

I serve as the director of the Institute for the History of Technology 

and Industrial Archeology. As an engineer historian, I have been 

involved in the documentation, interpretation, and, in selected 

cases, the preservation of engineering and industrial sites for the 

past three decades. 

Since its founding in 1989, the Institute has been involved in 

more than 40 projects involving industrial sites stretching from 

New Jersey to New Orleans. In the course of our work, we have 

served the National Park Service, the U.S. Army Corps of Engineers, the Soil Conservation Service, the U.S. Forest Service, numerous State departments of transportation and other State level 

agencies, as well as private sponsors. Since the 1960s the Institute and I have been involved in various 

projects in Wheeling including the internationally recognized 

Wheeling suspension bridge completed in 1849 which is a World 

Heritage structure, the 1859 U.S. Custom House, the La Belle Nail 

Works, the Warwick Tool Company, the Wheeling Waterworks, industrial housing, and a comprehensive guide to Wheeling's rich industrial heritage. 

Recently we have been sponsors of the National Conference on 

Heritage Areas, a new development in partnership with the National Park Service. We are continuing our work with an Historic 

American Buildings survey documentation of the Custom House. 

That work goes on at the moment, and we stand ready to participate as fully as possible in this initiative in Wheeling. 

Wheeling stands as one of the premier historic industrial sites in 

the Nation. As mentioned, the road from Cumberland reached 

Wheeling in the first two decades of the nineteenth century and is 

symbolized by the completion of the suspension bridge in 1849. 

This was followed by the Baltimore and Ohio, which, after 24 years 

struggle over the Appalachians, was completed to Wheeling in 

1852. With the summer of navigation on the Ohio at Wheeling, the city 

was the confluence of three major transportation systems and appeared destined to become a major industrial center, surpassing 

Pittsburgh by the end of the century. 

One does not have time to elaborate on the historical significance 

of the myriad of industries represented in Wheeling. One can simply mention glass, pottery, tobacco, iron and steel, boat building, 

textiles, and transportation. The details are in this industrial 
157 

guide, and I would like to present this to you as part of the record, 

Mr. Chairman. 

Mr. VENTO. Thank you, Dr. Kemp, and we will put one in the 

committee files. I did receive it. Thanks. Dr. KEMP. Thank you. 

The crown jewels of the industrial past of Wheeling are clearly 

the suspension bridge and the U.S. Custom House. The bridge was 

built by Charles Ellot, Junior, and completed, as I have said, in 

1849. At that time, it was the world's largest suspension bridge 

and established America in a leadership role in suspension bridge 

design and construction which lasted for more than a century. 

The Custom House, built by the U.S. Treasury under the direction of its first architect, A. B. Young, is significant in its own right 

as a symbol of the Federal Italianate style used throughout the 

country in the 1850s. In addition, it was a very early skeletal frame 

which was the predecessor of skyscrapers which were to arise from 

the ashes of the Great Chicago Fire. The long-span suspension 

bridge and the skeletal frame structure are two major contributions 

American engineers made to the world in the nineteenth century. 

In addition, the Custom House, as noted, served as the location of 

a series of meetings which resulted in the formation of the new 

State. 

Much remains then of this period from the 1820s to the 1880s 

in terms of houses, buildings, roads, and railways, factories, and 

other vestiges of our industrial past. Few places can claim such a 

rich building stock of the period anywhere in the Nation. In addition to the visible remains of this period, there is a wealth of documentary evidence, including maps, photographs, published materials, and manuscript documents on various phases of Wheeling's 

history. Much work has already been done documenting Wheeling's history by the Historic American Buildings Survey, the Historic American Engineering Record, and much documentary work that is done 

by my Institute, and a great deal of local historical work has been 

done by citizens in Wheeling. There is no lack of historical information for further developing the history of one of the Nation's most 

important antebellum centers, I think we can do this with great 

historic integrity. 

Wheeling offers, thus, one of the most attractive possibilities for 

a new partnership development which would aid not only Wheeling 

as a historical center but, which has been said many times this 

morning, as a prototype for the entire Nation. Thank you, sir. 

(Prepared statement of Dr. Kemp follows:] 

78-797 0 - 94 - 6 
158 

Institute for the History of Technology and Industrial Archaeology 

West Virginia University 

College of Arts and Sciences 

November 12, 1993 

My name is Emory Kemp from West Virginia University where I 

serve as the director of the Institute for the History of 

"Technology and Industrial Archaeology. As an engineer/ historian, 

I have been involved in the documentation, interpretation, and, in 

selected cases, . the preservation of engineering and industrial 

sites for the past three decades. 

Since its founding in 1989, the Institute has been involved in 

more than 40 projects inv olving industrial sites, stretching from 

New Jersey to New Orleans . In the course of our work, we have 

served the National Park Service, U.S . Army Corps of Engineers, 

Soil Conservation Service, U.S. Forest Serv ice, numerous state 

Departments of Transportati on and other state level a g e ncies, as 

well as private sponsors. Since the 1960s, the Institute and I 

have been involved in various projects in Wheeling, including the 

internationally recogni z ed National Landmark, Wheeling Suspension 

Bridge, circa 1849, the 18 59 U.S. Custom House , the LaBelle Nail 

Works, the Warwood Tool Company, the Wheeling Water Works, 

industrial housing, and a comprehensive guide to Wheeling's rich 

industrial heritage . Re c e ntly we have been the spons ors of the 

National Conference on Heritage Areas, a new development with the 

Park Service. 

Wheeling stands as one of the premier historical industrial 

sites in the nation. The road from Cumberland reac hed Wheeling in 

1816, followed by the B&O, which after a 24 year struggle ov er the 

Appalachians, was completed to Wheeling in 1852 . With the head of 

summer navigation on the Ohio at Wheeling, the city was the 

confluence of three important transportation systems and appeared 

destined to become a major industrial center, surpassing Pittsburgh 

by the end of the century . One does not have time to elaborate on 

the historical significance of the myriad of industries represented 

in Wheeling; one can simply mention glass, pottery, tobacco, iron 

and steel, boat building, tex tiles, and transportation. The crown 

jewels of the industrial past in Wheeling are clearly the 

suspension bridge and the U.S. custom House. The bridge was built 

by Charles Ellet, Jr. and completed in 1849. At that time, it was 

the world's longest suspension bridge and established America in a 

leadership role in suspension bridge design and c ons truction, which 

lasted for more tha n a century. The Custom House , built by the 

304 293-251 3 o 1535 Mileground c P.O. Box 6305 o Morgantown, WV 265Q6.6305 

Equal Opportunity I Allirmative Action Institution 
159 

u.s. Treasury under the direction of its first architect, A.B. 

Young, is significant in its own right as a symbol of the Federal 

Italianate style used throughout the country in the 1850s. In 

addition, it has a very early skeletal framework which was the 

predecessor of the skyscrapers, which were to arise from the ashes 

of the great Chicago fire. The long-span suspension bridge and the 

skeletal frame structure are two major contributions American 

engineers made to the world in the nineteenth century. In 

addition, the Custom House served as the location for a series of 

meetings held during the Civil War which resulted in the formation 

of the new state in 18 63. These events took place in the federal 

courtroom of the U.S. Custom House which has been carefully 

restored to its Civil War condition. After much wrangling, the 

capitol of the "war born" state moved to Charleston in the 1880s. 

