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Making Historic Properties Accessible
Thomas C. Jester and Sharon C. Park, AIA
Historically, most buildings and landscapes were not designed to be
readily accessible for people with disabilities. In recent years, however,
emphasis has been placed on preserving historically significant properties,
and on making these properties-and the activities within them-more accessible
to people with disabilities. With the passage of the Americans with
Disabilities Act in 1990, access to properties open to the public is
now a civil right.
This Preservation Brief introduces the complex issue of providing accessibility
at historic properties, and underscores the need to balance accessibility
and historic preservation. It provides guidance on making historic properties
accessible while preserving their historic character; the Brief also
provides examples to show that independent physical accessibility at
historic properties can be achieved with careful planning, consultation,
and sensitive design. While the Brief focuses primarily on making buildings
and their sites accessible, it also includes a section on historic landscapes.
The Brief will assist historic property owners, design professionals,
and administrators in evaluating their historic properties so that the
highest level of accessibility can be provided while minimizing changes
to historic materials and features. Because many projects encompassing
accessibility work are complex, it is advisable to consult with experts
in the fields of historic preservation and accessibility before proceeding
with permanent physical changes to historic properties.
Modifications to historic properties to increase accessibility may be
as simple as a small, inexpensive ramp to overcome one entrance step,
or may involve changes to exterior and interior features. The Brief
does not provide a detailed explanation of local or State accessibility
laws as they vary from jurisdiction to jurisdiction. A concise explanation
of several federal accessibility laws is included on page 13.
Planning Accessibility Modifications
Historic properties are distinguished by features, materials, spaces,
and spatial relationships that contribute to their historic character.
Often these elements, such as steep terrain, monumental steps, narrow
or heavy doors, decorative ornamental hardware, and narrow pathways
and corridors, pose barriers to persons with disabilities, particularly
to wheelchair users (See Figure 1).
A three-step approach is recommended to identify and implement accessibility
modifications that will protect the integrity and historic character
of historic properties:
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1) Review the historical significance of the property and identify
character-defining features;
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2) Assess the property's existing and required level of accessibility;
and
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3) Evaluate accessibility options within a preservation context.
1)
Review the Historical Significance of the Property
If the property has been designated as historic (properties that are
listed in, or eligible for listing in the National Register of Historic
Places, or designated under State or local law), the property's nomination
file should be reviewed to learn about its significance. Local preservation
commissions and State Historic Preservation Offices can usually provide
copies of the nomination file and are also resources for additional
information and assistance. Review of the written documentation should
always be supplemented with a physical investigation to identify which
character defining features and spaces must be protected whenever any
changes are anticipated. If the level of documentation for a property's
significance is limited, it may be necessary to have a preservation
professional identify specific historic features, materials, and spaces
that should be protected.
Figure
1. It is important to identify the materials, features, and spaces that
should be preserved when planning accessibility modifications. These
may include stairs, railings, doors, and door surrounds. Photo: National
Park Service files.
For most historic properties, the construction materials, the form and
style of the property, the principal elevations, the major architectural
or landscape features, and the principal public spaces constitute some
of the elements that should be preserved. Every effort should be made
to minimize damage to the materials and features that convey a property's
historical significance when making modifications for accessibility.
Very small or highly significant properties that have never been altered
may be extremely difficult to modify.
Secondary spaces and finishes and features that may be less important
to the historic character should also be identified; these may generally
be altered without jeopardizing the historical significance of a property.
Nonsignificant spaces, secondary pathways, later additions, previously
altered areas, utilitarian spaces, and service areas can usually be
modified without threatening or destroying a property's historical significance.
2)
Assess the Property's Existing and Required Level of Accessibility
A building survey or assessment will provide a thorough evaluation of
a property's accessibility. Most surveys identify accessibility barriers
in the following areas: building and site entrances; surface textures,
widths and slopes of walkways; parking; grade changes; size,
weight and configuration of doorways; interior corridors and path of
travel restrictions; elevators; and public toilets and amenities (See
Figure 2). Simple audits can be completed by property owners using readily
available checklists (See Further Reading). Accessibility specialists
can be hired to assess barriers in more complex properties, especially
those with multiple buildings, steep terrain, or interpretive programs.
Persons with disabilities can be particularly helpful in assessing specific
barriers.
Figure
2. Surveys of historic properties can identify accessibility barriers.
Persons with disabilities and accessibility consultants should participate
whenever possible. Photo: Thomas Jester.
All applicable accessibility requirements-local codes, State codes and
federal laws-- should be reviewed carefully before undertaking any accessibility
modification. Since many States and localities have their own accessibility
regulations and codes (each with their own requirements for dimensions
and technical requirements), owners should use the most stringent accessibility
requirements when implementing modifications. The Americans with Disability
Act Accessibility Guidelines (ADAAG) is the document that should be
consulted when complying with the Americans with Disabilities Act (ADA)
requirements.
