HISTORIC PRESERVATION

PLANNING AND
MANAGEMENT
FRAMEWORK
 “Classic” Planning Model
Sequence

SURVEY ANALYSIS PLAN

Source: Hall 1975

 “Classic” Planning Model
Sequence
• First worked out and taught by Patrick
Geddes and taught formerly from about 1920
– 1960.
• “Planning” is concerned with the production of
plans, which gave a detailed picture of some
desired future end state to be achieved in a
certain number of years.
• The philosophy behind the process was
heavily oriented towards the concept of the
fixed master plan.
 “Classic” Planning Model
Sequence
• Firstly, the planner made a survey, to collect all
the relevant information about the
development of the area.
• Secondly, the data is analysed, seeking to
project them as far as possible into the future
to discover how the area was changing and
developing.
• Thirdly, a plan is made which took into account
the facts and interpretations revealed in the
survey and analysis, and which sought to
harness and control the trends according to
 “Classic” Planning Model
Sequence
After a few years the process should be
repeated:
• the survey should be carried out again to
check for new facts and developments,
• the analysis should be reworked to see
how far the projections needed modifying,
and
• the plan should be updated accordingly.
 “Contemporary” Planning
Sequence
Projection &
Continuous
Goals Simulation of
Information
Alternative Futures

Continuous
Evaluation Choice
Monitoring

Source: Hall 1975

 “Contemporary” Planning
Sequence
• Concentrates on the objectives of the plan
and on alternative ways of reaching them,
all set out in writing rather than in detailed
maps.
• The emphasis is on tracing the possible
consequences of alternative policies, only
then evaluating them against the
objectives in order to choose a preferred
course of action.
 “Contemporary” Planning
Sequence
• Cybernetics is essentially a way of organizing
existing knowledge about a very wide range
of phenomena.
• Its central notion is that many such
phenomena can usefully be viewed as
complex interacting system.
• By introducing appropriate control
mechanisms, the behavior of the system can
be altered in specific ways, to achieve certain
objectives on the part of the controller.
 “Contemporary” Planning
Sequence
• The point here is that it is necessary to
understand the operation of the system as
a whole (though not necessarily in
complete detail throughout) in order to
control it effectively; unless this is done,
actions taken to control one part of the
system may have completely unexpected
effects elsewhere.
 Heritage Tourism Planning
• The need for coordinated and integrated
heritage tourism planning arises out of the
need to balance the interests of different
groups in the destination area and ensuring
that tourism remains a viable and
‘sustainable’ industry.
• “Planning is concerned with anticipating and
regulating change in a system, to promote
orderly development so as to increase the
social, economic and environmental benefits
of the development process” (Murphy, 1985:156).
 Colliers’ Steps in Planning
It involves an analysis of the future and the
setting of basic goals and objectives for the
destination (Collier 1991). The steps Collier
proposed are:
• Establish a goal or objective, ie. the desired
end result or target.
• Define the present situation, ie. a
determination of how far we are from the
stated goal and what resources are
available.
 Colliers’ Steps in Planning
• Identify aids and barriers; these are the
factors which will help or hinder the
achievement of objectives.
• Develop a set of action plans; analyze and
choose the most suitable action plan
which will achieve the objectives.
• Monitor performance; to ensure that it is
on track and that the objectives set will be
achieved within the stated time.
• Structured tourism plans recognize the
long-term implications of tourism activity
and attempt to minimize the negative
impacts, while at the same time extracting
maximum benefits.
• Planning is necessary to avoid
deterioration of the very resources upon
which service businesses are based.
• Planning is also needed in many areas to
ensure that tourist resources such as the
ocean front and views are made available
on an equitable basis.
• To develop a satisfactory tourist product
and acceptable image requires the
cooperation of many sectors, so the wider
the support for its goals the more
successful will be the industry.
• When effectively implemented, planning
can reduce overcrowding and provide a
more equitable spread of visitors for the
benefit of all tourist services.
• Planning, therefore, requires goals to
provide a frame of reference for detailed
physical planning and daily operation.
• As areas develop or become
overdeveloped, both crowds and
transportation systems can destroy
features of the destination that first
attracted visitors.
• Hence, communities must start to
appreciate the fragility of certain resources
(such as heritage) and protect them if they
are to develop a long term industry.
• The hypothesis of ‘Destination Cycle
Models’ proposed by Butler, Plog and
others is that destinations carry with them
the potential seeds of their own
destruction if they allow themselves to
become over-commercialized and forsake
the unique appeals which made them
popular (Butler, 1980; Reime & Hawkins, 1979; Pierce, 1987).
Destination Cycle Models

