Draft of the Revised Historic Preservation Section of the Jefferson County, WV, Comprehensive Plan
Submitted to the Jefferson County Planning Commission by the Jefferson County Historic Landmarks Commission
November 20, 2000
HISTORIC PRESERVATION
Jefferson County is an area rich in historical and archaeological interest. Part of our country's first western frontier, it was settled by Europeans before 1720 and was probably inhabited by Native Americans for at least 10,000 years. Sections of the county were surveyed by George Washington. In addition to containing the homes of seven members of the Washington family and three Revolutionary Generals, Jefferson county played an important part in the development of early transportation, farming, and industry.
Our county was the site not only of John Brown's raid, trial, and execution but also of the Miners' trials of the 1920's and numerous skirmishes during the Civil War. Although many residents and visitors in Jefferson County are not aware of the historic significance of many of its structures, these buildings and landmarks enhance our quality of life. They are part of what draws people to our county and makes them want to stay.
As our population grows and development pressures continue, it becomes increasingly important to provide residents information about Jefferson County's heritage, to identify existing historic resources, to determine what can and should be saved for future generations, and to provide the resources needed for the preservation and maintenance of these sites
This chapter reviews past and present preservation activities, examines the challenges we now face, and makes recommendations for current and future preservation.
One of the earliest attempts to preserve an historic structure in Jefferson County was motivated by the urge to capture tourist dollars rather than by altruism. Efforts to preserve and promote the engine house known as "John Brown's Fort" probably mark the birth of heritage tourism in our area. After drawing respectable numbers of visitors during the 1870's and 1880's, the brick building was purchased in 1891 by entrepreneurs, disassembled, and moved on seven railroad cars to Chicago. Here it was reconstructed on Wabash Avenue as an attraction for the 1892 World's Fair. The project failed to generate the interest or revenue anticipated.
Efforts to return the building to Jefferson County around 1895 were met with spirited local opposition, for the restoration of the John Brown's Fort was seen as honoring a terrorist, and many county residents preferred not to reopen this disturbing chapter in our history. Nevertheless, parts of the building eventually returned to Jefferson County the way they had left. Accidentally reassembled in reverse, the "Fort" had two homes in Jefferson County before coming to rest at its present site in Harpers Ferry, where it has fascinated millions of visitors over the past half century.
Few local restoration efforts have generated this degree of interest or controversy, yet the battle over John Brown's Fort illustrates the importance of historic landmarks in our society. Some historic landmarks have survived because of conscious efforts to preserve them while others remain purely by chance. Many more have disappeared, victims of neglect, vandalism, or deliberate destruction. The ones that remain are visible links to our past - reminders of who we were then and symbols of who we want to be.
The first local effort to preserve sites of Civil War conflicts occurred in 1910, when the Confederate veterans of Jefferson County Camp No. 123 erected 25 markers to commemorate Civil War battles and skirmishes that had occurred in this area. They also created a book, Military Operations in Jefferson County Virginia (and West Va.) 1861-1865, to describe the events that had occurred at each site.
Some of these Civil War sites have changed very little in the last 140 years. Others are barely recognizable. A few markers have been moved by property owners or by volunteers who replaced or restored the originals. Thus the visitor may find that some markers do not stand at the original sites.
The formation of the Jefferson County Historical Society in 1927 marks another major step in local preservation activities. The Society's Magazine and other publications have served as an important information resource on historic properties as well as on persons and events of local importance. The establishment of the Jefferson County Museum has provided a local repository for Jefferson County artifacts and papers and a learning resource for the community,
A statewide highway marker program was implemented in 1937 to encourage tourism and identify sites of historic significance. The site, property, district, or community honored with a marker must possess some degree of significance in state or local prehistory (archaeology), history, natural history, architecture, or cultural life. More than 30 of these highway markers were erected in Jefferson County during the next 50 years. A 1999 survey of markers throughout the state indicated that approximately 25% of the original Jefferson County markers are missing and many of the surviving ones are damaged. As part of its contribution to the county's bicentennial celebration, The Jefferson County Historical Society will be replacing missing markers and erecting several new ones.
In 1943 prominent businessman and philanthropist Raymond J. Funkhouser began a decade of local restoration. Funkhouser (1888-1968) was a native West Virginian who had risen to great wealth, being the owner of the O'Sullivan Rubber Corp., the Funkhouser Company, and Victor Products. He undertook the restoration of Claymont Court, Blakeley, Cedar Lawn, and Happy Retreat - Jefferson County homes associated with the Washington family. Funkhouser also owned a prominent county newspaper, The Jefferson Republican, from 1942 until 1955, and used it to promote local preservation.
