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美国历史保护法面临其60年历史上最严重的威胁America's historic preservation law is in peril, advocates say. Here's what's at stake

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历史保护倡导者表示,大峡谷和阿灵顿纪念桥——特朗普总统希望在此建造一座250英尺高的拱门——是拟议变更下将失去保护的历史遗址的例子。Ian Maule/AFP via Getty Images,Alex Brandon/AP 隐藏图片 切换图片Historic preservation advocates say the Grand Canyon and Arlington Memorial Bridge — where President Trump wants to build a 250-foot arch — are examples of historic sites that would lose protection under the proposed changes. Ian Maule/AFP via Getty Images, Alex Brandon/AP hide caption toggle captio

自林登·B·约翰逊总统签署《国家历史保护法》(NHPA)成为法律已恰好过去60年,当时他还签署了另外半打保护法案。

It's been exactly 60 years since President Lyndon B. Johnson signed the National Historic Preservation Act (NHPA) into law, alongside half a dozen conservation bills.

“我们今天早上来到这里,是为了把国家的一部分还给人民,”约翰逊在1966年10月15日签署法案时宣称。如今,历史保护倡导者表示,政府正试图夺走公众的权力。全国特朗普的盟友投票削弱对历史遗址的保护 — — 不仅限于华盛顿特区。

"We have come here this morning to give part of our country back to its people," Johnson declared at the bill signing on Oct. 15, 1966. Now, historic preservation advocates say, the government is trying to yank the public's power away. National Trump allies vote to weaken protections for historic sites — not just in D.C.

“自成立以来,历史保护工作在公私合作的框架下效果最好,”非营利组织国家历史保护信托基金的总裁兼首席执行官布伦特·莱格斯对NPR表示。“在过去一年半里,联邦政府已经放弃了这一责任。”

"Preservation, from its inception, has worked best with public and private partnership," Brent Leggs, the president and CEO of the nonprofit National Trust for Historic Preservation, told NPR. "Over the last year and a half, the federal government has divested that responsibility."

这与1966年形成了鲜明对比,当时《国家历史保护法》建立了一套机制,用于识别和保护全国的历史遗址 — — 从一棵树到整个历史街区。

It's a far cry from 1966, when the NHPA created a mechanism for identifying and protecting the country's historic sites — ranging from a single tree to an entire district.

正是由于这部法律,这些地标 — — 如今超过10万处 — — 被列入官方的《国家史迹名录》。而且,联邦机构在启动任何可能对这些遗址造成潜在危害的项目之前,必须通过称为“第106条审查”的程序,与各州、部落和利益相关方进行协商。

Because of that law, those landmarks — today, more than 100,000 of them — are listed on the official National Register of Historic Places. And federal agencies must consult with states, tribes and stakeholders before beginning any projects that could potentially harm them, through a process called Section 106 review.

“第106条在许多方面是《国家历史保护法》的‘牙齿’,”耶鲁大学建筑学院建筑与城市研究教授埃利胡·鲁宾说道。“正是第106条坚持……只有在采取措施减轻对这些历史资源影响的情况下,威胁历史资源的联邦项目才能继续进行。”

"Section 106 is in many ways the teeth behind the National Historic Preservation Act," said Elihu Rubin, a professor of architecture and urban studies at the Yale School of Architecture. "It is Section 106 that insists … that federal projects that threaten historic resources can only proceed when efforts are made to mitigate the impacts on those resources."

1968年签署多项保护法案后,林登·约翰逊总统站在美国地图旁。他两年前签署了具有里程碑意义的《国家历史保护法》。Charles Tasnadi/AP 隐藏图片 切换图片 i Charles Tasnadi/APPresident Lyndon Johnson stands near a map of the U.S. after signing several conservation bills into law in 1968. He signed the landmark National Historic Preservation Act two years earlier. Charles Tasnadi/AP hide caption toggle caption i Charles Tasnadi/AP

根据国家历史保护信托基金最近编纂的“成功案例”,第106条已经阻止了历史建筑的拆除,并防止了考古遗址上的开发。但鲁宾强调,审查流程并不一定会阻止项目的进行 — — 而这正是参与其中的目的。

Section 106 has saved historic buildings from demolition and prevented development on archaeological sites, according to " success stories " recently compiled by the National Trust for Historic Preservation. But, Rubin stresses, the review process doesn't necessarily stop projects from happening — and that's the point of participating in it.