Source: Butler, 1980

• Prolonging the life-cycles can be done if
steps are taken to adapt to anticipated
change and prevent degradation through
enlightened planning.
• To date, most tourism goals and planning
have been oriented single-mindedly
towards business interests and economic
growth, both on the part of the private
sector and governments (Murphy, 1985).
• The tendency towards economic-oriented
goals is incomplete and can be damaging
as a planning goal (Gunn, 1979).
• A more suitable series of goals encourage
satisfactions to users, rewards to owners
and protected utilization of environmental
resources.
 McIntosh Tourism’s Goals
McIntosh (cited in Murphy, 1985:157)
proposes the following goals within a
community framework:
• Provide a framework for raising the living
standard of local people through the
economic benefits of tourism.
• Develop an infrastructure and provide
recreation facilities for both visitors and
residents.
 McIntosh Tourism’s Goals
• Ensure that the types of development
within visitor centers and resorts are
appropriate to the purposes of those
areas.
• Establish a development program that is
consistent with the cultural, social and
economic philosophy of the government
and people of the host area.
• While the literature on planning
frameworks has made some important
contributions to the development of
communities, it has rarely provided a
detailed, structured, role for local people
within organizational frameworks.
This section:
• provides a background to pertinent
planning frameworks for heritage
tourism development,
• identify problems within the frameworks.
• highlight a framework that is of specific
relevance to ‘historic’ regions.
• also expand and refine the chosen
framework, thereby rendering it
applicable to other communities.
 Tourism and the Planning
Process
• While ‘master plans’ and other planning frameworks
are good in principle, they have been criticized for
imposing barriers to developments (Murphy, 1985).
These include:
• encroachment on citizens’ freedom and high cost of
intensive research for the creation of a database,
• inflexibility of the ‘master plan’ to sufficiently adapt
to changing conditions during the life of the plan,
• the analysis often does not consider implementation
process or roles of organizations involved.
• These barriers and shortcomings identified
in traditional planning models prompted
the search for new paradigms (Murphy, 1985).
• As a result, the goals of tourism
development have expanded to
incorporate community and environmental
issues, giving rise to an ‘integrated
approach’ in planning (Figure 1.1).
Figure 1.1: PASOLP Model for Tourism Planning
Source: Baud-Bovey and Lawson in Murphy 1985:16
• The trend towards an integrated approach
is a move towards systems planning where
the process is a continual one aimed at
partial development, constant monitoring
and revisions.
• This new concept is derived from
cybernetics- “the idea of (constant)
interaction between two parallel systems:
the planning controlling system itself, and
the system...which it seeks to control” (Hall,
1975:271).
• Since the scope of the plan evolves over
time, such ‘flexibility’ enables it to adjust to
changing circumstances, producing long-
term results which are more complete and
of superior quality than a series of
separate master plans.
• Further developments in the planning
process now include impact phases
where the socio-economic and natural
side effects are monitored and the plan
changed if its external effects prove to be
negative.
• Figure 1.2 shows the monitoring and
feedback process in the Product’s
Analysis Sequence for Outdoor Leisure
Planning (PASOLP) developed by Baud-
Bovey and Lawson (1977).
Figure 1.2: System Planning using the PASOLP approach
Source: Baud-Bovey and Lawson in Murphy 1985:161
• Shortcomings still exist in these models, for
as Murphy (1985) pointed out, the Baud-
Bovey’s model reveals no opportunity for
local citizen participation; “Yet, the
residents must put up with congestion, put
on the ‘smile,’ and live with the physical
development” (Murphy, 1985:163).
• To become a self renewable resource
industry and agent of hospitality, planning
models require greater local citizen
participation in the development of a
tourist destination.
 The Personality Planning
Framework
• The need for the inclusion of citizen
participation has prompted the development
of innovative techniques in the planning
process.
• One such innovation – the Personality
Planning Model – proposed by Rosenow
and Pulsipher (1979) tried to address this
issue.
The model encompasses the broad principles
of attraction development (Rosenow & Pulsipher,
1979):

