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from an historic site" affected or taken by the project, including its size, available activities, use, patronage, relationship to other similarly used lands in the vicinity of the project, maps, plans and drawings showing in sufficient scale and detail the project and its impact on park, recreation, wildlife, or historic sites, and slides, photographs, etc., as appropriate.

(2) Statement of the "national, state, or local significance" of the area "as determined by the Federal, state or local officials having jurisdiction thereof."

(3) Similar data, as appropriate, for alternative designs and locations, including cost estimates and technical feasibility, and appropriate analysis of the alternatives.

(4) If there is no feasible and prudent alternative, description of all planning undertaken to minimize harm to the protected area and statement of the actions taken or to be taken to implement this planning.

(5) A specific statement that there is no feasible and prudent alternative and that the proposal includes all possible planning to minimize harm to the “4(f) area” involved.

With the exception of the cost estimates and technical feasibility of alternatives, requested in (3), all of the above information can be found in the Historic and Cultural Sites Inventory or in the materials prepared for the two highway public hearings. Additional data related to (4) "planning undertaken to minimize harm to the protected area" will be found in the studies recommended in Section C of this chapter.

C. Section 106 of the National Historic Preservation Act of 1966 (16 USC 470(f)), effect of Federal undertakings upon properties listed in the National Register, requires that

the head of any Federal agency having direct or indirect jurisdiction over a proposed Federal or federally assisted undertaking in any state and the head of any Federal department or independent agency having authority to license any undertaking shall, prior to the approval of the expenditure of any Federal funds on the undertaking or prior to the issuance of any license, as

the case may be, take into account the effect of the undertaking on any district, site, building, structure, or object that is included in the National Register. The head of any such Federal agency shall afford the Advisory Council on Historic Preservation established under Sections 470(i) - 470(n) of this title a reasonable opportunity to comment with regard to such undertaking.

D. Executive Order 11593, "Protection and Enhancement of the Cultural Environment," May 13, 1971 (36 F.R. 8921), states in Section 1, Policy

"The Federal Government shall provide leadership in preserving, restoring and maintaining the historic and cultural environment of the Nation."

Federal agencies are directed to:

"(1) Administer the cultural properties under their control in a spirit of stewardship and trusteeship for future generations,

(2) Initiate measures necessary to direct their policies, plans and programs in such a way that Federally-owned sites, structures and objects of historical, architectural or archeological significance are preserved, restored and maintained for the inspiration and benefit of the people, and

(3) In consultation with the Advisory Council on Historic Preservation (16 U.S.C. 470 i) institute procedures to assure that federal plans and programs contribute to the preservation and enhancement of non-federally owned sites, structures and objects of historical, architectural or archeological significance."

Section 2(a) requires the heads of federal agencies to:

"Locate, inventory, and nominate to the Secretary of the Interior all sites, buildings, districts, and objects under their jurisdiction or control that appear to qualify for listing on the National Register of Historic Places. As these inventories and nominations are completed by the various federal agencies, they should be incorporated into the inventory process outlined in this study as additional properties listed in the National Register. While the Executive Order requires completion of these inventories no later than July 1, 1973, it is conceivable that new material relating to the historical, architectural or archeo

logical significance of properties owned or controlled by a federal agency may be uncovered during subsequent inventory work. Therefore, the results of the various inventories suggested in this report should be made available to all Federal agencies, the Advisory Council and the Secretary of the Interior for use in updating existing work. The results of inventories completed in connection with DOT related projects will especially assist agencies in identifying nonFederally owned properties and meeting the requirements of sub-section (3) of Section 1. of the Executive Order "to assure that Federal plans and programs contribute to the preservation and enhancement of non-Federally owned sites, structures and objects of historical, architectural or archeological significance."

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sultation process set forth in the Advisory Council's Compliance Procedures.