The largest historic preservation project in the county began in 1944 when Congress enacted legislation authorizing the establishment of a national monument of up to 1,500 acres for the purpose of "commemorating historical events at or near Harpers Ferry." Subsequent legislation redesignated the national monument as Harpers Ferry National Historical Park and enlarged the authorized boundaries to encompass additional land in West Virginia, Maryland, and Virginia.
The National Park Service assumed administrative responsibility in 1955. The Service initially set about to restore the surviving lower town to its 1859 appearance as much as possible, removing most later structures and alterations. Later this "point in time" restoration philosophy was superseded by recognition of the significance of Harpers Ferry's evolution throughout the 19th century. In the 1960s the Service acquired the former Storer College campus and buildings and utilized them for its Interpretive Design Center and Mather Training Center. Since that time, the interpretative scope and boundaries of the park have continued to grow, although several attempts at land acquisition have been thwarted by the elements of the county opposed the expansion of this historic site.
Much of Jefferson County's interest in Civil War history can be traced to the preservation and interpretative efforts at Harpers Ferry National Historic Park.
In 1972, architectural historian Russell Wright conducted a preliminary survey of historic sites. This effort was funded by the Jefferson County Historical Society and the Jefferson County Commission. His recommendations were submitted to the Planning Commission on May 1, 1972, and included the following:
1. Nomination of the following buildings to the National Register of Historic Places: Blakeley, Cedar Lawn, Claymont, the Court House, Happy Retreat, Harewood, Piedmont, Prato Rio, Rion Hall, the Ruins of St. Georges Chapel, and Travellers Rest. He noted that "There are probably a number of other places worthy of nomination..."
2. "[T]he entire town of Shepherdstown should be placed on the National Register as a district.... this is the most important item in Jefferson County to protect, more important than any of the individual buildings elsewhere. A detailed preservation plan should also be prepared immediately for the town, possibly as part of the on-going Comprehensive Plan."
3. "A complete architectural-historic inventory should be prepared for Jefferson County and the towns and cities within its boundaries...."
4. "Immediate and loud lobbying should be promoted to insure the early passage of State enabling legislation to permit Historic District Zoning...."
During the next two years, Wright's recommendation for a complete architectural historic inventory was attempted and a "Survey of Structures of Architectural Merit," was prepared. Geological survey maps (quadrangles) were used to pinpoint and number locations, and notebooks containing survey forms and photographs were filed in the County Planning Commission's office. These were supposed to have been used by the Planning Commission's Subdivision Review Panel, although they have not been consulted extensively for at least a decade.
The deteriorating maps were re-created as transparent overlays by the Jefferson County Historic Landmarks Commission in the mid-1990's (with a grant from the Jefferson County Historical Society) and have been incorporated into the Jefferson County Explorer CD Database. Despite the effort that went into this project, many of the forms are incomplete and the information is now out of date.
In March 1974 the Jefferson County Commission, in accordance with the Oates Leonard Bill, appointed an Historic Landmarks Commission of five members -- one from each district. The Landmarks Commission was authorized to deal only with places outside municipalities. One of the major accomplishments of this first Landmarks Commission was the establishment of a County register of historic places and the listing of more than 70 sites.
The Jefferson County Landmarks Commission was re-established in the late 1980's and has continued in operation since that time. The responsibilities of the Commission include:
• Supporting local efforts to have properties added to the National Register of Historic Places;
• Reviewing applications to the County Register of Historic Places;
• Providing input to the subdivision review process regarding the impact of proposed development on cultural resources;
• Conducting cultural resource surveys;
• Reviewing National Register applications;
• Reviewing environmental impact statements for proposed projects within the county which make use of state or Federal funds; and
• Sponsoring and encouraging educational programs related to historic preservation.
As the owner of the Peter Burr House, a National Register site, the Landmarks Commission is also responsible for the restoration and maintenance of this structure.
In 1995, The Explorer Jefferson County History Database was published on compact disc by the West Virginia Division of Culture and History. Containing historic maps, photographs, and books as well as census information and historic survey data, this work remains the most comprehensive reference work on local historic and historic sites and is an important tool for preservation planning.