• The basic integrity of the attraction should

be maintained at all costs.
• Development should be done tastefully and
with a sensitivity to the natural, historical
and cultural environment.
• Emphasis should be on providing a
meaningful visitor experience.
• Wherever possible, users themselves
should help fund the upkeep of attractions,
especially for camping and other site-
intensive activity.
• The model aims at involving the people
affected by the plan in the entire planning
process. This is important since many action
programs must be implemented through the
initiative of individual landowners or citizens.
• Provision must, therefore, be made in the
planning process to provide for input, review
and feedback by both decision makers and
citizens.
  The importance of citizens’ action is expressed
by Pearl Chase (community activist of Santa
Barbara):
“Government officials are really temporary-they
come and go-and this constant turnover
means that many citizen organizations have
far greater continuity and relative importance
in community affairs. Don’t assume leadership
will come from the professions; you often
won’t find it there. If you’re to succeed, you
must be led by citizens and citizen groups,
with the interest and support of key public
agencies” (Rosenow & Pulsipher, 1979) [emphasis added].
The personality planning process is
designed to:
• help communities establish a vision of their
potential,
• define objectives for appropriate
development,
• then seek action programs meeting these
objectives while recognizing the rights and
concerns of individual citizens.
• The preservation and creation of
community features are desirable.
• The process of Community Personality
Planning could provide an effective way to
identify elements making a geographic
area unique, and assist in formulating
specific action programs to enhance that
uniqueness.
The four steps proposed by Rosenow and
Pulsipher (1979) for the Personality
Planning Process are:
1. Delineate Distinctive Features;
2. Plot Critical Zones;
3. Establish Use Objectives;
4. Formulate Specific Action Programs
• Although the personality planning
framework emphasizes lead roles for
citizens’ organizations, it also recognizes
the roles for government in the process.
• The state is seen as the logical developer
of attractions of a natural or historic nature,
ensuring the public right of access and
preservation of these resources.
• Where competing businesses cannot agree
on beneficial joint action, the state can help
to provide overall direction aimed at
achieving the public good.
• The emphasis on community participation in
the ‘personality planning model’ makes it
appropriate for historic towns, since local
participation is often a key objective.
• In its four steps, however, the model fails
to show how, and at what stage, residents
become involved in the planning process.
• It also made no mention of the post-
implementation period.
• Another problem is the spatial and
physical orientation of the model, for it
does not address the features that are
temporal and intangible.
• This author’s contribution to further
refining the model is through the inclusion
of ‘coordination of organizations’ as the
first step in the process.
• The incorporation of temporal features and
activities that make a place unique are
added, and issues that will make a plan
‘sustainable’ over the long term are
addressed.
• For Heritage Canada the creation of
steering committees to coordinate
fragmented efforts of organizations
throughout its Heritage Region programs
has proven very successful (Bowes 1993; HC
1994).

