
Georgia Heritage: Promoting Cultural, Educational, and Economic Development

Final Report and Recommendations of the
Governor’s Commission on Georgia
History and Historical Tourism
February 2003
Cover Photos
(left to right, from top)
1.Dedication of
the Georgia Historical Society Coheelee Creek Covered Bridge historical marker
near Hilton
2. Visitors from
the Ivory Coast at the martin Luther King jr. boyhood home in Atlanta
3.
Archaeological dig site for students at Fort Frederica National Monument on St.
Simons Island
5. Reenactor
portraying James Oglethorpe at Fort Frederica National Monument on St. Simons
Island
6. Kennesaw
Mountain National Battlefield in Cobb County
7. Student
dressed as James Oglethorpe for the annual Georgia Day parade in Savannah
8. Stone
Mountain
9. Restoration
of the Taliaferro County courthouse in Crawfordville
10. Georgia
Department of Natural Resources historical marker repair shop at Panola
Mountain Park
11. U.S.
National Parks Service ranger working with students at the Fort Frederica
archaeological dig site
12.
Starr’s Mill in southern Fayette County
13. Reenactment of James
Oglethorpe’s meeting with Yamacraw Indians in Savannah
Table of Contents
Foreword
5
Membership of
Governor’s Commission 6
Executive Summary 11
Findings 13
Complete List of
Recommendations 18
Highest-Priority
Recommendations 24
Appendix A: House Bill 190 32
Appendix B: Economic Impact
of Historic
And Cultural Tourism in
Rural Georgia 38
Appendix C: OneGeorgia
Authority Map of
Georgia Counties by Tier 44
Appendix D: Persistent
Poverty Map of Georgia Counties 45
Appendix E: History of State
Government Involvement in
Georgia Heritage 46
Appendix F: Proposed Bill to
Create a Georgia
Heritage Commission 51
Appendix G: Proposal for a
Georgia Heritage
Strategic Plan 55
Appendix H: Georgia Heritage
Commission
Special Initiative 57
Appendix I: Georgia Heritage
Special Initiative Participants 59
Appendix J: Additional
Recommendations on
Georgia Historical Markers 64
Appendix K: Statutory
Requirements for Teaching
Georgia History and
Government in Public Schools 65
Appendix L: Proposed Bill to
Amend O.C.G.A. Sec. 20-2-142 67
Appendix M: Facelifts for
Texas Courthouses 68
Foreword
This report
presents the findings and recommendations of the Governor’s Commission on
Georgia History and Historical Tourism. In reviewing those recommendations,
there are several clear and repeated themes—that heritage is important
for many reasons, Georgia heritage is endangered by many forces, and heritage
can have a tremendous economic impact on Georgia. It is also clear that we are
falling far short of taking full advantage of our potential, particularly in
many of Georgia’s poorest counties.
During the past
year, the Commission has held meetings and public hearings across the state. We
have listened to the concerns and hopes of Georgians who care about their
heritage. We have also seen some of the “new Georgians”—those
not born here but who moved here and are now Georgians by choice. One
consistent theme we have noted is that Georgia is not doing enough to promote
and protect its heritage.
In this report
are 55 specific recommendations for what needs to be done to promote and
benefit from our heritage. Of these, the Commission has identified 14 that
deserve special and immediate attention. Some of these recommendations require
little or no funding—but they do require legislative action during the 2003
session of the General Assembly.
Much remains to
be done, and this report outlines a specific plan for the future that involves
public and private heritage partnerships to take greater advantage of the
substantial cultural, educational, and economic benefits associated with our
heritage.
I need to
express my appreciation to all members of the Commission for their invaluable
contributions to this undertaking. A special thanks goes to Elaine Bolton,
Commission secretary, for maintaining records and minutes of the meetings and
public hearings and helping in many different ways. Also, I would like to
personally acknowledge committee chairs Ed Cashin, Bill Hardman, and Lisa White
for their strong leadership and accomplishments during our year-long undertaking.
We simply could not have completed our mandate had it not been for the
outstanding work of our committees.
With this
report, the Commission completes its statutory mandate, having done so without
benefit of any state funding.