During the past decade, Shepherd College has taken an increasingly important role in historic preservation through the work of Dr. Charles Hulse, who has conducted courses in archeology and cultural resource management and has performed numerous archeological surveys in Jefferson County. The following are among his most significant reports related to historic sites in Jefferson County:
• The 1990-91 Jefferson County, West Virginia, African-American Cemetery Survey, with an Annotated Narrative of the African-American Community in Jefferson County, WV, by Hannah Geffert, Shepherd College.
• A Collection-Based Reconnaissance Survey of Jefferson County, West Virginia: A Confidential Report in Prehistoric Archaeology. West Virginia Department of Culture and History (1987).
Throughout this period, the scope of preservation-related studies has continued to expand at Shepherd College, with a Preservation Certificate program added in the late 1990's under the direction of Dr. Paula Reed. A four-year degree program is scheduled to be in place by the end of the year 2000 under the direction of Dr. Hulse..
In 1998 the George Washington Heritage Trail was established in the Eastern Panhandle, providing highway markers and descriptions of historic sites throughout the area. This project is designed to promote historic preservation and encourage heritage tourism in the area.
Various groups and individuals have been responsible for placing local sites and districts on the National Register of Historic Places. These efforts are summarized in Table 1. To date, Jefferson County has five historic districts (Charles Town, Shepherdstown, Harpers Ferry, Middleway, and Morgan's Grove) and 57 historic sites as well as Harpers Ferry National Historic Park.
National Register sites include "districts, sites, buildings, structures, and objects that possess integrity of location, design, setting, materials, workmanship, feeling, and association, and:
A. That are associated with events that have made a significant contribution to the broad patterns of our history; or
B. That are associated with the lives of persons significant in our past; or
C. That embody the distinctive characteristics of a type, period, or method of construction, or that represent the work of a master, or that possess high artistic values, or that represent a significant and distinguishable entity whose components may lack individual distinction; or
D. That have yielded or may be likely to yield, information important in prehistory or history."
(From the National Register of Historic Places, Website)
These criteria help state and local governments, Federal agencies, and others identify important historic and archeological properties worthy of preservation and of consideration in planning and development decisions. Listing in the National Register contributes to preserving historic properties by recognizing that a property is of significance to the Nation, the State, or the community; ensures consideration in the planning for Federal or federally assisted projects; makes owners eligible for Federal tax benefits; and qualifies an applicant for Federal assistance for historic preservation, when funds are available.
During the several years since the last revision of the Comprehensive Plan, some of the problems noted in the previous planning document have increased in severity while other areas requiring attention have surfaced. The following discussion identifies major challenges that need to be addressed and provides recommendations.
The most serious problem facing Jefferson County preservation efforts is the lack of reliable data on historic sites. The most recent survey, sponsored in 1973 by the Jefferson County Historic Landmarks Commission, was jointly funded by the Jefferson County Commission and the Jefferson County Historical Society.
Despite the tremendous effort made by volunteers at the time, many of the forms from the 1975 survey are incomplete. Furthermore, since this was a "windshield" survey, many locations not visible from a major road were not recorded at all. Finally, the information recorded in this survey is now more than 25 years old. Some of the structures recorded no longer exist, and the information on changes to and condition of the remaining structures is out of date. The survey information, along with data from other surveys, was digitized and made available on the Jefferson County Explorer Database CD (1995), but the data are far from current or complete.
Updated survey information is urgently needed for planning purposes. Until a comprehensive county-wide survey is conducted, decisions affecting potentially historic sites will continue to be made in crisis situations that foster confrontations between preservationists and developers.
Such a survey should be conducted according to standards followed by the State Historic Preservation Office and the information made available in database format so that it is easily searchable. It is particularly important for users to be able to examine information on specific building types, dates, and conditions. Such information will allow us to make long-term commitments to preserving the best specimens of particular building types rather than expending resources and energy on every potentially historic structure without regard to its significance or condition. The finished database will also provide comparative information for persons interested in restoring their own structures.
The State Historic Preservation Office provides limited matching funds for these surveys, but a consistent source of funding needs to be identified from this multi-year project.
Recommendations: A new comprehensive survey of historic sites should be conducted under the direction of the Jefferson County Historic Landmarks Commission. Long-term funding for this project should be sought from the two previous sponsors (County Commission, the Jefferson County Historical Society) as well as from local businesses and individuals.
Jefferson County has a poor record of preserving and maintaining historic structures owned by county government. The current problems are due in part to the lack of a comprehensive survey (described above).