II. Compliance with Section 1(3)-Protection of non-federally owned properties eligible for the National Register.

1. Eligibility for the National Register. If the Agency Official determines that a non-federally owned property in the Historic Resources Inventory appears to meet the National Register Criteria or if it is questionable whether the National Register Criteria are met, the Agency Official shall request, in writing, an opinion from the Secretary of the Interior respecting the property's eligibility for inclusion in the National Register.

2. Property not eligible. If the Agency Official finds the property clearly not eligible for inclusion in the National Register, or upon receipt of the written opinion of the Secretary that the property is not eligible for inclusion in the National Register, the Agency Official may proceed with the undertaking. The Agency Official shall keep adequate documentation of this determination.

3. Property eligible. Upon receipt of the written opinion of the Secretary that the property is eligible for inclusion in the National Register, the Agency Official shall reconsider the undertaking in light of national environmental and preservation policy.

4. Decision to proceed. If, after such reconsideration, the Agency Official proposes to proceed with the undertaking which will result in the transfer, sale, demolition, or substantial alteration of a property eligible for inclusion in the National Register, he shall; (a) request, in writing, the comments of the Advisory Council: (b) notify the appropriate State Historic Preservation Officer; and (c) proceed with the consultation process set forth in the Advisory Council's Compliance Procedures.

III. Compliance with Section 2(b)-Protection of federally-owned properties eligible for the National Register.

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Golden Gate National Recreation Area-San Francisco's Golden Gate Bridge is an eye-catching "signpost" in the

Bay recreation area proposal now underway by the National Park Service.

PART THREE-GUIDELINES FOR MINIMIZING THE ENVIRONMENTAL IMPACT

OF PROPOSED HIGHWAY CONSTRUCTION ACTIVITIES

While this study is primarily concerned with inventory methodology and ways of incorporating the findings into the highway planning decision making process, it is appropriate that a number of techniques for fitting the proposed highway construction project into the existing fabric of a community be presented here. Such techniques and design devices should be presented as part of the "highway design public hearing." The recommendations are based on previously published materials as well as investigations and research completed as a part of this study. Primary source material is listed with each summary discussion.

A. Alternative Alignments

Alternative alignments within the selected route are of critical importance, especially if it is possible to separate the two travel corridors at varying distances, so that they in effect become a pair of one-way highways. This simple device will reduce the mass and scale of a highway, and eliminate most of the monotonous uniform width median strip typical of most highways. The distance between the two travel corridors can vary from a few feet to as much as several city blocks, depending on local conditions and property acquisition programs.

Conversely, in dense urban areas or along hillsides, the facility might become more concentrated through the use of multi-level construction or terracing to reduce the required width of the highway right-of-way. These alternatives should be made clear at the design stage public hearing.

The alignment and elevation of a highway within a given corridor will also determine the visual experience available to a user of the facility. Referred to as the "view from the road" in a 1963 publication, this experience is determined by the alignment and path of the facility with regard to buildings, open spaces and vistas-the quality of the view; and by

*Donald Appleyard, Kevin Lynch and John R. Meyer, The View from the Road, M.I.T. Press, Cambridge, 1963.

traffic speed and handrail design-the quantity of available view. The View from the Road defines three types of views regarding highways, the views seen by the driver and his passengers, the view of the facility from outside, as a three dimensional form, and the view of the roadway itself-textures, signs, colors and lighting. Alternative highway alignments within a given corridor may differ greatly in the quality of the view from the road, as well as the view of the road, and due consideration should be given to utilizing the alignment and elevation in a creative manner. The view from the road can be of great benefit to historic preservation objectives by helping to establish a sense of place and order through visual linkages to established lankmark structures in a community. The vistas and viewpoints made available from the construction of a new highway facility can also be used to point out the visual quality of an area, and make the existence of a unique area such as a historic district known to the visitor and the commuter alike.