3)
Identify and Evaluate Accessibility Options within a Preservation
Context
Once a property's significant materials and features have been identified,
and existing and required levels of accessibility have been established,
solutions can be developed (See Figure 3). Solutions should provide
the greatest amount of accessibility without threatening or destroying
those materials and features that make a property significant. Modifications
may usually be phased over time as funds are available, and interim
solutions can be considered until more permanent solutions are implemented.
A team comprised of persons with disabilities, accessibility and historic
preservation professionals, and building inspectors should be consulted
as accessibility solutions are developed.
Modifications to improve accessibility should generally be based on
the following priorities:
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1) Making the main or a prominent public entrance and primary public
spaces accessible, including a path to the entrance;
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2) Providing access to goods, services, and programs;
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3) Providing accessible restroom facilities; and,
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4) Creating access to amenities and secondary spaces.
All proposed changes should be evaluated for conformance with the Secretary
of the Interior's "Standards for the Treatment of Historic Properties,"
which were created for property owners to guide preservation work. These
Standards stress the importance of retaining and protecting the materials
and features that convey a property's historical
significance. Thus, when new features are incorporated for accessibility,
historic materials and features should be retained whenever possible.
Accessibility modifications should be in scale with the historic property,
visually compatible, and, whenever possible, reversible. Reversible
means that if the new feature were removed at a later date, the essential
form and integrity of the property would be unimpaired. The design of
new features should also be differentiated from the design of the historic
property so that the evolution of the property is evident. See Making
Historic Buildings Accessible on page 9.
In general, when historic properties are altered, they should be made
as accessible as possible. However, if an owner or a project team believes
that certain modifications would threaten or destroy the significance
of the property, the State Historic Preservation Officer should be consulted
to determine whether or not any special accessibility provisions may
be used. Special accessibility provisions for historic properties will
vary depending on the applicable accessibility requirements.
Figure
3. Before implementing accessibility modifications, owners should consider
the potential effect on their historic property. At the Derby House
in Salem, Massachusetts, several solutions to make the entrance accessible
were considered, including regrading (a); a lift (b); and a ramp ©.
The solution, an entrance on a secondary elevation, preserves the building's
architectural significance and is convenient to designated parking.
Drawings: National Park
Service Files.
In some cases, programmatic access may be the only option for extremely
small or unaltered historic properties, such as a two-story house museum
with no internal elevator. Programmatic access for historic properties
refers to alternative methods of providing services, information, and
experiences when physical access cannot be provided. It may mean offering
an audio-visual program showing an inaccessible upper floor of a historic
house museum, providing interpretive panels from a vista at an inaccessible
terraced garden, or creating a tactile model of a historic monument
for people with visual impairments.
Accessibility Solutions
The goal in selecting appropriate solutions for specific historic properties
is to provide a high level of accessibility without compromising significant
features or the overall character of the property. The following sections
describe accessibility solutions and offer guidance on specific historic
property components, namely the building site, entrances, interiors,
landscapes, amenities, and new additions. Several solutions are discussed
in each section, referencing dimensions and technical requirements from
the ADA's accessibility guidelines, ADAAG. State and local requirements,
however, may differ from the ADA requirements. Before making any modification
owners should be aware of all applicable accessibility requirements.
The Building Site
An accessible route from a parking lot, sidewalk, and public street
to the entrance of a historic building or facility is essential. An
accessible route, to the maximum extent possible, should be the circulation
route used by the general public. Critical elements of accessible routes
are their widths, slopes, cross slopes, and surface texture. Each of
these route elements must be appropriately designed so that the route
can be used by everyone, including people with disabilities. The distance
between the arrival and destination points should also be as short as
possible. Sites containing designed landscapes should be carefully evaluated
before making accessibility modifications. Historic landscapes are described
in greater detail on pages 10 and 11.
Providing
Convenient Parking. If parking is provided, it should be as convenient
as possible for people with disabilities. Specially designated parking
can often be created to improve accessibility (See Figure 4). Modifications
to parking configurations and pathways should not alter significant
landscape features.
Creating
an Accessible Route. The route or path through a site to a historic
building's entrance should be wide enough, generally at least 3 feet
(91 cm), to accommodate visitors with disabilities and must be appropriately
graded with a stable, firm, and slip-resistant surface. Existing paths
should be modified to meet these requirements whenever possible as long
as doing so would not threaten or destroy significant materials and
features.
Figure
4. Parking designated for people with disabilities is provided near
an accessible entrance to the Springfield Library in Springfield, Massachusetts.
Photo: William Smith.