Thus, the period from the 1820s, with the completion of the 

National Road, to the 1880s represents Wheeling's flourishing 

period· as a leading industrial, transportation, and c ommercial 

center. Much remains of this period in terms of houses, buildings, 

roads and railway s, factories, and other vestiges of its industrial 

past. Few places can clai m such a rich building stock of this 

period anywhere in the nation. In addition to the visible remains 

of this period, there · is a wealth of documentary evidence, 

including maps, photographs, published materials, and manuscript 

documents on various phases of Wheeling's history. Much work has 

already been done in documenting Wheeling's history by the Historic 

American Building Survey/ Historic American Engineering Record, 

documentary work by the Institute and a great deal of local 

historical work done by citizens in Wheeling. There is no lack of 

historical information for further dev eloping the history of one of 

the nation's most important antebellum industrial centers. 

Heritage are as represent a new initiative on the part o ·f the 

Park Service and others interested in preserving the nation's past. 

This initiative esta blishes a partnership of, not only, public 

agencies at the federal and state level but also private 

individuals and 9rganizations. It represents the possibility of 

whole heritage areas being designated after careful evaluation to 

federal standards established through proposed legislation. Not 

only will we be preserving our past but, equally important, 

providing a exciting new possibility for local development in terms 

of tourism, commerce, and industry . Activities which, at best, were viewed as despera te have now come together to form a powerful new partnership. Wheeling offe rs one of the most a ttractive 

possibilities for new partnership dev elopment which would aid, not 

only, Wheeling as a historica l center but serve as a prototype for 

the entire nation . 
160 

Mr. VENTO. Just to get an idea here, Dr. Kemp or others on the 

panel, the area that is to be designated is the entire city under this 

heritage area concept? 

Mr. Mcintire? Ms. Payne? Mr. Cassidy? 

Mr. MciNTIRE. I would like to answer that. There aren't any defined boundaries ·for the heritage area. It isn't, in effect, the city 

as a whole, but, more importantly, it is the location of those existent historical resources that are the core to Wheeling's history. 

That is primarily located on our waterfront, in our downtown, and 

the areas immediately to the north and south and west of our 

downtown, including Wheeling Island. 

Mr. VENTO. Did you say you had five historic districts in the city? 

Mr. MciNTIRE. Six. 

Mr. VENTO. Six-pardon me-which is unusual. 

Have you had any effort to try and tie those together in any 

other way, or it just wouldn't work? I mean this is obviously an effort by a designation of an area in terms of tying these pieces together and doing something special with them. But these are all 

quite distinct and separate geographically, I take it-()h, they overlap, I see. And they are pretty much on the waterfront. Am I looking at that correctly? Mr. Mcintire, please enlighten 

me. 

Mr. MciNTIRE. Yes, they are primarily located on the waterfront, 

although we are continuing with additional studies to designate additional historic districts, leading out National Road toward Pennsylvania, but most of the existing historic districts are in or near 

downtown or adjacent to our waterfront, including Wheeling Island. Our whole downtown is a historic district. 

Mr. VENTO. Yes. So there are no boundaries proposed in the legislation that has been submitted by Congressman Mollohan or the 

Senate counterpart. 

Mr. MciNTIRE. That is correct. 

Mr. VENTO. We would have to deal with the scope of that in some 

form or fashion here in terms of a comfort level in terms of Members and any type of designation, so I hope we could work at that. 

I note that this legislation has been given a lot of attention and 

a lot of thought. Can you explain the basis for that? Are you prepared to explain the basis for not having a boundary? If there is 

an explanation, I would like to know. 

Mr. MciNTIRE. I would ask co-chairman Pat Cassidy to respond 

to that. 

Mr. VENTO. Sure. Mr. Cassidy? 

Mr. CASSIDY. Yes, Mr. Chairman, actually the plan does call for 

boundaries such as designated by the Secretary of the Interior, if 

you will notice in the designation. Generally, the plan itself that has already been developed allocates, identifies the resources, so does set a boundary, and the 

boundary is generally predominantly the downtown area. In fact, 

the legislation talks about an emphasis on the downtown historic 

area which includes a number of historic districts. But by actually specifying in the plan the resources that the plan 

intends to preserve, that being the river, that being the waterfront 

area, the port of entry area, that being the civic area, the cross-
161 

roads area of Wheeling, it really defines it in that way. Although 

that particular boundary attachment is not part of the legislation, 

I think that is easily obtained just by virtue of the terms of the 

plan itself. 

Mr. VENTO. Wheeling and these areas are all within one political 

subdivision of the city of Wheeling. Is that correct? 

Mr. CASSIDY. Yes, sir. 

Mr. VENTO. You have developed various types of plans and land 

use and zoning and everything compatible with these historic districts that you have developed or those that you have proposed to 

develop. Is that accurate? 

Mr. CASSIDY. That is in the process of being developed. Yes, we 

do have that legislation now. We have a landmarks commission. 

We have the legislative infrastructure to do it once we get started. 

Mr. VENTO. You mean the legislative infrastructure within your 

city? 

Mr. CASSIDY. Yes, on a local level. 

Mr. VENTO. Becaus~ that is not something that we need to act 

on here nationally, is it? 

Mr. CASSIDY. No. Mr. VENTO. So that is on track involving planning. 

Now I note that you had set up the nonprofit corporation. You 

heard my comments about it earlier. I don't need to repeat that. 

Do you have any comments about that, Mr. Cassidy? 

Mr. CASSIDY. Yes I do, Mr. Chairman, a couple of comments. The 

first one is that what intrigued us in the Wheeling initiative on 

this is that we have a history of having done it already. 

We have a city, the city of Wheeling, with a budget of about $15 

million. We have a park system, the self-sustaining park system I 

talked about in Wheeling, with a budget of approximately $16 million. It is larger than the city's budget. It is self-sustaining. This 

is one of the jewels of Wheeling, the Oglebay Park system, as I am 

sure the chairman may have even heard. 

Mr. VENTO. You have a private nonprofit corporation running 

that for you? 

Mr. CASSIDY. No, it is a commission, but it is a charter commission set up by State legislation much like this would be. Although 

a different, a private corporation, nonprofit, it would also get its 

authority in the legislative process, this one of course being Federal, but it works, and the chairman, yourself, caught it earlier. A 

local group can do it because they will have the same fiduciary duties. It will be a quasi-public situation. They will be handling Federal monies. 

Our plan calls, · however, for representation of the Secretary or 

his designate but without requiring the Federal Government to 

play some large role in terms of continuing maintenance, operational control, et cetera. 

Mr. VENTO. If the State or the local government wants to set up 

some sort of nonprofit corporation through that, I think that is appropriate. 

Fundamentally, I think what we ought to look at in terms of 

clarification here is compact between the State if necessary and/or, 

more precisely, the city of Wheeling, and you then would have a 
162 

direct relationship with the national government in this Federal 

type of role. 

I don't think you need, for instance, the Department of the Interior making the appointments or sitting. I think they would probably have a proper role. Based on the historic preservation, we can 

reference this SHPO or reference the other qualifications definitive 

with regards to what can happen in your areas. If you want to set 

up that sort of structure that works for you, I don't have any concerns about it. I mean that is something that could fit within the 

framework of what you want to do. 

But that is up to the local governments to maybe cede that particular power, or the State, rather than have us get into a habit 

of having that. I would like to get something done where we would 

have some legislation that would not have us in that role of setting 

it up and giving status to some things that may not fit the needs 

of Wheeling or the needs of Paterson, for that matter. 

Dr. Kemp, you point out correctly that there are quite a few 

landmarks here. You point out the suspension bridge. What is the 

condition of that particular structure, the bridge? It is 140-some 

years old. Dr. KEMP. It still serves local traffic. It is the responsibility of 

the West Virginia Department of Transportation and the Division 

of Highways. 

Mr. VENTO. Yes. The life expectancy of this type of structure I 

have no idea. I know there are quite a few suspension bridges over 

the Hudson when I was up there a couple of weeks ago. 