“由此诞生的一些最有趣的项目,是对那些即将消失的迷人建筑或地点进行的调查,”他说,“但这一过程也让我们收获颇丰。”政治特朗普力求在华盛顿特区留下实体遗产,同时打破既有规范如今,这一过程正面临双重威胁。今年夏天,一个由特朗普任命的成员占据主导地位的联邦委员会投票决定削弱第106条法规;与此同时,参议院中一项获得广泛支持的跨党派许可改革法案,将大幅缩减审批流程,以加快基础设施和能源项目的推进。

"Some of the most interesting projects that come out of it are surveys of fascinating buildings or places that will be lost," he said. "But we gain a lot from that process." Politics Trump aims to leave a physical legacy in D.C., bulldozing norms along the way That process is now facing dual threats. A federal council packed with Trump appointees voted this summer to weaken Section 106 regulations , while a bipartisan permitting reform bill gaining traction in the Senate would significantly narrow the review process in order to speed up infrastructure and energy projects.

“这实际上将以某种方式彻底改写《国家历史保护法》,从实际效果上看,将使其意义以及对全国数十万个遗址的保护荡然无存,”格雷格·韦克海泽说道。他的律师事务所“文化遗产伙伴”正在领导一个联盟,以保护第106条法规。

"It will effectively rewrite the National Historic Preservation Act in ways that, for all intents and purposes, gut its meaning and protections for hundreds of thousands of sites across the country," said Greg Werkheiser, whose law firm, Cultural Heritage Partners, is leading a coalition to protect Section 106.

“‘捍卫第106条’运动于周四正式启动。该运动表示,其成员涵盖1000个组织——包括宗教、环保和民权团体,以及多个原住民部落,共同代表着超过900万美国人。”

" Section 106 Strong ," which officially launched Thursday, says it spans 1,000 organizations — including religious, environmental and civil rights groups — and Tribal Nations collectively representing more than 9 million Americans.

“我从事历史保护和政治工作已有30年,很少见过一个运动能如此迅速地凝聚起来,”他告诉美国国家公共电台(NPR),“我认为美国人已经受够了看着自己的历史被政治权力当作工具加以操纵、破坏或摧毁。”历史保护法的诞生源于大规模破坏在大萧条时期,联邦政府雇用工人对全美各地的历史建筑进行普查,他们共记录了12000座建筑。但到1965年,当约翰逊总统召集委员会研究这一问题时,这些建筑中有一半已被摧毁或损坏严重无法修复。

"I've been involved in historic preservation and politics for 30 years, and I've rarely seen a movement come together this quickly," he told NPR. "I think Americans are simply fed up with watching their history manipulated, defaced, or destroyed as an instrument of political power." Historic preservation law was a reaction to widespread destruction During the Great Depression, the federal government hired workers to survey historic buildings across the U.S. They documented 12,000. But by 1965, when Johnson convened a committee to study the issue, half of those buildings had been either destroyed or damaged beyond repair.

“人们得出结论:如果我们不制定一些强有力的联邦规定,那么‘尽可能快地、在任意地方进行建设’这种本能冲动就会占据主导地位,”韦克海泽说。

"Folks concluded that if … we don't have some strong federal provisions, the natural instinct to just build as fast as you can, wherever you can, is going to take over," Werkheiser said.

历史保护运动的兴起源于公众对二战后城市更新和高速公路建设的反对,这些项目导致整个社区被迫迁移,许多美国地标被毁——包括纽约市原宾夕法尼亚车站。

The push for historic preservation was borne out of public backlash to post-World War II urban renewal and highway construction, which displaced entire communities and destroyed many American landmarks — including New York City's original Penn Station .

“由于这些项目的大部分资金和推动力来自联邦住房政策,人们认为有必要建立一个框架来识别历史资源,并且——如果不能完全保护它们的话——至少要承认它们的存在,然后减轻其负面影响,”鲁宾解释道。

"Because so much of the funding and impetus from these projects were coming from federal housing policy, there was an idea here that there needed to be a framework put in place to identify historic resources and to — if not protect them entirely — at least to acknowledge them and then to mitigate the negative impacts," Rubin explains.

纽约市原宾夕法尼亚车站的地上部分在1960年代为建造麦迪逊广场花园(图为1966年)而被拆除。随后的反对浪潮帮助催生了现代历史保护运动。Anthony Camerano/AP 隐藏图片 切换图片 i Anthony CamThe aboveground portion of New York City's original Penn Station was demolished in the 1960s for the construction of Madison Square Garden (pictured in 1966). The ensuing backlash helped catalyze the modern historic preservation movement. Anthony Camerano/AP hide caption toggle caption i Anthony Cam

1966年的法律提供了这样的框架。除了其他条款外,它要求每个州都设立自己的办公室来管理国家历史保护项目。

The 1966 law provided that framework. Among other provisions, it tasked every state with opening its own office to administer national preservation programs.