Existing surfaces can often be stabilized by providing a new base and
resetting the paving materials, or by modifying the path surface. In
some situations it may be appropriate to create a new path through an
inaccessible area. At large properties, it may be possible to regrade
a slope to less than 1:20 (5%), or to introduce one or more carefully
planned ramps. Clear directional signs should mark the path from arrival
to destination.
Entrances
Whenever possible, access to historic buildings should be through a
primary public entrance. In historic buildings, if this cannot be achieved
without permanent damage to character-defining features, at least one
entrance used by the public should be made accessible. If the accessible
entrance is not the primary public entrance, directional signs should
direct visitors to the accessible entrance (See Figure 5). A rear or
service entrance should be avoided as the only mean of entering a building.
Figure
5. A universal access symbol clearly marks the Arts and Industries Building
in Washington, D.C., and a push plate (right) engages the automatic
door-opener. Photo: Thomas Jester.
Creating an accessible entrance usually involves overcoming a change
in elevation. Steps, landings, doors, and thresholds, all part of the
entrance, often pose barriers for persons with disabilities. To preserve
the integrity of these features, a number of solutions are available
to increase accessibility. Typical solutions include regrading, incorporating
ramps, installing wheelchair lifts, creating new entrances, and modifying
doors, hardware, and thresholds.
Regrading
an Entrance. In some cases, when the entrance steps and landscape
features are not highly significant, it may be possible to regrade to
provide a smooth entrance into a building. If the existing steps are
historic masonry, they should be buried, whenever possible, and not
removed (See Figure 6).
Incorporating
Ramps. Permanent ramps are perhaps the most common means to make
an entrance accessible. As a new feature, ramps should be carefully
designed and appropriately located to preserve a property's historic
character (See Figure 7). Ramps should be located at
public entrances used by everyone whenever possible, preferably where
there is minimal change in grade. Ramps should also be located to minimize
the loss of historic features at the connection points-porch railings,
steps, and windows-and should preserve the overall historic setting
and character of the property. Larger buildings may have below grade
areas that can accommodate a ramp down to an entrance (See Figure 8).
Below grade entrances can be considered if the ramp leads to a publicly
used interior, such as an auditorium, or if the building is serviced
by a public elevator. Ramps can often be incorporated behind historic
features, such as cheek-walls or railings, to minimize the visual effect
(See
Figure 9).
Figure
6. Entrances can be regraded to make a building accessible as long as
no significant landscape features will be destroyed and as long as the
building's historic character is preserved. The Houghton Chapel (a)
in Wellesley, Massachusetts, was made accessible by regrading over the
historic steps (b). Photos: Carol R. Johnson & Associates.
Figure
7. This ramp is convenient for visitors with disabilities and preserves
the building's historic character. The design is also compatible in
scale with the building. Photo: William Smith.
Figure
8. A new below-grade ramp provides access to Lake MacDonald Lodge in
Glacier National Park. Photo: Thomas Jester
The steepest allowable slope for a ramp is usually 1:12 (8%), but gentler
slopes should be used whenever possible to accommodate people with limited
strength. Greater changes in elevation require larger and longer ramps
to meet accessibility scoping provisions and may require an intermediate
landing. Most codes allow a slightly steeper ramp for historic buildings
to overcome one step.
Ramps can be faced with a variety of materials, including wood, brick,
and stone. Often the type and quality of the materials determines how
compatible a ramp design will be with a historic property (See Figure
10). Unpainted pressure-treated wood should not be used to construct
ramps because it usually appears temporary and is not visually compatible
with most historic properties.
Figure
9. This ramp was created by in filling the window-well and slightly
modifying the historic railing. The ramp preserves this building's historic
character. Photo: Thomas Jester.
Figure
10. This brick ramp provides access to St. Anne's Episcopal Church in
Annapolis, Maryland. Its design is compatible with the historic building.
Photo: Charity V. Davidson.
Railings should be simple in design, distinguishable from other historic
features, and should extend one foot beyond the sloped area (See Figure
11).
Ramp landings must be large enough for wheelchair users, usually at
least 5 feet by 5 feet (152.5 cm by 152.5 cm), and the top landing must
be at the level of the door threshold. It may be possible to reset steps
by creating a ramp to accommodate minor level changes and to meet the
threshold without significantly altering a property's historic character.
If a building's existing landing is not wide or deep enough to accommodate
a ramp, it may be necessary to modify the entry to create a wider landing.
Long ramps, such as switchbacks, require intermediate landings, and
all ramps should be detailed with an appropriate edge and railing for
wheelchair users and visually impaired individuals.
Figure
11. Simple, contemporary railings that extend beyond the ramp slope
make this ramp compatible with the industrial character of this building.
Photo: Thomas Jester.
Temporary or portable ramps are usually constructed of light-weight
materials and, thus, are rarely safe or visually compatible with historic
properties. Moreover, portable ramps are often stored until needed and,
therefore, do not meet accessibility requirements for independent access.