Edwin L. Jackson
Chair
Governor’s
Commission on Georgia History and Historical Tourism
Membership of Governor's Commission
on Georgia History and Historical
Tourism
Interim
Executive Director
Atlanta
History Center
Atlanta
Former Chair
Georgia
Civil War Commission
Duluth
Mr. Karl
W. Barnes
Georgia
African American Historical Preservation Network
Atlanta
Mr.
Lonice Barrett
Commissioner
Georgia
Department of Natural Resources
Atlanta
Ms.
Rebecca C. Basset
Georgia
Department of Industry, Trade, and Tourism
Columbus
Former
Executive Director
Atlanta
History Center
Atlanta
The
Honorable Peg Blitch
State
Senator, District 7
Homerville
Ms.
Elaine H. Bolton
(Commission Secretary)
Former
Executive Director
Macon
Heritage Foundation, Inc.
Macon
Dr. David W. Carmicheal,
Director
Georgia
Archives
Atlanta
Dr.
Edward J. Cashin Jr. (Chair,
Public Information and Education Committee)
Director
Center for
the Study of Georgia History
Augusta
State University
Augusta
The
Honorable Cathy Cox
Secretary
of State
Atlanta
The
Honorable Bill Cummings
State
Representative, District 19
Rockmart
The
Honorable Burke Day
State
Representative, District 153
Tybee
Island
Ms. Rita
Folse Elliott
Educational
Coordinator
LAMAR
Institute
Box Springs
Ms. Anne
H. Farrisee
State
Capitol Historian
Atlanta
Ms.
Helen Fincher
President
Gainesville–Hall
County Convention and Visitors Bureau
Gainesville
Ms.
Elizabeth F. Garcia
Director,
Georgia Music Hall of Fame
Macon
Dr. W.
Todd Groce
Executive
Director
Georgia
Historical Society
Savannah
Mr. Bill
Hardman (Chair,
Historical Tourism Committee)
President
& CEO
Southeast
Tourism Society
Atlanta
Ms.
Cathy M. Hodge
Wes Mar
Inc. Educational Publishing
Norcross
Ms.
Robynn L. Holland
Social
Studies Program Specialist
Georgia
Department of Education
Atlanta
The
Honorable George Hooks
State
Senator, District 14
Americus
Mr.
Edwin L. Jackson
(Commission Chair)
Senior
Public Service Associate
Carl Vinson
Institute of Government
University
of Georgia
Athens
Mr.
James B. Langford Jr.
President,
Coosawattee Foundation
Calhoun
Dr. Ray Luce
Director
Historic
Preservation Division
Georgia
Department of Natural Resources
Atlanta
The
Honorable Jo Ann McClinton
State
Representative, District 68
Atlanta
Ms.
Dorothy Olson
Director,
State Capitol Museum
Atlanta
Dr.
Craig S. Pascoe
Director
Center for
Georgia Studies
Department
of History and Geography
Georgia
College and State University
Milledgeville
Mr.
Gregory B. Paxton
President
and CEO
Georgia
Trust for Historic Preservation
Athens
Ms. Dany
Marie Ray
Eighth-Grade
Georgia Studies Teacher
Washington
Middle School
Cairo
Ms. Jo
Ann B. Ray
Former
Administrative Director
Georgia
Association of Museums and Galleries
Newnan
The
Honorable Edward D. Ricketson Jr.
Mayor
City of
Warrenton
Mr. Alan
F. Rothschild Jr.
Attorney-at-Law
Hatcher,
Stubbs, Land, Hollis & Rothschild
Columbus
The
Honorable Faye Smith
State
Senator, District 25
Milledgeville
Ms.
Sandy L. Spicer-Lee
Assistant
Director
Parks, Recreation
and Historic Sites Division
Georgia
Department of Natural Resources
Atlanta
Ms. Mary
E. Stakes
Public
Service Associate
Carl Vinson
Institute of Government
University
of Georgia
Athens
The
Honorable Tracy Stallings
Former
State Representative, District 100
Carrollton
The
Honorable Horacena Tate
State
Senator, District 38
Atlanta
The
Honorable Michael Thurmond
Georgia
Commissioner of Labor
Atlanta
Ms. Lisa
L. White
(Commission Vice-Chair and Chair, Organization and Funding Committee)
Attorney-at-Law
U.S. Army
Corp of Engineers
Savannah
Dr.