Dr. KEMP. We will be doing a rewrapping of the cables probably 

starting this spring. We expect this bridge to last in perpetuity if 

we keep the maintenance up, and the funds for that are funneled 

through the Federal Highway Administration and the Division of 

Highways in West Virginia, so that is not a Park Service initiative. 

Mr. VENTO. Yes, I understand that the type of suspension or 

cable bridges are sort of yesterday's technology i~ terms of the best 

way to build a bridge. 

Dr. KEMP. I wouldn't say that at all, no. The world's long-span 

bridges are certainly suspension bridges, and there are a number 

of those, and I could mention them on a worldwide basis-New 

Zealand, Japan, Hong Kong. 

Mr. VENTO. No, I know, but is it still a currently used technology? 

Dr. KEMP. Oh, yes. That is what these long-span bridges are. 

There are no competitors in structural form. But this really does 

represent America's ascendancy in this particular field. 

Mr. VENTO. Well, I was curious about it because there was a proposal on the agenda. 

You have actually worked from the West Virginia University, 

and you serve this as director and have worked in consultation 

with the Park Service and with the Wheeling Historic District and 

structure. 

Now do you see the need here for some other local unit of power 

or authority here to carry out this responsibility that is envisioned 

in this legislation? They have this corporation set up. Do you feel 

that that is absolutely imperative that that be there? 
163 

Dr. KEMP. I don't think it is imperative from the point of view 

of the Institute's involvement. We do, as I indicated in my statement, documentation, interpretation, and preservation. We offer 

services as historians and as preservation engineers. So I really 

wouldn't want to comment. I think we can work with a variety of organizational initiatives. I am quite happy with what has been proposed and feel that we 

can contribute significantly. 

Mr. VENTO. Yes. In concept, it seems to me to be a lot of language, and I am concerned about what the interpretation of it 

might be of it when you write that much in law. 

Dr. Kemp, you have gone through and suggested that this is industrial history. Do we have to redefine industrial history? We 

have any number of proposals on the table these days to the Park 

Service as being industrial history. How can we distinguish which 

is the most significant? 

Dr. KEMP. I think my list now includes 96 areas that have some 

potential for being-if you will excuse me-for being the birthplace 

of the American Industrial Revolution, and they are all vying for 

this title. It is very clear that not only do we need heritage area legislation 

but we need contextual studies of various industries so that we can 

really identify the most significant places in the country. We at the 

Institute are working on the coal industry, which is not surprising 

coming from West Virginia, but there are various other industries 

that really need this kind of contextual history, and in many cases 

it is not available. This should be tied in with this heritage area 

concept, and it can't really be done overnight. There are various people working on specific industries, some of 

the basic industries, which are now associated with the Rust Belt. 

For instance, iron and steel, coal, textiles, all need this kind of contextual history. Otherwise, we are really considering one area after 

another and trying to establish the significance on a one-to-one 

basis. 

Mr. VENTO. Yes. The problem is, it would be nice to have that 

whole study and definitive information before us so that we could 

look at them and decide what is uniquely local or State and what 

is national in terms of, if we were to select or pick one out, we of 

course have done something for the copper mining and so forth 

which didn't consider what was happening in Montana or Arizona, 

ironically. So that is the sort of problem we get into. 

But here, with the Federal heritage area corridor, you might look 

to the local government and the fact that they have made commitments with any number of historic districts and other activities. 

So I don't think you could probably go too far wrong with this 

in terms of depending upon the commitments we extract, as it 

were, from the Park Service and/or, more precisely, from the local 

and State government concerning what their commitments are. 

Dr. KEMP. I think there are a couple of factors here. One is not 

only to establish the significance of the particular site or particular 

corridor but to see what building stock is actually left, and, of what 

is left, what is really important, and also to show local initiative 

which you have mentioned several times this morning as being an 

important ingredient. So there are several things that need to come 
164 

together if you are going to have a successful heritage corridor or 

heritage area. 

Mr. VENTO. Ms. Payne, what is the status of the Custom House 

or the Independence Hall or building? Is it a privately owned building? 

Ms. PAYNE. It is a part of the State museum system operated by 

the State of West Virginia and is owned by the State of West Virginia. Mr. VENTO. Is it a museum? 

Ms. PAYNE. Yes, it is operated as part of the State museum. We 

are open on a daily basis with exhibitions and living history tours. 

Mr. VENTO. So you have a number of visitors there a year. Did 

you say the number that go through? 

Ms. PAYNE. I did not say the number. It is approximately 30,000 

people per year come through the building. 

Mr. VENTO. So it is one of the major attractions. You had pointed 

out 100,000 utilize and visit the site or sites in Wheeling today. 

I am astounded by this park, which apparently is the only selfsustaining park. What is the attraction there, Mr. Cassidy? 

Mr. CASSIDY. Well, if I could just correct that, maybe I said it 

wrong, but actually Wheeling gets several million visitors a year to 

the different attractions in Wheeling. 

Mr. VENTO. Okay, maybe I misunderstood. 

Mr. CASSIDY. No, no. I had mentioned 100,000 but in connection 

with the people who cross the Ohio River into Wheeling and out 

of Wheeling every day. 

Mr. VENTO. Well, count them all. 

Mr. CASSIDY. Well, that goes with your second question. That is 

why I mentioned it, which is, what is the attraction at the park. Oglebay was a gift to the city by one of the leading citizens, Earl 

Oglebay, in the last century, and the city has taken that park and 

turned it into really Oglebay Resort. 

It is a public entity, as I said, chartered by the State, but at the 

present time it is utilized not only by residents but by an enormous 

number of visitors from around the world and the country, and, in 

addition, it serves as the place for a lot of national seminars. In 

fact, the park systems have their conferences there of other parks 

throughout the United States. 

It is a large operation. It is funded generally through the lodging 

facilities, the restaurant facilities, the attraction facilities. They 

have a new glass museum where they actually do glass retail sales, 

and as I said, the budget is actually larger than the city's. 

Mr. VENTO. Yes, so it is a conference center as well as a park. 

Mr. CASSIDY. Yes. 

Mr. VENTO. With recreation and other opportunities. · And I suppose some of the buildings and some of the structures 

are historic structures. 

Mr. CASSIDY. Well, some of them are, yes, the Mansion Museum, 

the mansion itself, the Oglebay Mansion, and there are a number 

of others. There are also some newer buildings, and the Wheeling 

Park Commission has developed essentially as this idea of self-sustaining really. That is where we picked up the idea that if you did 

a local group, be it a commission or a corporation with whatever 

requirements would be necessary, that the Secretary of the Interior 
165 

and the State would be happy with, it can be done. In other words, 

you don't spend more than you can bring in. That is the whole concept. 

Mr. VENTO. It is not difficult for us to just suggest in the legislation that there would be no operation and maintenance funds, and 

that you can set up whatever type of structure you want locally to 

implement the plan. I don't think you expect the presence of a significant number of Park Service personnel. 

Mr. CASSIDY. No. Mr. VENTO. Other than, you may want some technical assistance 

from time to time or some sort of presence, I mean unless you have 

a unit of the National Park System within Wheeling, unless something is designated that is now a national landmark. 

I understand that the Custom House at one time was considered 

for such designation. Perhaps there are other structures that could 

or would. 

But that isn't really what the purpose of this is, and I wouldn't 

want to expand it in that direction. I think that probably the better 

purpose is to try to bring about an integration and a tying together 

relationship between these areas and the historic landmarks, and 

the Park Service could or may take an active interest in doing so. 

Dr. Kemp, are there major conceptual and practical hurdles to 

better preservation of such industrial heritage? 

We are facing this particular problem with any number of proposals, including, as you know, the study that occurred around 

Pittsburgh concerning it, which I think is especially meritorious. 

We have other areas, some have been designated, some have not. 

Can you shed any light for the committee on this? 