Techniques for identifying the type and quality of visual experiences that might be made available from existing and proposed highways are described in detail in The View from the Road, especially Chapter 2, "Recording Highway Sequences," and Chapter 3, "Analysis of an Existing Highway." The subject is also treated in Chapter 1, Part Three of Man-Made America: Chaos or Control?, "The Development of Freeway Form."t

Ideally, the proposed highway should not travel through the historic district or other area of interest, but should be located alongside or around the area, with a choice of ingress and egress provided. In this manner the highway can play a positive role, helping to strengthen the identity of existing and emerging historic areas by providing clearly definable edges, and protecting these areas by separating them from incompatible land use areas or areas of a negative

†Tunnard, Christopher, and Boris Pushkarev, Man-Made America: Chaos or Control?, Yale University Press, New Haven and London, 1963.

visual character. If economics permit a proposed highway facility to be depressed and covered over, the resulting right-of-way can be used to link areas together. While construction costs of a cut-and-cover solution are high, important linkages can be developed by landscaping the terraced right-of-way as a public open space and in scale parking areas to serve residents and users of both areas, or through the use of "traffic architecture" by creating multi-use structures such as shopping complexes, public offices or other uses of a communal nature. The role and potential of alternative highway proposals regarding edges and linkages should be clearly presented, with appropriate graphics, at the highway design public hearing. Possible reuse of areas adjacent to or below elevated sections of any proposed facility should also be presented.*

B. Respect for the Existing Street Patterns

New highway construction should respect the existing street patterns. The existing street pattern is often the most dominant man-made feature of our towns and cities and must be respected if a sense of order and historic integrity is to remain. In most cases the street system is the oldest remaining artifact, predating all but a very few structures that remain, and as such can be of architectural, planning, landscape, historic, social and associative significance. In the case of linear or gridiron patterns, the proposed highway facility should be parallel or perpendicular to the dominant pattern, and not cross it as a diagonal or wind through it in a curving pattern. In geometric street systems the new facility should be incorporated into the pattern of two-dimensional design. A new facility should complement the layout of streets in a curvilinear pattern, which is usually based on topography or other natural features, and should not cut through such a system in a straight line. The relationship of each highway alternative to the existing street pattern of a community should be shown on a series of overlay maps, and be made available for review at the highway design stage public hearing.

C. Design Features

Design features of all alternatives should be clearly defined and presented as a major component of the alternative schemes. Such features include

*In New York State, the State Department of Transportation suggests that these areas be turned over to and operated by the applicable town or city's recreation department.

scale, materials, lighting, graphics, landscaping and other roadside improvements. Scale is critical to successfully integrating any highway facility with the visual character of a community. If the highway is to traverse or run alongside what are normally fine grained historic areas, the highway's overwhelming mass and most objectionable visual features must be carefully considered. Every effort should be made to reduce the mass, scale and required land area to be more in keeping with the scale of the community, and any devices developed during the highway design studies should be presented at the public hearing.

New highway facilities, especially overpasses, bridges and elevated sections, should express the structural systems and materials used in its construction, as evidence of 20th-century technology. Steel or concrete highway structures should not be disguised by the application of wood, masonry or other facade coverings. However, if the new facility is relatively small and is an isolated feature, such as a stream crossing or pedestrian tunnel, and not part of a total highway construction program, the State Historic Preservation Agency should have the option of recommending some form of cosmetic treatment if requested by the local officials and historic group. The suggested use of color, especially earth colors, self-coating metals like Core-10 steel, and exposed aggregate concrete should also be presented as part of the public hearing, with recommendations for each highway department alternate proposal.

Lighting and graphics can also contribute to the successful melding of a highway with a historic district or other area of visual importance, and proposals should be prepared for each alternative. The kind and intensity of lighting proposed to illuminate the roadway itself, with pole height and spacing if an elevated system is considered, should be clearly identified through sketches or photographs of similar installations. In addition, lighting from the highway facility can be used to point out landmark structures or other points of reference for the highway user and the pedestrian, resident or visitor to the community. A creative lighting system can contribute to establishing a sense of place and continuity, and will provide the obvious benefit of protection through illumination, to the landmark structure with regard to defacing, and to the pedestrian, making the area a safer place to visit at night.

The placement and design of highway graphics should contribute to the visual character of the highway and surrounding area, as well as provide

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