• These steering committees consist of

representatives from existing community
organizations in the regions.
• The Heritage Region Program is based
on the premise “that members of a
community must have shared values
and a clear sense of identity, context
and continuity if they are to marshal
their resources effectively and cope with
change” (UNESCO, 1982, cited in Bowes, 1993:10).
• The approach taken by Heritage Canada
for regeneration ties together education,
conservation and entrepreneurship, using
natural and cultural resources as the basis.
• Its main thrust is aimed at motivating
existing organizations with isolated
initiatives to make partnerships for
progress.
The key principles of Heritage Canada’s
approach include:
• broad public involvement,
• a community-driven agenda,
• a self-help orientation,
• incremental change over time, and
• a continuous presence in the
community.
Benefits to the communities usually occur
through:
• greater public awareness of heritage
resources;
• raised confidence in heritage resources as
viable business ventures;
• increased cooperation amongst jurisdictions,
organizations, businesses, other interest
groups and individuals; and
• growth in tourism arrival and revenues (Bowes,
1993; HC, 1994).
• These results can be gained
simultaneously with profitable returns on
investments.
• It is critical that the regions have strong
local leadership, a large number of
volunteers and a critical mass of interested
communities.
• Heritage Regions works with residents to
identify, protect and enhance their natural
and cultural heritage and use it as a basis
for economic revitalization (Bowes, 1993).
• Sustainable tourism in this context
contributes to the achievement of this
goal.
Initial steps include (HC, 1994):
• establishing a coordinating organization
with an effective management structure;
• developing a logo to give a distinct image;
• undertaking successful fund-raising
activities; and
• creating linkages with existing heritage
regions.
The coordinator in each region works with
residents through regional committees on
a seven point approach:
1. organization;
2. heritage resources identification and
protection;
3. education and training;
4. economic development;
5. design;
6. marketing;
7. monitoring and evaluation.
 Trends and Principles of
Heritage Regions
The common trends and principles identified
throughout the heritage region are (Bowes,
1993; HC, 1994):

• Community participation is important.