Temporary and portable ramps, however, may be an acceptable interim
solution to improve accessibility until a permanent solution can be
implemented (See Figure 12).
Figure
12. The Smithsonian Institution installed a temporary ramp on its visitor's
center to allow adequate time to design an appropriate permanent ramp.
Photo: Thomas Jester.
Installing
Wheelchair Lifts. Platform lifts and inclined stair lifts, both
of which accommodate only one person, can be used to overcome changes
of elevation ranging from three to 10 feet (.9 m-3 m) in height. However,
many States have restrictions on the use of wheelchair lifts, so all
applicable codes should be reviewed carefully before installing one.
Inclined stair lifts, which carry a wheelchair on a platform up a flight
of stairs, may be employed selectively. They tend to be visually intrusive,
although they are relatively reversible. Platform lifts can be used
when there is inadequate space for a ramp. However, such lifts should
be installed in unobtrusive locations and under cover to minimize maintenance
if at all possible (See Figure 13). A similar, but more expensive platform
lift has a retracting railing that lowers into the ground, minimizing
the visual effect to historic properties (See Figure 14). Mechanical
lifts have drawbacks at historic properties with high public visitation
because their capacity is limited, they sometimes cannot be operated
independently, and they require frequent maintenance.
Considering a New
Entrance. When it is not possible to modify an existing entrance,
it may be possible to develop a new entrance by creating an entirely
new opening in an appropriate location, or by using a secondary window
for an opening. This solution should only be considered after exhausting
all possibilities for modifying existing entrances (See Figure 15).
Retrofitting
Doors. Historic doors generally should not be replaced, nor should
door frames on the primary elevation be widened, as this may alter an
important feature of a historic design. However, if a building's historic
doors have been removed, there may be greater latitude in designing
a compatible new entrance. Most accessibility standards require at least
a 32" (82 cm) clear opening with manageable door opening pressures.
The most desirable preservation solution to improve accessibility is
retaining historic doors and upgrading the door pressure with one of
several devices. Automatic door openers (operated by push buttons, mats,
or electronic eyes) and power-assisted door openers can eliminate or
reduce door pressures that are accessibility barriers, and make single
or double-leaf doors fully operational (See Figure 16).
Figure
13. Platform lifts like the one used on this building require minimal
space and can be removed without damaging historic materials. Shielded
with lattice work, this lift is also protected by the roof eaves. Approach
path should be stable, firm, and slip resistant. Photo: Sharon Park.
Adapting
Door Hardware. If a door opening is within an inch or two of meeting
the 32" (81 cm) clear opening requirement, it may be possible to replace
the standard hinges with off-set hinges to increase the size of the
door opening as much as 1 ‡" (3.8 cm). Historic hardware can
be retained in place, or adapted with the addition of an automatic opener,
of which there are several types. Door hardware can also be retrofitted
to reduce door pressures. For example, friction hinges can be retrofitted
with ball-bearing inserts, and door closers can be rethreaded to reduce
the door pressure.
Altering
Door Thresholds. A door threshold that exceeds the allowable height,
generally ‡" (1.3 cm), can be altered or removed with one that
meets applicable accessibility requirements. If the threshold is deemed
to be significant, a bevel can be added on each side to reduce its height
(See Figure 17). Another solution is to replace the threshold with one
that meets applicable accessibility requirements and is visually compatible
with the historic entrance.
Readily Acheivable Accesibility Options
Many accessibility solutions can be implemented easily and inexpensively
without destroying the significance of historic properties. While it
may not be possible to undertake all of the modifications listed below,
each change will improve accessibility.
Sites and Entrances
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Creating a designated parking space.
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Installing ramps.
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Making curb cuts.
Interiors
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Repositioning shelves.
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Rearranging tables, displays, and furniture.
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Repositioning telephones.
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Adding raised markings on elevator control buttons.
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Installing flashing alarm lights.
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Installing offset hinges to widen doorways.
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Installing or adding accessible door hardware.
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Adding an accessible water fountain, or providing a paper cup dispenser
at an inaccessible water fountain.
Restrooms
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Installing grab bars in toilet stalls.
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Rearranging toilet partitions to increase maneuvering space.
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Insulating lavatory pipes under sinks to prevent burns.
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Installing a higher toilet seat.
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Installing a full-length bathroom mirror.
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Repositioning the paper towel dispenser.
Figure
14. At the Lieutenant Governor's Mansion in Frankfort, Kentucky, a retracting
lift (b) was installed to minimize the visual effect on this historic
building when not in use (a). Photos: Aging Technology Incorporated.
Figure
15. A new entrance to the elevator lobby replaces a window
at Faneuil Hall in Boston, Massachusetts. The new
entrance is appropriately differentiated from the historic
design. Photo: Paul Holtz.