Dr. KEMP. Industrial preservation is a major problem from several points of view. Our previous work in historic preservation in 

this country has generally been architectural and to celebrate 

prominent people, national leaders. One thinks of Mount Vernon, 

Monticello, and some of the great captains of industry. We have 

moved into a much more social context dealing with social history, 

and that brings in our industrial heritage. One of the big problems is, when you get a large industrial site, 

what are you going to do with it, like Homestead, or the Akron Air 

Dock as a matter of fact, which is one of the great challenges in 

industrial archeology. Mr. VENTO. I am not aware of that. What is it? 

Dr. KEMP. The Akron Air Dock in Akron held zeppelins, so you 

could play two Superbowls simultaneously in this building, which 

requires roughly a million dollars a year to maintain. 

Mr. VENTO. Well, you appreciate my problems. Dr. KEMP. Yes, exactly. I know exactly what your problem is. 

One of the advantages of Wheeling is that the community is now 

roughly the same size it was in the nineteenth century, and the industrial heritage that we have there is on a smaller scale and 

much more manageable for adaptive reuse and for interpretation. Mr. VENTO. I understand that, but I wanted some help with the 

mills up and down the Quinebaug and the Shetucket River in Connecticut where they have got I don't know how many million 

square feet of mill buildings that are sitting there empty for all 

practical purposes. 
166 

I know adaptive reuse, but I have got millions of square feet 

here. If we could eliminate shopping malls and put them inside of 

these, that would be my preference. 

Dr. KEMP. And senior citizen housing has a limit as well. 

Mr. VENTO. Right. There are just so many of them to go around, 

senior citizens. 

Dr. KEMP. Precisely. It is a major problem. Do you preserve simply by documenting and preserving a record? Can you use it adaptively, or are structures really so significant that they need to be restored to their former glory, like the Custom House, and should 

this be done publicly or privately? 

Mr. VENTO. Yes. When these things aren't economic, guess who 

they want to give them to? 

Dr. KEMP. I know. 

Mr. VENTO. To the city government, to the State government, 

and finally to the national government, and quite appropriately, 

and so that is the dilemma in terms of designation and recognizing 

this. 

I think the scale here is different, and there is a lot of work that 

has been done. I need not delay the panel any longer, but I did 

want to get a sense of your views on this, Dr. Kemp: You have been 

very helpful and are a recognized expert in your area, and the others have obviously come a long way in terms of the plans and the 

resources of the Park Service. 

I am asking some fundamental questions about the very nature 

of what has been suggested in terms of this corporate structure, 

but I assure you that they are important questions in my mind and 

meant to actually have some relationship in terms of the policy 

that we may in fact move on here. I need to develop that in terms 

of a general pattern so we don't put in place one more structure 

that is not related to an overall policy with regard to this. 

So I appreciate all of your patience and your attempts to respond. 

Mr. Mcintire, I did want to comment that I think that the economic development aspect of such areas, unlike what we might do 

in terms of a Park Service unit designation, is something that 

needs to be reviewed and considered. You notice when I talked to 

the Park Service about it, they thought it was secondary. I am certain that for you all it is not secondary, especially when you talk 

about something being self-sufficient. On the other hand, those are 

not necessarily compatible with the preservation of something like 

the Custom House. 

Do you have other economic development projects ongoing in 

Wheeling, Mr. Mcintire, in addition to this rather broad initiative? 

Mr. MciNTIRE. Yes, we do. Part of the overall economic development strategy, as I mentioned, points out the heritage program is 

the centerpiece of that, but there are a lot of other elements to 

that, including continuing our efforts to improve the tourism base 

generally, to pursue very emphatically the high-tech industry by 

developing additional industrial parks to accommodate high-tech 

development kinds of things, and to develop a program which we 

already have in place to assist our existing businesses in their expansion needs and their financing needs, to address our existing in-
167 

dustrial base first and then go out and try to attract new business 

opportunities. 

Part of that overall strategy involves land acquisition for new industrial. development and business development, back-office operations in conjunction with the State of West Virginia, adaptive 

reuse of those buildings to accommodate some of those back-office 

needs that have been identified. So we have a broadcbased economic strategy, but the centerpiece is the heritage program. 

Mr. VENTO. Well, I appreciate that, and I hope that we can work 

along the lines to have something that is acceptable and would represent a realistic expectation of the role that the Park Service can 

play and some goal that is worthy of such endeavor. 

So I thank you very much, gentlemen, Ms. Payne, for your testimony. Thank you. Mr. VENTO. Finally, we have Henry Jordan, the chairman of the 

National Trust for Historic Preservation, accompanied by Shelley 

Mastran, the director of rural heritage; and Mr. Bruce Craig, the 

regional director of the Northeast Region of the National Parks and 

Conservation; Mary Means is ill, so she will not be testifying today. 

Dr. Jordan is the chairman designate of the Trust. We want to 

congratulate him on his new responsibilities. You picked a challenging time, Dr. Jordan, to assume this role, and we wish you well 

and look forward to working with you. The Trust has been a good 

ally in terms of dealing with problems, and we look forward to 

working with you and maintaining that relationship. 

Dr. JORDAN. Thank'you, Mr. Chairman. 

Mr. VENTO. Your statement has been made part of the record, so 

let me invite you to summarize it, and we will get back to you with 

a question when Mr. Craig concludes his testimony. 

PANEL CONSISTING OF HENRY JORDAN, M.D., CHAIRMAN, NATIONAL TRUST FOR HISTORIC PRESERVATION; AND BRUCE 

CRAIG, NORTHEAST REGIONAL DIRECTOR, NATIONAL 

PARKS AND CONSERVATION ASSOCIATION 

STATEMENT OF DR. HENRY JORDAN 

Dr. JORDAN. Thank you. I am honored to be able to come and 

present a statement to you today, Mr. Chairman. 

I am the executive director of the Claneil Foundation in Pennsylvania, but I am here today to testify wearing my hat as chairman of the National Trust and chairman of the Countryside Institute, which is a nonprofit organization chartered in Vermont. Both 

of these organizations are interested in promoting community stewardship and believe very strongly in the preservation and enhancement of livable places. 

As you well know, Mr. Chairman, much of America's history is 

connected with and visible on the land, and the American countryside is an incredibly valuable asset that must be protected. The 

towns, villages, natural areas, scenic vistas in · the countryside are 

in some areas under threat from commercial sprawl and residential 

subdivisions and in other areas from abandonment and neglect. 

The National Trust and the Countryside Institute believe that it 

is our responsibility to protect the best of our historical and natural 

landscapes and mitigate against the forces that threaten them. 
168 

I am also coming here as a resident of Chester County, Penn- sylvania, where we have a budding State heritage park along the 

banks of the Schuylkill River, and I mention Chester County only 

to indicate and testify that the voting public is very concerned 

about the protection of their el}vironment. 

Chester County, by and large, is an eighteenth century landscape, and, a number of years ago the county was under very serious threat from urban sprawl. I was part of a small group of individuals who promoted a $50 million bond referendum, and I am 

happy to say that that bond referendum passed with an 80 percent 

yes vote. There is now a new and excited framework for countryside stewardship, and this is the emerging movement of the creation of heritage areas. These are strong areas with a distinctive sense of 

place; they generally are large-scale resources with rivers, canals, railroads, or natural features being the unifYing theme. 

It is important to note that they can include both urban and 

rural settlements. What distinguishes them is that the land is in 

private ownership. Although they are nationally important landscapes, they are not National Parks, but they can be protected by 

the use of unique partnerships. As you indicated earlier in your 

comments, Mr. Chairman, you were talking about the kinds of 

partnerships that might be required to protect these areas. 