The house and barn on the Sam Michaels Farm have been lost. The Peter Burr House suffered more than $100,000 in damages over the past decade due to lack of maintenance and neglect. The Jefferson County Alms House and its outbuildings have undergone serious deterioration. These are just a few example of the county's long-term lack of commitment to preserving the historic structures it owns. Although the County Commission has recently provided some funds to stabilize county-owned National Register sites, this relief is only a temporary solution to a growing problem.
In a county that prides itself on its heritage and is attempting to cultivate heritage tourism, this poor record of preservation suggests that individual county agencies do not regard preservation and maintenance of historic structures in their charge as an important responsibility. As the county continues to acquire additional land for schools and other public buildings this problem will continue to grow.
A similar problem exists with respect to demolition or alteration of historic buildings owned by the county. Local landmarks commissions are often not consulted when county-owned historic structures are to be demolished or renovated. Neither the Jefferson County Historic Landmarks Commission nor its Charles Town counterpart were contacted before plans were drafted for a "wrap around" annex to the Jefferson County Court House, for proposed security alterations of the Court House, or more recently when the County Commission announced plans to demolish the County Jail.*
These events further support the impression that county government does not view historic preservation as seriously as it should. Furthermore, county government's poor record in preserving its own historic structures serves as a negative example for businesses and private individuals, who should also be encouraged to develop a sense of pride and stewardship for local historic structures.
Recommendations: The Jefferson County Commission should support local legislation requiring that county-owned National Register (or Register eligible) properties be maintained to minimum standards that prevent deterioration. The Commission should ensure adequate funding for their maintenance. Structures on properties to be acquired by the county should be evaluated by the appropriate county or municipal Landmarks Commission and recommendations made for their maintenance, renovation, demolition, or removal. Moreover, funding for maintenance of county-owned historic buildings and sites should be included in the Capital Improvements Plan (CIP) when it is adopted.
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*Jefferson County has the distinction of being the site of two treason trials: those of John Brown and his associates in 1859 and the Miners' Trials of the 1920s. The jail and the courthouse are important structures related to the latter event, and the jail shares distinctive architectural features with the other structures at the intersection of Liberty and George Streets.
Jefferson County faces the dual challenge of preserving its architectural heritage and providing adequate recreational space for its citizens and visitors. As residential development continues in the county, valuable historic and archeological sites are destroyed and the demand for neighborhood parks and larger recreational facilities grows.
Most of this growth will occur in areas currently or formerly used for agricultural purposes or along rivers and streams. These areas often include important examples of our agricultural and industrial heritage as well as sites of Civil War conflicts and Native American habitations. Many of these sites can help meet local recreational needs or provide points of interest for recreational or heritage tourism if they are developed with recognition of their historic and archeological resources.
Recommendations: Areas having combined historic and recreational potential should be identified and developed according to sound preservation and environmental standards. Private as well as public development of such sites should be encouraged. Similar sites should be identified to serve new housing developments throughout the county, with developers setting aside land where appropriate or contributing to a fund designed to purchase nearby properties with this potential. Sites adjacent to rivers and streams should receive special consideration, with special emphasis given to stopping erosion and runoff and promoting water related recreational activities. The Cement Mill complex on the Potomac River below Shepherdstown should be one of the first sites considered.
Much of Jefferson County's culture and history has sprung from villages and crossroads communities, many of which grew up when a ferry was established, a turnpike constructed, an industry developed, or a railroad built. Villages such as Duffields, Shenandoah Junction, Halltown, and Bakerton are examples of these resources. Other communities represent racial or ethnic groups that lived together for social, religious, or economic reasons. The African American community of Johnsontown is one example.
As automobiles began to appear in the county in the 1920's, roads were gradually improved and public services became increasingly centralized, until these villages lost the economic and social resources that held them together. Local schools were consolidated into regional ones; sports teams and ballfields once found in most communities disappeared. Industries around which communities had grown went out of business, forcing residents to seek work elsewhere and draining resources that had maintained the infrastructure. In some of these locations, only the community church still exists, kept alive by descendants of the founding families. Other villages still contain buildings that could be restored and used in economic revitalization of the community.
More recently, residential development has threatened to obliterate some of these sites or destroy their historic integrity. Names for roads and subdivisions often fail to acknowledge the heritage of the sites they occupy or at least incorporate features of the local environment.
At the same time, the residents of these new subdivisions often want the convenience of nearby small businesses to provide needed services.