• Residents need to show interest.
• It is essential to have cooperation between
governmental, NGOs and private
organization.
 Trends and Principles of
Heritage Regions
• Contributions by volunteers are essential.
• Economic revitalization occur in all cases.
• Tourism increase in all cases which results
in positive economic impact.
• The economic structure of the
communities changed.
• Preservation, conservation and restoration
increased.
 Trends and Principles of
Heritage Regions
• Public pride and awareness increased in
the communities.
• Increase in job opportunities for local
residents.
• Creation of new business ventures in
tourism.
Taking the above into consideration, the
[Expanded] ‘Personality Planning Process’
being proposed for adaptation to historic
regions will include the following steps:
1. Coordination of organizations;
2. Delineating of distinctive features;
3. Plotting of critical zones;
4. Establishment of use objectives;
5. Formulation of specific action programs.
 The “Expanded” Personality
Planning Framework
• Coordinate Organizations;
• Delineate Distinctive Features;
• Plot Critical Zones;
• Establish Use Objectives;
• Formulate Specific Action Programs
 Coordination of Organizations
• The idea behind this step is to coordinate the
fragmented efforts of the various organizations
and groups in a community working toward
plans of action in order to arrive at a
consensus.
• Joining forces will achieve greater and more
enduring results.
• The community at this stage will be able to
define objectives and policies for its own
development.
• A steering committee consisting of
governmental organizations, NGOs and
citizen organizations will coordinate the effort
to define the objectives and policies.
• Organizations within the coalition would
undertake their own activities to generate
ideas from their constituents on social,
economic and developmental issues.
• These ideas would then be taken to the
steering committee for coordination and
ratification.
The coalition will further seek consensus on
effort such as:
• residential awareness programs;
• plans of action;
• implementation procedures; and
• monitoring procedures.
• For this to work, however, it is critical to have
a mass of motivated volunteers and a
community that is interested in its
redevelopment.
• The steering committee will seek to sensitize
residents about heritage resources and to
make them more conscious of opportunities
in a heritage environment.
• Increased public pride and awareness in the
communities is also a key objective.
• This will be done through existing
organizations and new ones, if required to
incorporate different subsectors.
• The methods of delivery will be through schools,
the print media, television and radio and public
meetings.
• Programs will highlight elements in the
community that residents will be able to identify
with – the importance of local trade and of
traditional and vernacular architecture.
• Programs will also include the storytellers, craft
artisans, musicians and other folk artists who
will be encouraged to pass on this heritage to
others so it can be preserved for future
generations.
• The coordination of tourism with other economic
activities and the integration of tourism
development in the overall economic and
physical development plans of the region is a
critical task.
• To achieve such coordination, action plans will be
developed that are in keeping with the vision of
the community.
• The plans will seek to ensure that, as far as
practicable, the image presented by the
destination is matched by the extent of
environmental protection and facilities provided.
• These plans will include appropriate
projects that will enhance the personality
of the community.
• They will also seek to develop social
programs for the community from funds
generated by tourism; and develop direct
marketing techniques for presenting the
product to the consumer.
• Identifying and developing training needs for
the community such as workshops on the
operation of Bed and Breakfast businesses
as an objective.
• Coordination will also involve undertaking
successful fundraising activities to raise
capital for projects.
• Finally, seeking official heritage designation
from the state to prevent inappropriate
development taking place in the area.
• The creation of an implementation plan will
promote orderly development through the
definition of roles for the various organizations.
• This will require proper phasing of action
programs and the identification of appropriate
organizations to implement the programs.
• This often requires state investment in areas
that cannot attract private investors and in the
provision of incentives such as subsidies and
low interest rates for certain developments.
• Another important role of the committee will
be to monitor overall changes in the
community.
• This will help determine whether to continue
present policies or whether modification or
re-planning is required.
• Change and modification of strategies will
be necessary if social problems develop or if
performance goals and targets are not met.
• Finally, new conditions will also influence
policies and earlier decisions.
• Specific actions may include modifying
allocations and emphasis in the
promotional budget;
• making investors more aware of
investment opportunities;
• modifying subsidies for implementation of
facilities; and
• reconsidering selected programs.
 Delineating Distinctive Features
‘Distinctive Features’ are the elements in a community
that give it a special character. They include:
• historical resources;
• urban and rural landscape features;
• ethnic and cultural features;
• recreation areas;
• scenic resources;
• natural areas;
• waterfronts; rivers and stream; wetland;
• geologic/ecological features and dominant land
forms.
• The existing features are inventoried and
mapped out along with planned future ones.
• The next move is to establish a hierarchy
establishing the relative importance of the
features.
• Out of this accumulated information a tangible
delineation of those elements that are most
important if the community is to perpetuate its
cultural birthright will begin to emerge.
• In the critique of the personality planning
framework by Rosenow and Pulsipher
(1979), it was pointed out that the
framework emphasizes only physical,
identifiable features, while little or no
attention is given to intangible features.
• The intangible features referred to are local
traditions, customs, folklore, festivals,
celebrations, music, dances, religions and
religious ceremonies, arts, crafts, food,
other cultural activities and one-of-a-kind
event that gives a place personality.
• Baud-Bovey and Lawson (1977) consider
that these resources are the most fragile
and often are threatened by
commodification, a result of the economic
development that come from tourism.
• Baud-Bovey and Lawson comment, “These
local characteristics may be authentic and
have a genuine place in the life styles of an
area up to a certain low threshold of
visitors. As the visitors increase, the local
traditions and customs accelerate and are
replaced by staged events deliberately
provided as a spectacle for tourists” (Baud-
Bovey & Lawson, 1977:202) [emphasis added].
• Local handicrafts are often substituted by
imported mass produced articles.
• They urge the implementation of a national
tourism plan that encourages “local crafts,
arts and cultural activities, by adapting
these to the tourist image and to the
tourists’ need” (Baud-Bovey & Lawson, 1977:202).
 Plotting Critical Zones
• Critical zones are the most important zones
used by residents and visitors.
• To establish critical zones, the location of
the distinctive features are examined in
relation to visitors’ and residents’ activity
patterns.
• Visual quality is of utmost importance within
the critical zones since these zones are the
community’s public face.
• As such, both residents and tourists stand
to gain the most from quality development
and the most to lose from inappropriate
development of these areas.
• Here, every effort should be made to
provide visually pleasing and
environmentally compatible land uses.
• Critical zones should include community
entrance routes, major travel corridors,
distinctive features and areas where people
congregate. Visual foreground and
background areas should be included.
• In regard to intangible features that are
distinctive to a community, while they might
not be able to be mapped out in a physical
sense, they can be visualized spatially and
in the seasonal contexts in which they occur.
 Establishing Use-Objectives
• ‘Use-objectives’ within the critical zones
establishes the type of actions to be taken.
• These actions may include: reenacting,
rejuvenating, reproducing, revitalizing,
reviving, reanimating, reawakening,
repairing, preserving, retaining, enhancing,
conserving, restoring, rehabilitating,
reconstructing, modifying or demolishing.
• These strategies will guide developments
in critical zones. Table 1.1 lists possible
use objectives for physical features and
the degree of change implied.
Table 1.1
None Some Much Total
(Minimum repair
and Maintenance)
Repair *
Preservation *
Retention *
Enhancement * * *
Conservation * * * *
Restoration * * *
Rehabilitation * * *
Reconstruction * * *
Modification * * *
Demolition * * *