I would envision a program being developed that would provide 

funding for feasibility studies, for management planning, for interpretation, targeting important national resources and areas that 

tell important national stories, and, finally, that these areas have 

strong local support. 

I would envision a program that is not necessarily massive 

spending so as not to detract from the current business of the National Park Service but would, rather, complement the Park Service's work. 

Because these areas would be selected based on the criteria of 

national importance, they would not be a repository for pork barrel 

projects. The goal of such a program would be the long-term protection and economic development that can be sustainable and locally 

driven. 

This concept has recently captured the imagination of both national and local organizations. In February of this year, the National Trust and the Countryside Institute sponsored a one-day 

meeting which was attended by 60 people from various nonprofit 

organizations and from public organizations. As a result of that 

one-day conference, a national collection for heritage areas was 

born. 

Last month, there was a conference in Morgantown, West Virginia, that was attended by 160 individuals, and I am happy to say 

that Emory Kemp was our host at that particular meeting. 

There seems to be a burgeoning grassroots effort to create heritage areas. We at the National Trust and the Countryside Institute 

believe that the creation of heritage areas is a viable way to preserve our nation's cultural and natural resources. 

We would be very happy, Mr. Chairman, and eager, to assist you 

in any way to create an overall formula for dealing with heritage 
169 

areas. You have mentioned that several times in your comments, 

and we are eager to assist you. 

[Prepared statement of Dr. Jordan follows:] 
170 

IDJJJJJIDJJJJIDJJJJJJDDJJJJJJJJJDDJJJJJJJJJJJJJJJJJJ; 

National Trust for Historic Preservation 

1785 Massachusetts Avenue, N.W. 

Washington, D.C. 20036 

1202)673-4000 I FAX 1202)673-4038 

Testaony of 

Henry Jordan, M.D. 

Cheii'IIIan 

before the 

Subcommittee on National Parks, Forests and Public Lands 

committee on Natural Resources 

November 16, 1993 

Mr. Chaii'IIIan, thank you for the opportunity to speak to this 

committee. I am the Executive Director of the Claneil Foundation 

in Pennsylvania, but I am here today to testify as Chairman ·ot the 

Board of the National Trust tor Historic Preservation and Chairman 

of the Board of the Countryside Institute, a nonprofit corporation 

chartered in Vermont. Both of these organizations exist to promote 

community stewardship--the preservation and enhancement of livable 

places. 

Much of American history is connected with and visible on the land. 

one ·ot. our finest national assets is our countryside. But many of 

our td toric towns and villages, natural areas, and scenic views 

'are threatened by commercial sprawl, residential subdivisions, or 

aband~ent and neglect. The National Trust and the Countryside 

.Institute believe strongly ·that it is our responsibility · as· a ;·,··':.' 

The mission of the National Trust for Historic Preservation is to foster an appreciation of the 

diverse character and meaning of our American cultural heritage and to preserve and revitalize 

the hvability of our communities by leading the nation in saving America's historic environmems 
171 

nation to protect the best of our historic and natural landscapes 

and to mitigate the forces that threaten them. 

I .am also here today as a citizen of Chester County, Pennsylvania, 

which is part of an emerging state heritage park along the 

Schuylkill River. I was very active in securing the passage of a 

$50 million bond issue for the conservation of open space in the 

county. This bond issue recently passed by an 80% vote, and some 

62 out of 73 municipalities in Chester County have applied for 

planning grants and funds to acquire park lands and open space. 

This, I believe, testifies to the fact that the voting public 

believes in countryside stewardship and wants to protect their 

quality of life. 

A new and exciting framework for countryside stewardship is the 

emerging movement to create heritage areas. Heritage areas are 

regions with a strong and distinctive sense of place. They are 

usually unified by large-scale resources, like a river, canal, 

railroad, or historic road. They may include both urban and rural 

settlements, and are usually in predominantly private 

landownership. Most of them are nationally important landscapes, . 

but they are not National Parks. They can be protected through 

public-private partnerships and new cooperative arrangements among 

the many interests that have a stake in such places. Examples of 

heritage areas include: the Blackstone River Valley National 

Heritage Corridor in Massachusetts and Rhode Island--birthplace of 

America's industrial heritage; the Amish farming community ·of 
172 

Lancaster County, Pennsylvania; and Tracks Across Wyoming--the 

string of communities along the Union Pacific Railroad in southern 

Wyoming, united by their railroad heritage. 

I envision a program for heritage areas which involves federal 

funding for feasibility studies, management plans, and activities 

such as interpretation. Such a program would designate heritage 

areas that have nationally important resources and nationally 

important stories to tell, and that have strong local support. 

This program would not involve massive federal spending; it would 

not detract from current Park Service programs; and--because 

selection would be based on criteria of national importance--it 

would not be a repository for pork-barrel projects. Rather, a 

heritage areas program would build on the strengths of the Park 

Service's current programs and give added weight to heritage 

planning. 

Heritage areas offer tremendous potential for encouraging an 

awareness of history at the grassroots level, building local 

commitment for preservation, stimulating the use and protection of 

natural and cultural resources, offering recreation opportunities, 

and encouraging local investment. They combine the goals of longterm protection and economic development--sustainable and locally 

driven. We have seen remarkable synergy as these forces combine at 

the local level. Along th.e Augusta Canal heritage area in 

Georgia, private investors have funded efforts to build a replica 

of the historic "Petersburg boat" indigenous· to the region, which 
173 

was recently launched at a canal festival. And in the Delaware and 

Lehigh Canal National Heritage Corridor, the Smith-Binney 

Corporation is spearheading the effort to create a national canal 

museum. 

The heritage area concept has captured the imagination of national 

and local organizations alike. This past February, the National 

Trust and the Countryside Institute sponsored a meeting of over 60 

people interested in heritage areas, and out of that meeting was 

created the National Coalition for Heritage Areas. Since that 

meeting, we have identified nearly 100 heritage areas--places with 

grassroots organizations committed to protecting their special 

regional resources and sense of place. Most of these have joined 

the Coalition. The Coalition is now sponsoring a membership drive, 

organizing a national conference, and publishing a newsletter, and 

it recently co-sponsored a workshop on heritage areas in 

Morgantown, West Virginia, which more than 160 p~ople attended. 

The coalition is also monitoring the National Park Service's effort 

to draft generic heritage areas legislation. 

In conclusion, Mr. Chairman, let me say that the National Trust and 

the Countryside Institute support the concept of heritage areas as 

a viable way to preserve the nation's natural and cultural 

resources. W.e are eager to work with you and the committee on any 

specific legislative proposals made toward this worthwhile goal. 
174 

Mr. VENTO. Thank you, Dr. Jordan, for your offer of help and assistance-you can see I need it-and your testimony with regard tc. 

this matter. 

We are pleased to welcome the last witness, Bruce Craig. 

I had received your testimony, Bruce, and appreciate your efforts. It has been made part of the record, so you can summarize 

it or hit the high points. 

STATEMENT OF BRUCE CRAIG 

Mr. CRAIG. Thank you, Mr. Chairman. 

I am pleased to appear before the committee today to submit our 

views on two bills, H.R. 2843, the Wheeling bill, and also the first 

of the Great Falls bills. We only received a copy of the second version of it this morning, and it would be best probably for us to 

withhold comment on that. 

As you know, Mr. Chairman, for several years now the National 

Park Service has entertained various proposals seeking to establish 

a formalized National Heritage Area program, and certainly, as the 

Wheeling bill demonstrates, they are lots of areas that qualify for 

designation as a National Heritage Area. 

I am intrigued by Dr. Kemp's total of 96 sites that can claim to 

be the birthplace of America's industrial heritage. Certainly, as my 

fellow West Virginians have demonstrated on the previous panel, 

within the greater Wheeling, West Virginia, area there are numerous cultural and natural resources that provide an excellent opportunity to interpret aspects of American history. 