Figure
16. During the rehabilitation of the Rookery in Chicago, the original
entrance was modified to create an accessible entrance. Two revolving
doors were replaced with a new one flanked by new doors, one of
which is operated with a push-plate door opener. Photo: Thomas Jester.
Moving Through
Historic Interiors
Persons with disabilities should have independent access to all public
areas and facilities inside historic buildings. The extent to which
a historic interior can be modified depends on the significance of its
materials, plan, spaces, features, and finishes. Primary spaces are
often more difficult to modify without changing their character. Secondary
spaces may generally be changed without compromising a building's historic
character. Signs should clearly mark the route to accessible restrooms,
telephones, and other accessible areas.
Installing
Ramps and Wheelchair Lifts. If space permits, ramps and wheelchair
lifts can also be used to increase accessibility inside buildings (See
Figures 18 & 19). However, some States and localities restrict interior
uses of wheelchair lifts for life-safety reasons. Care should be taken
to install these new features where they can be readily accessed. Ramps
and wheelchair lifts are described in detail on pages 4-6.
Upgrading
Elevators. Elevators are an efficient means of providing accessibility
between floors. Some buildings have existing historic elevators that
are not adequately accessible for persons with disabilities because
of their size, location, or detailing, but they may also contribute
to the historical significance of a building. Significant historic elevators
can usually be upgraded to improve accessibility. Control panels can
be modified with a "wand" on a cord to make the control panel accessible,
and timing devices can usually be adjusted.
Retrofitting
Door Knobs. Historic door knobs and other hardware may be difficult
to grip and turn. In recent years, lever-handles have been developed
to replace door knobs. Other lever-handle devices can be added to existing
hardware. If it is not possible or appropriate to retrofit existing
door knobs, doors can be left open during operating hours (unless doing
so would violate life safety codes), and power-assisted door openers
can be installed. It may only be necessary to retrofit specific doorknobs
to create an accessible path of travel and accessible restrooms.
Figure
17. Thresholds that exceed allowable heights can be modified several
ways to increase accessibility. Source: Uniform Federal Accessibility
Standard (UFAS) Retrofit Manual.
Modifying
Interior Stairs. Stairs are the primary barriers for many people
with disabilities. However, there are some ways to modify stairs to
assist people who are able to navigate them. It may be appropriate to
add hand railings if none exist. Railings should be 1 º" (3.8 cm)
in diameter and return to the wall so straps and bags do not catch.
Color-contrasting, slip-resistant strips will help people with visual
impairments. Finally, beveled or closed risers are recommended unless
the stairs are highly significant, because open risers catch feet (See
Figure 20).
Building Amenities
Some amenities in historic buildings, such as restrooms, seating, telephones,
drinking fountains, counters, may contribute to a building's historic
character. They will often require modification to improve their use
by persons with disabilities. In many cases, supplementing existing
amenities, rather than changing or removing them, will increase access
and minimize changes to historic features and materials.
Upgrading
Restrooms. Restrooms may have historic fixtures such as sinks, urinals,
or marble partitions that can be retained in the process of making modifications.
For example, larger restrooms can sometimes be reconfigured by relocating
or combining partitions to create an accessible toilet stall. Other
changes to consider are adding grab bars around toilets, covering hot
water pipes under sinks with insulation to prevent burns, and providing
a sink, mirror, and paper dispenser at a height suitable for wheelchair
users. A unisex restroom may be created if it is technically infeasible
to create two fully accessible restrooms, or if doing so would threaten
or destroy the significance of the building. It is important to remember
that restroom fixtures, such as sinks, urinals, and partitions, may
be historic, and therefore, should be preserved whenever possible.
Modifying
Other Amenities. Other amenities inside historic buildings may require
modification. Seating in a theater, for example, can be made accessible
by removing some seats in several areas (See Figure 21). New seating
that is accessible can also be added at the end of existing rows, either
with or without a level floor surface. Readily removable seats may be
installed in wheelchair spaces when the spaces are not required to accommodate
wheelchair users. Historic water fountains can be retained and new,
two-tiered fountains installed if space permits. If public telephones
are provided, it may be necessary to install at least a Text Telephone
(TT), also known as a Telecommunication Device for the Deaf (TDD) (See
Figure 22). Historic service counters commonly found in banks, theaters,
and hotels generally should not be altered. It is preferable to add
an accessible counter on the end of a historic counter if feasible.
Modified or new counters should not exceed 36" (91.5 cm) in height.
Figure
18. Symmetrical ramps at the Mayflower Hotel in Washington, D.C.,
provide access to the hotel's lower level. The design for the ramps
respects the historic character of this landmark building. Photo:
Thomas Jester.