直到1992年,即该法律最后一次重大修订之一,美洲原住民部落和夏威夷原住民组织才被纳入这些职责范围。部落历史保护官员协会(NATHPO)的领导人告诉NPR,如今部落社区面临失去他们长期争取才获得的参与决策权的风险。全国特朗普政府计划撤销新墨西哥州考古公园的保护措施“目前提出的这些变动——无论是在监管层面还是立法层面——不仅将对1992年以前,而且对1966年以前的历史保护构成巨大而毁灭性的倒退,也将严重削弱部落声音和观点被考虑的状况,”NATHPO立法事务和战略伙伴关系执行主任瓦莱丽·格鲁辛格说道。

Native American tribes and Native Hawaiian organizations weren't included in those duties until 1992, one of the last major amendments to the law. Leaders of the Tribal Historic Preservation Officers (NATHPO) told NPR that tribal communities now risk losing the seat at the table that it took them so long to get. National Trump moves to remove protections at New Mexico archaeological park "The changes that are being proposed now — both on the regulatory front and the statutory front — would represent an enormous and devastating setback not just to pre-1992, but to pre-1966 historical preservation and the state of tribal voice and perspectives being considered," said Valerie Grussing, NATHPO's executive director of legislative affairs and strategic partnerships.

历史保护专家指出,第106条使专家和公众能够在不显著延误的情况下了解联邦建设项目。事实上,国家历史保护信托称,全国范围内审查的平均时长为16天,且98%的审查结论认为该项目不会对附近的历史资源造成不利影响。

Historic preservation experts maintain that Section 106 gives experts and the public visibility into federal construction projects without significantly slowing them down. In fact, the National Trust for Historic Preservation says the nationwide average for a review is 16 days, and that 98% of those reviews conclude that the project will have no adverse effect on nearby historic resources.

“归根结底,问题在于联邦政府是否有权进入你的后院和社区,为所欲为,”美国国家历史保护信托基金会高级副总法律顾问克里斯·科迪说道。

"At the end of the day, it's [about] whether or not the federal government can come into your backyard and to your community and do whatever they want," said Chris Cody, senior associate general counsel for the National Trust for Historic Preservation.

如今,科迪估计,他手下的两人团队每周要花大约70个小时回应各地地方政府求助电话,同时还要在华盛顿特区处理联邦诉讼。例如,国家历史保护信托基金会曾就特朗普政府建造白宫舞厅一事提起诉讼,但在最高法院裁定该非营利组织缺乏诉讼资格后败诉。国家历史保护信托基金会一名法官叫停了政府在华盛顿特区市政高尔夫球场的大规模砍树行动这是特朗普总统众多备受争议的改造项目中的一项——包括他提议修建的拱门和市政高尔夫球场重建项目——批评者称这些项目无视了历史保护的法律和惯例。

These days, Cody estimates that his two-person team spends about 70 hours a week answering calls for help from local jurisdictions while also fighting federal cases in Washington, D.C. For example, the National Trust sued the Trump administration over the construction of its White House ballroom , but lost after the Supreme Court ruled the nonprofit lacked legal standing. National A judge blocks the government's tree-clearing spree at a municipal D.C. golf course That's one of many of President Trump's controversial renovations — including his proposed arch and municipal golf course redevelopment — that critics say are bulldozing over historic preservation laws and norms.

正是在这样的背景下,美国国家历史保护信托基金会最近设立了一个防御基金,计划最初筹集1000万美元,以保护那些目前处于攻击焦点的地点和法规。

It's against this backdrop that the National Trust for Historic Preservation recently launched a defense fund , aiming to raise an initial $10 million to protect the places and laws now in the crosshairs.

科迪称,这不仅是华盛顿特区,而是全国历史保护工作面临的一个“生存危机时刻”。

Cody calls this a "moment of existential crisis" for preservation efforts nationwide, not just in D.C.

“全国各地都出现了一种‘向下蔓延’的效应,一些我称之为‘不良行为者’的势力正试图挑战历史保护方面的法律界限,”科迪说。“这似乎正是这样一个时刻:所有不关心历史保护,或者将其让位于其他目标的人,都在试图突破底线。”

"There is somewhat of a trickle-down effect happening around the country, as various, I would call them, bad actors are trying to push the limits of the law in regards to historic preservation," Cody said. "It just seems to be a moment in time where everyone … who does not care about preservation or has it sublimated to other goals is trying to push the envelope."