MPCA is supportive of the objectives of the Wheeling bill. However, we do feel there are several central questions that this committee should look at before advancing this legislation or any other 

heritage area proposal. They are: One, what are the appropriate 

duties of the Federal Government in funding and administering a 

National Heritage Area? Two, is, the Federal interest best advanced 

through the establishment of a nonprofit corporation or through 

the establishment of a commission? And, three-which is the all 

important question-how should Congress deal with other local 

heritage area initiatives? 

My written testimony addresses each of these questions. What I 

would like to do is just briefly summarize and then actually focus 

comments largely on the third all-important issue. 

Certainly this legislation seeks to have the Federal Government 

fund virtually all aspects including planning, technical assistance, 

capital improvement, even to assist in the operational responsibilities of the plan that is described in section 3 of the legislation. 

In this era of fiscal austerity, though, this provision is simply not 

fiscally responsible. What is needed here is a partnership, and to 

that extent we have some technical recommendations in terms of 

limiting grants and technical assistance to 80 percent of the cost 

for studies and limiting Federal contribution to 50 percent of the 

operating costs of the corporation and some other more technical 

type of recommendations. 

I might note that the recommendations that we have included in 

our testimony are consistent with many aspects of the latest version of the National Heritage Area proposal that is being discussed 

within the realm of the National Park Service. 
175 

The second issue which focuses on the Federal interest being best 

served through the establishment of a nonprofit corporation or a 

heritage commission is also a technical issue. Our concern is not 

so much with the name but, rather, with the administrative framework for the management entity and also with the power that is 

accorded to this entity. 

While in this instance at least, the Secretary of the Interior has 

virtually no control over the administration or expenditure of 

funds, there is no guarantee that the Federal interest will be adequately represented on the corporate board. We therefore would 

recommend this board be amended to include historians and historic preservationists, people who possess professional expertise in 

the area of industrial, social, and economic history or historic preservation. Now on to the third and all-important final issue: How should 

Congress deal with other heritage area proposals as they come before you? Now while Wheeling has merits as a National Heritage 

Area, what about those numerous other potential heritage areas 

that may be submitted to Congress for review? There are many 

such areas, and we need to have a national approach for dealing 

with them. 

Now though the National Park Service reportedly is very eager 

to advance generic legislation creating a national heritage program, 

the need for such a program has yet to be fully assessed or documented. MPCA believes that no generic heritage area legislation 

should be advanced until the need for such a program has been 

fully explored, fully documented, and, most importantly, a funding 

mechanism established for this program. 

At this stage, it is not even clear to us that the National Park 

Service is the best entity to administer and fund such a national 

program which has economic development as one of its primary, if 

not, in the words of some of the people you have heard testify 

today, the major objective. 

I might note, Mr. Chairman, that the National Park Service oftentimes comes before this committee to testify in opposition to a 

particular piece of legislation because there is no feasibility, suitability study that has been done. 

On the other hand, you are shortly going to be asked to advance 

legislation for a program that is going to cost the Federal Government anywhere from $5(}-$200 million with no study to back up 

the actual need for such a program. In order to provide Congress with guidance on what local heritage initiatives are really worth supporting, first we would rec- ommend you use aspects of Congressman Hinchey's bill, H.R. 2416, 

which establishes a national partnership heritage area advisory 

commission. We would recommend that you simply modify the duties that that commission would be charged to do, to conduct a national feasibility, suitability study to assess whether it is appropriate for the National Park Service or other Federal entities, such 

as the National Trust for Historic Preservation, the Department of 

Commerce, Housing and Urban Development, the States themselves, or any combination of the same to take the lead in administering such a National Heritage Area program. 
176 

Second, we would recommend that the group put together in priority order no less than 15 potential National Heritage Area pilot 

projects that are worthy of some level of Federal support together 

with a detailed plan as to how these projects are going to be funded. 

And, finally, if the commission sees the necessity, submit to Congress model generic legislation for the establishment and management of the national system of heritage areas. 

In terms of the Great Falls Historic District Commission, we 

commend Representative Klein for his efforts to address the preservation needs of a property that clearly possesses national significance. Paterson certainly provides a prime example of why parks 

and landmark legislation similar to the proposal that was advanced 

by the National Heritage Coalition several years ago is needed to 

protect and enhance the management of threatened National Historic Landmarks. 

With some 17 percent of the over 2,030 National Historic Landmarks categorized as threatened or endangered nationwide as of 

September 30, 1992, a systematic Federal solution is certainly 

needed. 

Mr. Chairman, that concludes my testimony, and I would be glad 

to answer any of the questions you or other Members may have. 

[Prepared statement of Mr. Craig follows:] 
177 

National Parks 

and Conservation Association 

STATEMENT OF 

BRUCE CRAIG 

NATIONAL PARKS AND CONSERVATION ASSOCIATION 

BEFORE THE 

;p§f" C

~ 

i ti""'l'roft.cft"' 

A.....,..;<OJ~ 

SUBCOMMITTEE ON NATIONAL PARKS, FORESTS AND PUBLIC LANDS 

HOUSE COMMITTEE ON NATURAL RESOURCES 

ON H.R. 2843 WHEELING NATIONAL HERITAGE AREA AND 

H.R. 1104 GREAT FALLS NATIONAL HISTORIC DISTRICT 

NOVEMBER 16, 1993 

Mr. Chainnan and members of the subcommittee, I am Bruce Craig, Northeast Regional 

Director for the National Parks and Conservation Association {NPCA), America's only private, 

nonprofit citizen organization dedicated solely to protecting, preserving and enhancing the U.S. 

National Park System. The Association has 350,000 members. 

On behalf of the Association, I am pleased to appear before the subcommittee to submit our 

views on two bills: H.R. 2843 which seeks to establish the Wheeling National Heritage Area, 

and H.R. 1104, legislation that would establish the Great Falls National Historic District 

Commission. 

For several years now the National Park Service has entertained various proposals to establish 

a formalized National Heritage Area program. The service intends to submit a heritage bill to 

the Congress in early 1994. Representative Hinchey, who sits on this Committee, has 

introduced legislation {H.R. 2416) that establishes a generic National Heritage Area Program. 

Certainly, as the Wheeling bill demonstrates, there are many areas in the United States that 

represt!nt aspects of our national character or exhibit qualities of the American experience, and 

that possess a level of significance that would qualify them for designation as a National 

Heritage Area. But, since the number of potential heritage areas is unlimited , it behooves the 

committee to establish a process for selecting a limited number of areas for federal assistance. 

Wheeling National Heritage Area: 

The greater Wheeling, West Virginia region possesses numerous cultural and natural resources, 

and provides an excellent opportunity to interpret aspects of American history. In particular, 

1776 MassachusettS Avenue, N .W ., Washington, D.C. 20036-1904 

Telephone (202) 223-NPCA(6722) • Fax (202) 659-0650 
Bruce Craig 

November 16, 1993 

Page 2 

178 

the region represents heritage themes related to transportation, commerce, industry and Victorian 

culture. And, based on the current thematic framework, "History and Prehistory in the National 

Park System, • a number of themes are under-represented in the National Park System. 

While NPCA is supponive of the objectives of H.R. 2843, we are equally supportive of the 

National Park Service's continuing role in providing planning and technical assistance to similar 

areas throughout the United States. In the absence of generic Heritage Area legislation, there 

are several central questions that this Committee should address before advancing this legislation 

or any other heritage area proposal. The questions are: 

+ What are the appropriate duties of the federal government in funding and 

administering a National Heritage Area such as Wheeling, West Virginia? 

+ Is the federal interest best advanced through the establishment of a non-profit 

corporation or through the establishment of a commission. 