Jamil S. Zainaldin
President
Georgia
Humanities Council
Atlanta
Additional
Persons Who Participated in the Commission and Committee Meetings
Mr.
Terry Jackson
Director,
Office of Decision Support Systems
Planning
and Environmental Management Division
Georgia
Department of Community Affairs
Atlanta
Ms.
Allison McCullick
Office of
the Secretary of State
Atlanta
Mr. Erik
Kind
Budgetary
Responsibility Oversight Committee
Atlanta
Carl Vinson Institute of Government
Athens
Planning
and Environmental Management Division
Georgia
Department of Community Affairs
Atlanta
Legal
Staff Support:
Ms.
Cynthia Thompson
Office of
Legislative Counsel
Atlanta
Executive Summary
In 2001, the
Georgia General Assembly created the Governor’s Commission on Georgia
History and Historical Tourism. This blue-ribbon commission was given the
mandate of undertaking a comprehensive examination of what state government
does to promote and how it benefits from Georgia’s heritage and to make
recommendations to the Governor and General Assembly. One special goal was to
look at how to use historical tourism more effectively as a tool of economic
development, especially in rural Georgia.
As has been well
documented, a substantial number of Georgia counties—particularly those
south of the Fall Line—are at risk in terms of their economic viability.
Despite the lack of jobs, infrastructure, and economic resources, most of
Georgia’s poorest counties share one thing in common: a rich legacy of
history. No matter how poor, every Georgia county has a courthouse; numerous
historic structures and sites; cemeteries, statues, and monuments; historical
markers; land records; and other resources that if properly marketed could
attract visitors interested in history and genealogy. A major state initiative
to promote heritage tourism could serve as a Marshall Plan to rural Georgia,
generating new spending, tax collections, jobs, and an enhanced quality of life.
Throughout 2002,
the Commission held meetings and public hearings around the state. As a result
of its intensive study, the Commission formulated 55 specific recommendations,
14 of which deserve special and immediate action. Highest-priority recommendations
of the Governor’s Commission are the following:
• Enact legislation to create a Georgia Heritage
Commission to encourage a higher level of collaboration, coordination, and
planning among Georgia public and private heritage entities
• Develop a long-range Georgia Heritage Strategic Plan to promote heritage knowledge, preservation, and tourism in Georgia
• Undertake a Georgia Heritage Special Initiative to develop a multiple-agency model for promoting heritage in Tier 1 and 2 counties utilizing OneGeorgia Authority funds available for promoting economic development in Georgia’s poorest counties
• Authorize completion of the state history
museum predesign and enact a mechanism that will oversee the final planning and
design phase of the new museum
• Provide
adequate and stable funding for the grants program of the Georgia Historical
Records Advisory Board
• Establish and fund a historic courthouse and
city hall rehabilitation and maintenance program
•
Develop a coordinated system of historic and prehistoric sites, repositories,
and museums to interpret Georgia history and provide destinations for
educational and heritage tourism programs
•
Evaluate Georgia’s historical marker programs and provide adequate and
stable funding to ensure appropriate coverage of all major aspects of Georgia
heritage
• Establish and
provide funding for an adequate underwater archaeological program, building on
the experience of surrounding states
• Create regionally
based advisors to assist local governments and historical societies in the
preservation and marketing of historical records
• Amend
O.C.G.A. Sec. 20-2-142 to bring state statutory requirements for teaching
Georgia history and government in public schools into compliance with the State
Board of Education’s Quality Core Curriculum (QCC) and to provide
opportunities for students moving to Georgia after the eighth grade to fulfill
high school graduation requirements for instruction in Georgia history and
government
•
Develop a comprehensive heritage tourism website
• Strengthen the Georgia state income tax credit
for historic rehabilitation
• Develop a Community Heritage Celebration Manual
Implementing these
recommendations will require investments of public and private funds in various
combinations, depending on the specifics of a particular recommendation.
Fortunately, some of the highest-priority recommendations can be implemented
quickly with minimal or no expenditure of funds from the FY 2003 state budget.