Making
a Historic Building Accessible
The
Orange County Courthouse (a), located in Santa Ana, California, was
rehabilitated in the late 1980s as a county museum. As part of the rehabilitation,
the architect sensitively integrated numerous modifications to increase
accessibility. To preserve the building's primary elevation, a new public
entrance was created on the rear elevation where parking spaces
are located. A ramp (b) leads to the accessible entrance that can be
opened with a push-plate automatic door-opener ©. Modifications
to interior features also increased accessibility. To create an accessible
path of travel, offset hinges (d) were installed on doors that
were narrower than 32 inches (81.3 cm). Other doors were rethreaded
to reduce the door pressure. Beveling the 1" high thresholds (e) reduced
their height to approximately º inch (.64 cm). The project
architect also converted a storeroom into an accessible restroom
(f). The original stairway, which has open grillwork, was made
more accessible by applying slip-resistant pressure tape to the marble
steps (g). And the original elevator was upgraded with raised
markings, alarm lights, and voice floor indicators. Photos: Milford
Wayne Donaldson, FAIA.
Making
Historic Landscapes Accessible
To successfully incorporate access into historic landscapes, the planning
process is similar to that of other historic properties. Careful research
and inventory should be undertaken to determine which materials and
features convey the landscape's historical significance. As part of
this evaluation, those features that are character-defining (topographical
variation, vegetation, circulation, structures, furnishings, objects)
should be identified. Historic finishes, details, and materials that
also contribute to a landscape's significance should also be documented
and evaluated prior to determining an approach to landscape accessibility.
For example, aspects of the pedestrian circulation system that need
to be understood include walk width, aggregate size, pavement pattern,
texture, relief, and joint details. The context of the walk should be
understood including its edges and surrounding area. Modifications to
surface textures or widths of pathways can often be made with minimal
effect on significant landscape features (a) and (b).
Additionally, areas of secondary importance such as altered paths should
be identified-especially those where the accessibility modifications
will not destroy a landscape's significance. By identifying those features
that are contributing or non-contributing, a sympathetic circulation
experience can then be developed.
After assessing a landscape's integrity, accessibility solutions can
be considered. Full access throughout a historic landscape may not always
be possible. Generally, it is easier to provide accessibility to larger,
more open sites where there is a greater variety of public experiences.
However, when a landscape is uniformly steep, it may only be possible
to make discrete portions of a historic landscape accessible, and viewers
may only be able to experience the landscape from selected vantage points
along a prescribed pedestrian or
vehicular access route. When defining such a route, the interpretive
value of the user experience should be considered; in other words, does
the route provide physical or visual access to those areas that are
critical to understand the meaning of the landscape?
The following accessibility solutions address three common landscape
situations: 1) structures with low integrity landscapes; 2) structures
and landscapes of equal significance; and, 3) landscapes of primary
significance with inaccessible terrain.
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1. The Hunnewell Visitors Center at the Arnold Arboretum in Jamaica
Plain, Massachusetts, was constructed in 1892. Its immediate setting
has changed considerably over time ©. Since the existing landscape
immediately surrounding this structure has little remaining integrity,
the new accessibility solution has the latitude to integrate a broad
program including site orientation, circulation, interpretation, and
maintenance.
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The new design, which has few ornamental plants, references the original
planting design principles, with a strong emphasis on form, color,
and texture. In contrast with the earlier designs, the new plantings
were set away from the facade of this historic building, allowing
the visitor to enjoy its architectural detail. A new walk winds up
the
gentle earthen berm and is vegetated with plantings that enhance the
interpretive experience from the point of orientation (d). The new
curvilinear walks also provide a connection to the larger arboretum
landscape for everyone.
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2. The Eugene O'Neill National Historic Site overlooks the San Ramon
Valley, twenty-seven miles east of San Francisco, California. The
thirteen-acre site includes a walled courtyard garden on the southeast
side of the Tao House, which served as the O'Neill residence from
1937-44 (e). Within this courtyard are character defining walks that
are too narrow by today's accessibility standards, yet are a character-defining
element of the historic design. To preserve the garden's integrity,
the scale and the characteristics of the original circulation were
maintained by creating a wheelchair route which, in part, utilizes
reinforced turf. This route allows visitors with disabilities to experience
the main courtyard as well.
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3. Morningside Park in New York City, New York, designed by Frederick
Olmstead, Sr., and Calvert VAX in 1879, is sited on generally steep,
rocky terrain (f). Respecting these dramatic grade changes, which
are only accessible by extensive flights of stone stairs, physical
access cannot be provided without destroying the park's integrity.
In order to provide some accessibility, scenic overlooks were created
that provide broad visual access to the park.
- (a.)
To improve accessibility in Boston's Emerald Necklace Parks, standard
asphalt paving was replaced in selected areas with an imbedded aggregate
surface that is more in keeping with the landscape's historic appearance.