+ How should Congress deal with other local heritage area initiatives? 

Let me address each of these questions individually, as they rel ate to H.R. 2843. 

What should be the duties of the federal government in a National Heritage Area? 

As currently drafted, this legislation seeks to have the federal government fund virtually all 

aspects (planning, technical assistance, capital improvement -- even to assist in operational 

responsibilities -- of the plan described in Section 3 of the legislation). Yet, the legislation 

grants fiscal control to the corporation established in Section 5 of the bill. In our opinion, this 

arrangement does not constitute a "partnership." 

To create a more equitable partnership, and to protect federal interests, we believe there must 

be: I) sharing of fiscal responsibility for project funding ; 2) establishment of limits on the 

expenditure of federal funds, with specific prohibitions for expenditure of federal monies on 

properties that are not nationally significant; and 3) creation of a board of directors that is 

composed of individuals representing regional and national, as well as Joca:, interests. 

This legislation proposes that the Secretary of the Interior be empowered to plan and execute a 

regional master interpretive plan; to provide technical assistance in implementing the plan; to 

provide funds for capital improvements; and to provide initial operating assisl<lnce to any number 

of entities consistent with the plan. 

While the first two objectives are consistent with the traditional role of th >~ Secretary of the 

Interior in providing technical assistance to non federal entities, the third and fourth objectives-

-providing funds for capital improvements and funds for operational assistanc•e for an indefinite 
Bruce Craig 

November 15 , 1993 

Page 3 

179 

period of time -- are not consistent with that role. This legislation gives the Secretary cart 

blanche to spend federal funds on virtually any aspect of implementation. In this era of fiscal 

austerity this provision is not fiscally responsible. 

Consequently, we recommend that H.R. 2843 be amended to: I) limit grants and technical 

assistance to 80% of the cost for studies, plans or advance planning; 2) establish a matching 

formula not to exceed 50% of the total cost of capital improvements associated with a specific 

preservation project for nationally significant properties that are not federally owned; 3) limit 

the federal contribution to 50% of the operating costs of the corporation; 4) limit the total 

authorization for grants and technical assistance to no more than $10 million, with an expiration 

of authorities specified in the act set no later than twenty-five years after enactment. 

Furthermore, we recommend that language be included in this legislation to insure that federal 

monies are made available to the corporation only for comprehensive heritage area master 

planning, comprehensive interpretive planning, and technical assistance grants earmarked for 

nationally significant resources. In order to ensure a continued federal state partnership, the 

fiscal responsibilities of federal, state and local entities ideally should be made clear in the 

legislation or in report language. 

Is the federal interest best served through the establishment of a non-profit corporation or a 

heritage commission? 

The most recent draft of the "Heritage Partnership Act of 1993," circulated by the National Park 

Service, suggests that the most appropriate managerial entity for a National Heritage Area is a 

Heritage Area Commission . H.R. 2843, however, calls for the establishment of a non-profit 

"corporation. " We believe either a commission or a non-profit corporation could suit the 

specific needs of the Wheeling heritage area. Our concern is not so much with the name or the 

administrative framework of the managerial entity , but with the power that is given to the entity. 

H.R. 2843 would establish a corporate entity with significant power. While the National Park 

Service is being asked to fund virtually all aspects of implementation, the Secretary of the 

Interior has virtually no control over the administration or expenditure of funds. We believe the 

secretary should be accorded veto authority over recommendations for expenditures that are 

deemed incompatible with provisions of the approved heritage plan . 

Furthermore, it appears that under the current language there is no guarantee that the federal 

interest will be adequately represented on the corporate board. We recommend that the 

composition of the Board of Directors be amended to include historians and historic 

preservationists -- resource experts who can articulate state and national preservation interests. 

We recommend that at least three members of the corporate board should possess "professional 

expertise" in the area of industrial, social and economic history or historic preservation , and that 

such individuals should have no economic interest in the Wheeling community. 
Bruce Craig 

November 15, 1993 

Page 4 

180 

How should Congress dea] with other Heritage Area proposals? 

While Wheeling has merits as a national heritage area, what about the numerous other potential 

heritage areas that may be submitted to Congress for review? I predict there will be many such 

areas, and we need a national approach for dealing with them. 

Though the National Park Service reportedly is eager to advance generic .legislation creating a 

National Heritage Area Program, the need for such program has yet to be fully assessed or 

documented. NPCA believes that no generic heritage area legislation should be advanced until 

the need for such a program has been fully explored, documented, and a funding mechanism 

established. At this stage, it is not even clear to NPCA that the NPS is the best entity to 

administer and fund such a national program which has economic development as one of its 

major objectives. 

In order to provide guidance to Congress on what local heritage initiatives ae worth supporting 

with federal monies, we recommend that, Section 5 (Duties) of H.R. 2843 be amended to 

include language similar to Section 4 of Representative Hinchey's bill, H.R. 2416, which 

authorizes a National Partnership Heritage Areas Advisory Commission. Advisory Commission 

duties would include: 

(a) conduct a national feasibility-suitability study to assess whether it is appropriate for 

the National Park Service or other federal entities (i .e the National Trust for Historic 

Preservation or the Department of Commerce) to take the lead in administering such a 

National Heritage Area program; 

(b) recommend in priority order no less than 15 potential National Heritage Area pilot 

projects worthy of some level of federal support together with a detailed plan as to how 

to fund these projects; and 

(c) submit to Congress model generic legislation for the establishment and management 

of a national system of heritage areas. 

Great Falls Historic District Commission 

This legislation seeks to establish the Great Falls Historic District Commission for the 

preservation and redevelopment of the Great Falls National Historic District in Paterson, New 

Jersey. 

We commend Representative Klein for his efforts to address the preservation needs of a property 

that clearly possesses national significance. 

For a number of years the Great Falls of the Passaic Historic District has been listed as a 
Bruce Craig 

November 16, 1993 

Page 5 

181 

"Priority 1" endangered National Historic Landmark (NHL) in the Department of the Interior's 

Section 8 "Damaged and Threatened National Historic Landmarks" report. Over the years the 

area has experienced severe damage and physical deterioration resulting from fire and neglect. 

Clearly, if the nationally significant historic structures are to survive, a planning and 

preservation plan is needed to outline the most appropriate methods for the stabilization and 

rehabilitation of the area. 

Mr. Chairman, Paterson provides a prime example of why parks and landmark legislation 

similar to the proposal advanced by the National Heritage Coalition several years ago is needed 

to protect and enhance the management of threatened NHL's. With some I 7% of the over 2,030 

National Historic landmarks categorized as "threatened or endangered" nationwide (as of 

September 30, I 992) a systematic federal solution is needed . 

NPCA believes there is a need for the federal government to take positive action to support the 

efforts of local communities to preserve their nationally significant historic resources. In the 

absence of generic parks and landmarks conservation legislation, we support enactment of this 

bill, provided that no general authorizations proposed in Section 6 of the bill be authorized at 

this time. 

Mr. Chairman , that concludes my testimony. I would be glad to answer any questions you or 

other members of the subcommittee may have. 
182 

Mr. VENTO. Thanks, Mr. Craig, for your testimony. 

Dr. Jordan, do you think that in the establishment of such Federal heritage areas or zones-we could add a new economic aspect 

to it, too-but do you think it is.important in designating or directing the Park Service to enter into such a compact or agreement 

with local or state community that there be inherent in that-1 notice you used the words "national importance," not "national significance," and I assume that those are carefully crafted-that you 

really mean something. But it could have landmarks, it could have 

historic districts, buildings on the Historic Register, and I suppose 

we could carry that to the recreation side in terms of trail, something, for instance, along the Hudson River-! was visiting with 

Congressman Hinchey in his district along with staff-and/or other 

natural and recreational features that become important. I think it 

really needs to embrace all of those. 