These recommendations include the creation of a Georgia Heritage Commission to
plan and coordinate efforts, initiation of a strategic planning process for
heritage tourism, signing of memorandums of understanding among public and
private organizations involved in heritage tourism, and implementation of a pilot
program for economic revitalization in Tier 1 and Tier 2 counties by promoting
heritage resources and tourism (which would require funding from the OneGeorgia
Authority or other sources). Some recommendations will require one-time or
short-term funding, while others may warrant long-term support. Clearly, some
Commission recommendations will have to be funded over time as the economic
health of the state improves and as partnerships with private entities for some
types of projects are explored.
In conclusion, Georgia is incredibly rich in historic and prehistoric resources. However, the Commission believes that our state is not realizing its potential in capitalizing on the wealth of heritage resources. The issue is how to effectively manage these resources in ways that are (1) economically beneficial to Georgia and its residents and (2) educationally and culturally beneficial to Georgia citizens and visitors from outside the state. The members of the Commission believe that this report addresses this issue with a comprehensive outline for the future.
Findings of the Governor’s Commission on
Georgia History and
Historical Tourism
Georgia is incredibly rich in historic and prehistoric resources. However, the Commission believes that our state is not realizing its potential in capitalizing on the wealth of heritage resources. The issue is how to effectively manage these resources in ways that are (1) economically beneficial to Georgia and its residents, and (2) educationally and culturally beneficial to Georgia citizens and visitors from outside the state.
To address this
issue, the 2001 Georgia General Assembly enacted H.B. 190, which created the
Governor’s Commission on Georgia History and Historical Tourism. The
Commission was directed to hold hearings around the state as part of a
comprehensive examination of what state government does to promote and benefit
from Georgia history and historical tourism. It was also directed to make a
final report with recommendations to the Governor and General Assembly prior to
the 2003 session. (See Appendix A for the text of H.B. 190.)
The blue-ribbon
commission consisted of over 40 ex officio and appointive members representing
major state agencies and nonprofit organizations involved in some area of
history and tourism, six members of the General Assembly, and members of the
general public. The Carl Vinson
Institute of Government at the University of Georgia provided staff support to
the Commission.
Appointments of
members by the Governor, Lt. Governor, and Speaker of the House were not
completed until November 2001. On December 4, Commission members were sworn in
at the state capitol and given their charge. Immediately afterward, the
Commission held an organizational meeting at which three committees were formed:
Education and Public Awareness, Historical Tourism, and Organizational and
Funding Issues. These three committees subsequently held a number of meetings
throughout 2002.
During 2002, the
Commission held meetings and public hearings in Atlanta, Savannah, Macon, and
Americus. These hearings were well attended by Georgians representing small
communities, museums, historic sites, chambers of commerce, convention and
visitor bureaus, city and county governments, nonprofit organizations, state
and federal agencies, and other organizations. (Testimony at these hearings can
be found on the Commission’s website at www.gahistory.uga.edu.)
One issue that surfaced early on was terminology, specifically with respect to the terms “history” and “heritage.” Typically, history is a neutral term referring to the written or oral record of the past. To some, heritage is that part of the past to be proud of and remembered, which means that heritage can sometimes amount to selective history. On the other hand, substantial portions of our past are often ignored in most history books. For example, few names of African Americans or women are found in most historical accounts of 19th century Georgia, even though they are part of our state’s heritage.
After debating
the issue and looking at practices in other states, the Commission decided to
use both terms, though generally preferring “heritage” because it
can be more inclusive than “history.” For example, while
“historical tourism” suggests visiting historical sites, the
broader concept of “heritage
tourism” involves travel to experience the distinctive heritage of an
area by visiting the places, artifacts, and activities that authentically
represent the stories, history, and traditional culture of all of its inhabitants—past and present.
Consequently, most of our recommendations are couched in terms of heritage
rather than history alone.
The
Importance of Georgia’s Heritage
Numerous rationales can be cited for the importance of a knowledge of Georgia heritage. Perhaps, the most common is the warning that those who cannot remember the past are doomed to repeat it. The Governor’s Commission finds that promoting our heritage is essential for many reasons. For example,
•
a knowledge of state and local heritage contributes to a better-informed
citizenry.