Photo: Charles Birnbaum.
- (b.)
The Friendly Garden at Ranchos Los Alamitos, a historic estate with
designed gardens in southern California, was made accessible with
limited widening of its existing approach path. Photo: Ranchos Los
Alamitos Foundation.
- (c.)
Hunnewell Visitor's Center before rehabilitation, revealing the altered
landscapes. Photo: Jennifer Jones, Carol R. Johnson and associates.
- (d.)
Hunnewell Visitors Center's entrance following rehabilitation, integrating
an accessible path (left), platform, and new steps. Photo: Charles
Birnbaum.
- (e.)
This view shows the new reinforced turf path at the Eugene O'Neill
National Historic Site that preserved the narrow Historic Path. Photo:
Patricia M. O'Donnell.
- (f.)
Steep terrain at Morningside Park in New York City cannot be made
accessible without threading or destroying this landscape's integrity.
Photo: Quennell Rothschild Associates.
Figure
19. Inclined lifts can sometimes overcome interior changes of elevation
where space is limited. This lift in Boston's Faneuil Hall created access
to the floor and stage level of the State Room. Photo: Paul Holtz.
Considering a New Addition as an Accessibility Solution
Many new additions are constructed specifically to incorporate modern
amenities such as elevators, restrooms, fire stairs, and new mechanical
equipment. These new additions often create opportunities to incorporate
access for people with disabilities. It may be possible, for example,
to create an accessible entrance, path to public levels via a ramp,
lift, or elevator (See Figure 23). However, a new addition has the potential
to change a historic property's appearance and destroy significant building
and landscape features. Thus, all new additions should be compatible
with the size, scale, and proportions of historic features and materials
that characterize a property (See Figure 24).
New additions should be carefully located to minimize connection points
with the historic building, such that if the addition were to be removed
in the future, the essential form and integrity of the building would
remain intact. On the other hand, new additions should also be conveniently
located near parking that is connected to an accessible route for people
with disabilities. As new additions are incorporated, care should be
taken to protect significant landscape features and archeological resources.
Finally, the design for any new addition should be differentiated from
the historic design so that the property's evolution over time is clear.
New additions frequently make it possible to increase accessibility,
while simultaneously reducing the level of change to historic features,
materials, and spaces.
Figure
20. In certain situations it may be appropriate to modify stair nosings
for persons with mobility impairments. Whenever possible, stairs
should be modified by adding new materials rather than removing historic
materials. Source: UFAS Retrofit Manual.
Figure
21. Seating in historic theaters and auditoriums can be changed to accommodate
wheelchair users. Accessible seating areas should be connected to an
accessible route from the, building entrance. Source: UFAS Retrofit
Manual.
Figure
22. Amenities such as telephones should be at height that wheelchair
users can reach. Changes to many amenities can be adapted with minimal
effect on historic materials, features, and spaces. Source: UFAS Retrofit
Manual.
FEDERAL ACCESSIBILITY
LAWS
Today, few building owners are exempt from providing accessibility for
people with disabilities. Before making any accessibility modification,
it is imperative to determine which laws and codes are applicable. In
addition to local and State accessibility codes, the following federal
accessibility laws are currently in effect:
Architectural Barriers Act (1968)
The Architectural Barriers Act stipulates that all buildings designed,
constructed, and altered by the Federal Government, or with federal
assistance, must be accessible. Changes made to federal buildings must
meet the Uniform Federal Accessibility Standards (UFAS). Special provisions
are included in UFAS for historic buildings that would be threatened
or destroyed by meeting full accessibility requirements.
Rehabilitation Act (1973)
The Rehabilitation Act requires recipients of federal financial assistance
to make their programs and activities accessible to everyone. Recipients
are allowed to make their properties accessible by altering their building,
by moving programs and activities to accessible spaces, or by making
other accommodations.
Americans with Disabilities Act (1990)
Historic properties are not exempt from the Americans with Disabilities
Act (ADA) requirements. To the greatest extent possible, historic buildings
must be as accessible as non-historic buildings. However, it may not
be possible for some historic properties to meet the general accessibility
requirements.
Under Title II of the ADA, State and local governments must remove accessibility
barriers either by shifting services and programs to accessible buildings,
or by making alterations to existing buildings. For instance, a licensing
office may be moved from a second floor to an accessible first floor
space, or if this is not feasible, a mail service might be provided.
However, State and local government facilities that have historic preservation
as their main purpose-State-owned historic museums, historic State capitols
that offer tours-must give priority to physical accessibility.
Under Title III of the ADA, owners of "public accommodations" (theaters,
restaurants, retail shops, private museums) must make "readily achievable"
changes; that is, changes that can be easily accomplished without much
expense. This might mean installing a ramp, creating accessible parking,
adding grab bars in bathrooms, or modifying door hardware. The requirement
to remove barriers when it is "readily achievable" is an ongoing responsibility.