Table 1.1
Possible use-objectives by the degree of change implied
Source: Dobby 1978:19 (Amended)
• Use-objectives will also be implemented
for intangible distinctive features
discussed previously; the objective will be
to maintain and perpetuate these
elements without unduly sacrificing their
traditional function and meaning.
• While one or more new use-objective may
be appropriate for a critical zone, drastic
modification should be avoided.
• Drastic modification which allows extreme
alterations may develop features that
visually dominate or destroys an area’s
character.
• However, if drastic modification is
unavoidable, every effort should be made
to mitigate the negative impacts.
• A retention use-objective would provide for
activities not visually evident, thus
maintaining the character of the landscape,
buildings or other features.
• The guiding criterion would be the
retention of the basic visual appearance of
the area. The focus of enhancement is to
create, alter or remove obtrusive elements.
 Formulating Specific Action
Programs
• Action programs detail the methods and
phasing required to successfully implement
the policies and strategies previously defined.
• Actions programs are the vehicles used to
promote the plan, implement new features,
organize the tourist industry, and control and
protect features.
• These programs involve determining the
sequence of operation and the authority in
charge.
• The launching phase should be designed so
as to be attainable within the framework of the
existing legislative and administrative
structure.
• This first phase should also promote the
gradual implementation and enforcement of
new regulations and authorities required for
future stages of development.
• There will also be a clear identification of the
various bodies that will be responsible for
carrying out each activity.
Subsequent action programs may include
• zoning,
• expropriation,
• the purchase of scenic easements and
development rights,
• sign control ordinances,
• landscaping,
• purchase and preservation of historical
buildings,
• united action for storefront improvements
and so forth.
• Mechanisms will also be developed to
determine carrying-capacity limits.
• This may mean restricting and limiting
access to critical zones by people and
vehicles and the scheduling of activities
with respect to time and season.
• The action programs will also seek to address
certain intangible features.
• This will call for the re-enactment of celebrations,
festivals and events in their spatial, seasonal and
contextual setting, to ‘bring-back’ a sense of time.
• Such programs will diversify and re-animate
events and activities throughout the year and give
visitors different events in which to participate.
• Events could include balls and dances in period
costumes and settings, public market places,
military parades, social settings and life styles of
ethnic and religious groups and important
personalities.
• Action programs can either be legislated or
voluntarily enacted depending on their nature.
• It would, however, take a combination of effort
by the community, individual citizens,
governments and tourism operators to
implement the actions.
• Action programs should prevent the
destruction of the character of places and, at
the same time, stimulate growth that
recognizes the objective of perpetuating key
elements that give a place its own personality
and uniqueness.
• Action programs need to include training
to prepare the residents in the community
to accept and participate in the overall
development.
• Policies adopted and facilities provided
must be sufficiently flexible to allow for
changing conditions.
 Conclusion
• Traditionally, tourism development and planning in
peripheral destinations has followed a path that is
more often supportive of the TGAs and at the
expense of TDAs.
• If destinations seek to control their tourism industry
they should develop distinctive and indigenous
features to give visitors unique and ‘authentic’
experiences.
• Following a ‘sustainable’ path of development will
allow TDAs to gain tremendous economic and social
benefits from tourism and prevent negative impacts
that often destroys the TDAs.
 Conclusion
• Any planning and management framework
must establish a development process,
which will guarantee that, in the end, all
parties involved in the tourism industry will
gain.
• Most importantly of all, is the realization
that there are tremendous opportunities for
local residents in all levels of the industry.
 Conclusion
• Effective community participation in the
planning process is often hindered by
communication barriers and a lack of credibility
for the process, as a result of cultural
differences between planners and residents and
inadequate understanding of local culture as a
result of short visits by planners (Woodley 1993).
• For plans to be effective; they should give a
detailed outline and concrete examples of how
the community can actively and effectively
participate in the process.