•
Heritage knowledge, preservation, and tourism are essential to community
revitalization. However, our irreplaceable heritage base erodes daily as we
neglect opportunities for preservation and utilization. We have much to lose, and
many areas of Georgia cannot afford this loss.
•
A significant portion of Georgia’s continuing population growth since the
1960s has come from residents of other states and countries moving to Georgia.
Over half of the residents of the Atlanta metropolitan area were born in
another state. Today, many of Georgia’s residents have never taken a
course in Georgia history and consequently know little about the state’s
past. A just-released Peach State Poll found that 81 percent of Georgians
are concerned that citizens today don’t know much about their
state’s history.
•
Georgians in every city and county in the state believe that we are losing not
just the tangible pieces of our past but also our identity as Georgians. Promoting Georgia state and local heritage
can result in increased community pride and awareness as residents discover
more about the role of their locality in the state’s past.
•
Promoting Georgia's heritage provides an opportunity to highlight the
state’s cultural diversity and achievements.
•
Promoting Georgia’s heritage can contribute to improving educational test
scores, particularly those of students in the fourth- and eighth-grade courses
in which Georgia history is taught.
•
In terms of area,
Georgia is the largest state east of the Mississippi and has tens of thousands
of historical and archaeological sites that need to be identified, preserved,
and promoted.
•
Georgia is at the
geographic crossroads of the Southeast and is strategically located to take
advantage of heritage tourism by out-of-state visitors coming to or traveling
through Georgia.
Georgia
Heritage as a Tool of Economic Development
Heritage
preservation and tourism have long been major contributors to economic
development in Georgia. Tourism is Georgia’s second most important
industry, generating $2 billion and 200,000 jobs in FY 2001 (see Appendix B). Federal and state tax credits for
historic preservation have generated more than $750 million in private
investment and have been the major factor in revitalizing Georgia’s towns
and cities. Georgia Main Street and Better Home programs have spurred
investment and created countless jobs in recent years. The enormous
contribution that history can play in economic development—especially in
poor rural areas—is largely underdocumented. As a result, heritage
initiatives have been inadequately appreciated, coordinated, and supported.
As has been well
documented by the Georgia Department of Community Affairs and the OneGeorgia
Authority, a substantial number of Georgia counties—particularly those
south of the Fall Line—are at risk in terms of their economic and
educational resources. The most needy have been designated Tier 1 counties; 72
counties have been accorded this status (see Appendix C for a map). More recently, 91 Georgia
counties not part of the Appalachian Regional Commission have been identified
as constituting a region of “persistent poverty” (see Appendix D for a map). Not surprisingly, many
Georgia counties are found on both maps.
Despite the lack
of jobs, infrastructure, and economic resources, most of Georgia’s
poorest counties share one thing in common: a rich legacy of history. No matter
how poor, every Georgia county has a courthouse; numerous historic structures
and sites; cemeteries, statues, and monuments; historical markers; land
records; and other resources that if properly marketed could attract visitors
interested in history and genealogy. Current technology, such as GIS mapping
and GPS locational tools, can be utilized to generate both actual and online
maps showing the location of heritage sites to both a national and
international audience. Also, the Internet allows creation of an online,
searchable website that can allow anyone to quickly find the identity and
location of sites on any topic related to Georgia heritage.
Studies have
shown that heritage tourists are better educated, visit longer, and spend more
money than other tourists. As a result, heritage tourism offers tremendous
potential to generate revenue and promote economic development throughout the
state. (See Appendix B
for examples.) Heritage tourism is especially important in those small counties
that have no battlefields, state or national parks, lakes, or other attractions
associated with traditional tourism. A major state initiative to promote
heritage tourism could serve as a Marshall Plan to rural Georgia, generating
increased spending, tax collections, jobs, and quality of life. Such an
initiative could also benefit and help preserve other areas of the state. For
example, coastal Georgia has a rich diversity of African American communities
(some of which have distinctive cultures) that have enormous potential in terms
of heritage tourism.
Georgia
Heritage as a Tool to Enhance Community Life
Heritage
knowledge, preservation, and tourism have another important function:
contributing to the quality of life for Georgia’s citizens. History has a
double purpose of helping each community see what it holds in common with
others and identifying how each community is unique.