But do you think it is important that there be some sort of tangible basis that indicates that there is something there we are 

tying together in this area, that that is the sort of benchmark we 

ought to be looking for? 

Dr. JORDAN. I think there has to be. I did use the word "importance" rather than "designation." 

Mr. VENTO. No; rather than significant. 

Dr. JORDAN. Yes, to broaden the evaluation of what might make 

that area important. Mr. VENTO. But there have to be some benchmarks in here. 

Dr. JORDAN. There have to be benchmarks. 

Mr. VENTO. Yes. In some cases private ownership, and that in itself is enough. The other thing we had talked about in terms of reviewing this 

is to recognize that many of these areas are actually dynamic, that 

they are changing. It is not something set aside. It challenges, I 

think, many of the problems that we face with historic districts or 

other areas that are really still going forward. They are an economic entity. They want to grow; they want to prosper. Tourism 

may be a major aspect-it may not be-in terms of what the property is utilized for. 

That is especially, the characteristic in something like such 

adaptive reuse type of concepts that Dr. Kemp talked about that 

we all see with varying degrees of success, a rather new concept 

in terms of the last 14 years or so with regard to historic preservation. I just think there have to be some benchmarks. 

Mr. Craig, I don't know if going forward with 15 particular pilot 

projects-! think we have got a few pilots out there right now. 

Mr. CRAIG. I think the National Park Service has a number of 

pilots right now, but I think what is really important is that, whatever those projects are, if indeed there would be pilot projects, that 

they stick by it and say that they support these 15 but they oppose 

these other 50 to 100 projects. 

Mr. VENTO. Wouldn't you think it would be a good idea to look 

at what we have that fits this description already where we don't 

have a lot of public ownership or where we have joint agreements 

or compacts or basically cooperative agreements and look and see 

how they work and what works here and what is necessary? 

Mr. CRAIG. That would be consistent with what needs to be done. 
183 

Mr. VENTO. Rather than try to set up something, let's look at 

how these mechanisms works to date. Do you need commissions? 

Do you need advisory committees? What do you need? What about 

the role of local and State government? As an example, we could 

sign an agreement with the Historic Trust to do this. 

Right now, Mr. Jordan, you don't have that option, do you? I 

mean we are actually talking about doing something here with 

some entity. We set up the trust for this purpose. You receive the 

overall administrative funding, but that is the end of it. Should we 

go out and reinvent ten more of you specific to a local community? 

Dr. JORDAN. I would hope not. 

Mr. VENTO. Well, I mean that is what is happening with corporations, commissions, whatever we are calling them. We need a 

standard format. I think you do some unique things that are very 

important in terms of leveraging dollars. 

I think, Dr. Jordan, we are really concerned about the criteria we 

use. For instance, most of these structures don't speak to the involvement of professionals, whether it be historians, geographers, 

biologists, being involved in this. I note that Mr. Craig had commented that that was important in his testimony. Do you feel that 

is important? 

Dr. JORDAN. I feel that is important as well. 

Mr. VENTO. When we start talking about the Park Service, do we 

really need to reference that with regard to the Park Service from 

the national side and then have the States relied upon? Shouldn't 

they be looking to the State historic preservation offices? 

It is obvious in this particular case, with Dr. Kemp's involvement, and the State historic preservation offices, both with regard 

to Wheeling and with regard to New Jersey, have been involved 

with this. But that should actually be part of the framework of 

what is set up here so you don't have something going on that is 

not consistent with the SHPO in the State. Would you agree with 

that? 

Dr. JORDAN. I think there should be partnerships at all levels, 

from the Federal to the State to the local, and I would go a step 

further and indicate that that should be not only public partnerships but private partnerships as part of that. 

Mr. VENTO. What type of a national commitment do you think 

of? Dr. Kemp talked about 90-some areas with regard to industrial 

heritage, and he isn't really dealing with some of the other issues 

that might qualify. 

For instance, some years ago, before I served in Congress, someone suggested we ought to take over Niagara Falls. I don't know 

if the State wants to still give it up, but at least my colleague from 

up there, John LaFalce, said we ought to explore doing something 

in terms of Park designation there. 

But it shows you that there are natural features and other areas 

that have a certain enthusiasm to be a part of or associated with 

the Park Service, and I take it by this they mean more than simply 

the technical relationship, the affiliated relationship, which is real- ly not any type of a funding relationship, just using technical assistance. I envision there would be many areas such as this that would 

like to fall into this particular category. So what type of threshold 
184 

test do you think we should use in order to designate or to direct 

the Park Service to come to some sort of a compact? 

Dr. JORDAN. I don't have the answer to that. I wish I did. But 

I think we can bring together the expertise to really explore the 

issue of where the benchmark should be, and Dr. Kemp has 96 

areas. The Trust did a study that identified almost 100 heritage 

areas. 

Mr. VENTO. Of industrial--

Dr. JORDAN. No, they are not all industrial. 

Mr. VENTO. Okay, well it is helpful, to give us a frame of reference of what we are trying to face. The problem is, it is fine to 

deal with Wheeling, it is fine to deal with New Jersey, but I am 

going to have 90 more of these on the heels of it, and I think that 

we had better do best. The funding issues, I raised are with regard to relationships of 

such sources of funding as the Historic Preservation Fund, which 

is your principal source of funding for your administrative structure and perhaps for other initiatives that you are trying to advance. This year I had to find a way to authorize certain activities 

under the auspices of it to satisfy some of my friends in Massachusetts, and at least they were authorized. I mean at least they are 

issues where there are landmarks and so forth. 

But what should be the relationship between it and the Historic 

Preservation Fund and/or the Land and Water Conservation Fund? 

Do these areas qualify, in essence, as units of the National Park 

System? 

Part of the driving force behind much of this is the fact that 

there has not been appropriate funding from these other sources, 

although that by itself may not be enough to have completely answered the questions here. Mr. CRAIG. That is the fundamental problem, the lack of funding 

that has been going into these types of projects through the Historic Preservation Fund. If we had a Historic Preservation Fund 

that was truly funded to the levels of what the needs actually are 

there by the States, we probably wouldn't be confronted with the 

numbers of legislative initiatives such as the New Jersey one, 

Great Falls. This is a pretty good example of those that feel that 

they have tried to work through the system as it is set up and they 

are not getting the funding for it. 

Mr. VENTO. I think the real problem is, even after we go through 

the process here, things change in the future in terms of mortality, 

that there would be the hope of funding but t_here wouldn't be the 

assurance of it. I can look at any number of units of the Park System such as 

Gateway and others that have not received the type of funding that 

they need for other than life-safety type of investments, so they 

have been sitting there for 20-plus years without much change. 

You have got bathhouses and other facilities that are of great importance to literally millions of people that live on the doorsteps of 

these areas and real problems with various parts of that particular 

park. 

I am sure most of you could think of another half a dozen that 

fall into the same category and are not receiving funding. So designation is not a panacea to this. 
185 

Gentlemen, I have kept you a long time, but I think it has been 

a very useful hearing for more than just the discussion of the two 

bills before us but the general topic. We are trying to resolve this, trying to put some sort of policy path in place that will address this 

matter, and we look to your testimony and your assistance and 

that of your organizations to help us in terms of doing it. It is clear that we have dropped behind the curve in terms of 

dealing with many of these issues, much to the chagrin of the Park 

Service and others that are left with these sort of single-purpose 

appropriations or authorizations and a mechanism that simply does 

not work and/or compromises the basic mission that is envisioned 

for this important agency. Thank you for your testimony. The meeting stands adjourned. [Whereupon, at 1:34 p.m., the subcommittee was adjourned.] 

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