Recommendations: Villages and communities that are candidates for rehabilitation should be identified and restored when feasible so that their historic integrity is preserved, owners receive restoration tax credits, and small business development is encouraged. County, state, and federal government should also provide financial and other incentives for such rehabilitation projects and encourage private enterprise to contribute to such efforts, perhaps through some form of impact fees.
Many parts of the country have recognized that heritage tourism can play an important part in their economy. In Jefferson County, Shepherdstown and Harpers Ferry have made major strides in this area by restoring historic sites that have economic potential and promoting their offerings to visitors. Such projects require a long-term investment in capital improvements so that historic buildings and sites can be restored and made ready for tourists. Once these improvements are made, the sites have the potential of generating revenues that can be used to restore or maintain historic structures.
Jefferson County has also taken some important steps toward rehabilitating historic structures for use in heritage tourism. The most significant effort to date has been the creation of the Peter Burr Living History Farm by the Jefferson County Historic Landmarks Commission. This 8-acre site at Bardane includes the oldest standing wood frame structure in West Virginia. The house is being restored to its late-18th century condition. When the project is completed, a barn and other outbuildings will enable visitors to experience life on an 18th-century working farm. A visitors' center and needed infrastructure are planned for the 2001 - 2002 period. Revenues will be generated through admission fees, arts and crafts workshops for adults and children, exhibits, fairs, and performances. This project can serve as a model for similar heritage tourism projects in the county.
The Jefferson County Commission has recognized the importance of this project by providing some funding during the past two years, and additional money has been raised through grants, state appropriations, and private donations. Unfortunately, the funding from these sources has not been consistent enough to allow long-term planning of capital improvements. Major funding sources often look for this kind of long-term commitment as evidence of a community's interest in a project.
Events such as the Mountain Heritage Arts and Crafts Festival, the Over the Mountain Studio Tour, and the Annual House and Garden Tour have demonstrated that it is possible to draw substantial numbers of tourists to Jefferson County and generate profits. However, such endeavors often take years to develop, and historic sites must find funds to see them through their startup period.
Recommendations: The County should find a consistent source of revenue for historic preservation projects so that long-term planning can be accomplished and other potential donors can be convinced of the county's commitment to preservation and heritage tourism. A private nonprofit organization should be established to perform fund raising for preservation related projects within the county. The Peter Burr Living History Farm should be funded at a level that enables it to make needed capital improvements and perform operational activities consistent with running a living history farm.
In addition to the major issues discussed above, the following issues and recommendations should be addressed to ensure that historic preservation remains an important value in Jefferson County's future:
• Encourage historical research and archival activities at the local level. Through these activities, many of the less obvious sites worthy of preservation or exploration can be identified and the significance of other, more visible, sites can be better appreciated.
• Continue and expand the work of the Jefferson County Historic Landmarks Commission as allowed by state law.
• Develop a Preservation Partners organization to encourage local businesses to support preservation efforts and to explore ways in which they can benefit from heritage tourism.
• Promote accessibility to and tourist awareness of historic sites with due regard for the privacy of the owner of the landmark.
• Require demolition permits for structures older that 50 years (the minimum age requirement for National Register sites).
• Where historic sites have been identified, new development should be harmonious with existing architecture. This includes public buildings and "street furniture" constructed in historic areas.
• Establish an Architectural and Historic Site Review Commission to ensure that significant parts of our cultural heritage are preserved.
• Seek continued funding for restoration of West Virginia Highway markers in Jefferson County and provide adequate parking so that tourists can enjoy these sites in safety.
• Encourage conveyance of architectural easements to the County to protect historic areas.
• Encourage the development of tax incentives to preserve or maintain structures of historic interest.
• Alert residents and developers to the incentives and resources available to preserve historic sites and structures.
• Identify areas of high archaeological potential and require that these areas be adequately investigated before destructive development occurs.
• Develop and adopt regulations for renovation of historic buildings to require that structures be externally preserved in their original form.
• Develop and adopt regulations relating to the preservation, restoration, and landscaping of sites identified as national, state, or county historic landmarks.
• Through the Main Street Program (National Trust for Historic Preservation) encourage the use of second stories, attract desirable tenants, improve parking, and remove undesirable facades.
• Ensure that adequate space is allotted for storage, use, and preservation of county records when new space for county services is being planned.
• Identify archaeological resources as part of community impact statements.
• Encourage communication and cooperation among county and municipal landmarks associations on matters of mutual concern.
• Encourage Shepherd College and Harpers Ferry National Historic Park to work cooperatively with local landmarks commissions to provide information, training, and technical support for local preservation efforts.