It is through
history that members of a community are brought together and reminded of its
common past. Sometimes this past is unknown or untold. The process of
discovering and reflecting on that past helps give a community its unique and
fascinating story—where we come from, who we are, what we are part of,
and where we are headed. By learning this story, communities can see their
common past and connections with people in other times, with neighboring
communities, and with the state, region, and nation. Heritage knowledge,
preservation, and tourism provide the opportunity (and the realization) that
our own backyard is important to not only us but others who want to know more
about us and how we are connected as Georgians and as Americans. History also
helps a community appreciate that it is distinctive and unlike any other.
One goal of the
Governor’s Commission is to give validity and legitimacy to the
importance of each local story. Doing so creates a new tapestry of
Georgia’s history and development. This tapestry is endangered because
the resources that can help us recall our local stories are disappearing. State
and local history are not taught systematically; the infrastructure that we
need to preserve and perpetuate the story is poorly funded; and media entertainment
and the Internet threaten the importance and distinctiveness of local life.
Heritage
knowledge, preservation, and tourism alert citizens to the value of place.
They assert that place matters, is interesting, and is instructive of
the qualities that traditionally have been associated with our nation, such as
hard work, courage, leadership, sacrifice, self-improvement, and charity toward
others. Place also provides context for understanding conflicting values and
beliefs and our efforts to prepare for a future in which all can benefit.
People are
hungry for historical knowledge of place. Most Americans and Georgians, in one
way or another, care about what is important, what is right, and what is
worthy. Done well, heritage promotion, preservation, and tourism can be a big
part of revitalizing our communities.
The Commission was unable to
establish conclusively how many public agencies and nonprofit organizations are
involved in some aspect of Georgia heritage. Taking into account local
historical societies and other organizations, there are literally hundreds of
agencies and organizations. (For a list of major agencies and organizations,
see Apppendix I.) For the most
part, however, there is little coordination or cooperation with other agencies
and organizations involved in similar functions.
Through the
process of committee deliberations and public hearings, the Commission arrived
at 55 specific recommendations regarding how Georgia should preserve, enhance,
and utilize its heritage resources over time. Included with this final report is
a complete list of our recommendations, as well as a priority list of 14
recommendations that we feel deserve special and immediate attention.
Obviously, implementing
these recommendations will require investments of public and private funds in
various combinations, depending on the specifics of a particular
recommendation. Fortunately, some of the highest-priority recommendations can
be implemented quickly with minimal or no expenditure of funds from the state
budget. These recommendations include the creation of a Georgia Heritage
Commission to plan and coordinate efforts, initiation of a strategic planning
process for heritage tourism, signing of memorandums of understanding among
public and private organizations involved in heritage tourism, and implementation
of a pilot program for economic revitalization in Tier 1 and Tier 2 counties by
promoting heritage resources and tourism (which would require funding from the
OneGeorgia Authority or other sources). Some
recommendations will require one-time or short-term funding, while others may
warrant long-term support. Clearly, some Commission recommendations will have
to be funded over time as the economic health of the state improves and as
partnerships with private entities for some types of projects are explored.
Complete List of
Recommendations of the
Some of the
following include recommendations previously made by the Joint Study Commission
on Historic Preservation (JSC) in 1998 or the Joint Study Committee on Historic
Local Government Records (HLGR) in 2001. In such cases, the source of the
original recommendation is indicated as JSC or HLGR.
I. Encourage a higher level of
collaboration, coordination, and planning among Georgia public and private
heritage agencies
A. Enact legislation to create a Georgia Heritage Commission to encourage a higher level of collaboration, coordination, and planning among Georgia public and private heritage entities.
B. Develop a
long-range Georgia Heritage Strategic Plan to promote heritage knowledge,
preservation, and tourism in Georgia.
C. Undertake a
Georgia Heritage Special Initiative to develop a multiagency model for
promoting heritage in Tier 1 and 2 counties utilizing OneGeorgia Authority funds
available for promoting economic development in Georgia’s poorest
counties.
II.
Strengthen tools for heritage tourism and leisure learning
A. Develop an
ongoing coordinating committee to promote cooperation and coordination among
state agencies and related staffed statewide nonprofit organizations in
Georgia’s heritage tourism program. Examine the Texas memorandum of
understanding as a model.