When alterations, including restoration and rehabilitation work, are
made, specific accessibility requirements are triggered.
Recognizing the national interest in preserving historic properties,
Congress established alternative requirements for properties that cannot
be made accessible without "threatening or destroying" their significance.
A consultation process is outlined in the ADA's Accessibility Guidelines
for owners of historic properties who believe that making specific accessibility
modifications would "threaten or destroy" the significance of their
property. In these situations, after consulting with persons with disabilities
and disability organizations, building owners should contact the State
Historic Preservation Officer (SHPO) to determine if the special accessibility
provisions for historic properties may be used. Further, if it is determined
in consultation with the SHPO that compliance with the minimum requirements
would also 'threaten or destroy" the significance of the property, alternative
methods of access, such as home delivery and audio-visual programs,
may be used.
Figure
23. New additions to historic buildings can be designed to increase
accessibility. A new addition links two adjacent buildings used for
the Albany, New York, Visitor's Center, and incorporates an accessible
entrance, restrooms, and signage. Photo: Clare Adams.
Figure
24. Creating an accessible entrance with a new elevator tower requires
a compatible design. This elevator addition blends in with the historic
building's materials and provides access to all public levels. Photo:
Sharon Park.
Conclusion
Historic properties are irreplaceable and require special care to ensure
their preservation for future generations. With the passage of the Americans
with Disabilities Act, access to historic properties open to the public
is a now civil right, and owners of historic properties must evaluate
existing
buildings and determine how they can be made more accessible. It is
a challenge to evaluate properties thoroughly, to identify the applicable
accessibility requirements, to explore alternatives and to implement
solutions that provide independent access and are consistent with accepted
historic preservation standards. Solutions for accessibility should
not destroy a property's
significant materials, features and spaces, but should increase accessibility
as much as possible. Most historic buildings are not exempt from providing
accessibility, and with careful planning, historic properties can be
made more accessible, so that all citizens can enjoy our Nation's diverse
heritage.
Photo:
Massachusetts Historical Commission.
Additional Reading
Ballantyne, Duncan S. and Harold Russell Associates, Inc. Accommodation
of Disabled Visitors at Historic Sites in the National Park System.
Washington, D.C.: Park Historic Architecture Division, National Park
Service, U.S. Department of the Interior, 1983.
Goldman, Nancy. Ed. Readily Achievable Checklist: A Survey for
Accessibility. Boston: Adaptive Environments Center, 1993.
Hayward, Judith L. and Thomas C. Jester, compilers. Accessibility
and Historic Preservation Resource Guide. Windsor, Vermont: Historic
Windsor, Inc., 1992, revised 1993.
Jester, Thomas C. Preserving the Past and Making it Accessible
for People with Disabilities. Washington, D.C.: Preservation
Assistance Division, National Park Service, U.S. Department of the Interior,
1992.
Parrott, Charles. Access to Historic Buildings for the Disabled.
Washington, D.C.: U.S. Department of the Interior, 1980.
Secretary
of the Interior's Standards for the Treatment of Historic Properties.
Washington, D.C.: Preservation Assistance Division, National Park Service,
U.S. Department of the Interior, 1993.
Smith, William D. and Tara Goodwin Frier. Access to History: A Guide
to Providing Access to Historic Buildings for People with Disabilities.
Boston: Massachusetts Historical Commission, 1989.
Standards
for Accessible Design: ADA Accessibility Guidelines (ADAAG). Washington,
D.C.: U.S. Department of Justice, 1991.
ACKNOWLEDGMENTS
Thomas C. Jester is an Architectural Historian with the Preservation
Assistance Division of the National Park Service. Sharon C. Park, AIA,
is the Senior Historical Architect with the Preservation Assistance
Division, National Park Service.
The authors wish to thank Charles A. Birnbaum, ASLA, Historical Landscape
Architect with the Preservation Assistance Division, National Park Service,
for contributing the section on historic landscapes. The authors gratefully
acknowledge the invaluable comments made by the following individuals
who reviewed the draft manuscript: William Smith, Massachusetts Historical
Commission; Kay Weeks, H. Ward Jandl, Michael Auer, and Charles A. Birnbaum,
Preservation Assistance Division, National Park Service; Clare Adams,
New York Department of Parks, Recreation and Historic Preservation;
Lauren Bowlin, Maryland Historical Trust; Tom Mayes, National Trust
for Historic Preservation; Elizabeth Igleheart, Maine Historic Preservation
Commission; Milford Wayne Donaldson, FAIA; Paul Beatty, U.S. Architectural
and Transportation Barriers Compliance Board; Mid-Atlantic Regional
Office, National Park Service; Western Regional Office, National Park
Service. Washington, D.C. September, 1993
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