国家历史保护信托基金会负责人莱格斯表示,“每个美国人都应该对这一趋势感到担忧”,这不仅是因为它可能给个人意义重大的教堂或墓地带来麻烦,更因为这些历史场所“蕴含着智慧、教训、教育和灵感”——而这些都可能被未来世代所失去。应对双重威胁的倡导者将目光投向11月1966年的法律还设立了历史保护顾问委员会,这是一个联邦机构,负责就此类事务向国会和总统提供建议。该委员会目前的24名成员中有20人由特朗普任命。

Leggs, who leads the National Trust, said "every American should be concerned" about this trend, not only because it could spell trouble for a church or cemetery of personal significance, but because of the "wisdom, lessons, education and inspiration that is imbued in historic places" — and could be lost — to future generations. Advocates fighting a double-headed threat look to November The 1966 law also created the Advisory Council on Historic Preservation, a federal agency tasked with advising Congress and the president on such matters. Twenty of its 24 current members were appointed by Trump.

7月,该委员会投票决定以几种引人注目的方式削弱第106条的规定。新规将限制哪些类型的财产最初能被认定为历史遗产,例如将“重要的景观特征”(如大峡谷)排除在外。这一改动还将使新项目公众意见征询变为可选,并取消与美洲原住民部落协商的要求。

In July, the council voted to weaken Section 106 regulations in a few notable ways. It would limit what kinds of properties can be considered historic in the first place, excluding "significant landscape features" like the Grand Canyon. The change would also make public comment on new projects optional and remove the requirement to consult with Native American tribes.

内布拉斯加州的前热那亚印第安工业学校是目前列入《国家史迹名录》的10万多处财产之一,这意味着它已被认定值得通过特别联邦审查和潜在税收抵免来保护。Charlie Neibergall/AP 隐藏图片 togThe former Genoa Indian Industrial School in Nebraska is one of the more than 100,000 properties now listed on the National Register of Historic Places, meaning it has been deemed worthy of preservation through special federal reviews and potential tax credits. Charlie Neibergall/AP hide caption tog

这些改动仍在联邦规则制定流程中,其中包括一个尚未开始的为期30天的公众意见征询期。该委员会将于11月10日再次召开会议。与此同时,国会中又出现了另一个对第106条的威胁——历史保护倡导者称这一威胁甚至更为严重。

Those changes are still going through the federal rulemaking process, which includes a 30-day public comment period that has not yet opened. The council next meets on Nov. 10. In the meantime, another threat to Section 106 has emerged in Congress — one that historic preservation advocates say is even more serious.

NATHPO的格鲁辛表示:“(这些监管变化)在过去几十年里,对我们组织成员和我们的支持群体而言,是一场最严重的危机……而眼下,随着拟议的立法变更,我可以说,这已经演变成了一场真正的野火。”

"[The regulatory changes have] been the biggest five-alarm fire for our membership and our constituency in our mission … in decades," said Grussing, of NATHPO. "And now with the proposed statutory changes, I would say it's turned into more of a wildfire."

9月底,一个跨党派参议员团体提出了一项法案,称该法案将“改革联邦的环境审查和许可流程”,以“为美国带来更廉价的能源、更多的工作岗位和负责任的增长”。其中一项条款将以类似方式简化第106条的流程——限制公众和原住民部落的参与,缩小分析范围,并限制对违规行为的法律救济途径。参议院表示,计划在11月9日休会结束后审议该法案。

In late September, a bipartisan group of senators introduced a bill they say will "reform the federal environmental review and permitting process" to "deliver cheaper energy, more jobs, and responsible growth" across the U.S. One of its provisions would streamline Section 106 in similar ways — curtailing public and tribal input, narrowing the scope of analysis and restricting legal remedies for violations. The Senate says it plans to consider the bill when it returns from recess on Nov. 9. History

历史今年濒危历史遗迹名单聚焦平等与遗忘NATHPO执行主任、萨利什部落公民艾拉·马特表示,这些改动将被写入法律,而非通过监管规定实施,后者未来可能更容易被推翻。

This year's list of endangered historic places focuses on equality and erasure These changes would be enshrined in the law, as opposed to regulations that could more easily be reversed in the future, says NATHPO Executive Director Ira Matt, a citizen of the Salish Tribe.

“保护界很多人都在关注这件事,他们说:‘我们不想成为这些将超出我们大多数职业生涯寿命的改变的一方。我们不想让下一代背负……这项许可改革所带来的失败,’”马特说。

"A lot of the preservation community's looking at this, saying: 'We do not want to be party to these changes that are going to outlive most of our careers. We do not want to saddle the next generation with … the failures that are coming out of this permitting reform,'" Matt said.

马特表示,看到参议员们联手推动一项限制部落主权的法案令人感到“不幸”,尤其是考虑到该法案的民主党赞助者在部落和历史保护问题上一直是强有力的盟友。

Matt says it is "unfortunate" to see senators join forces on a bill that would restrict tribal sovereignty, particularly since its Democratic sponsors have otherwise been strong allies in tribal and historic preservation issues.

上周,NATHPO和其他部落团体致信参议院领导人,敦促他们从提案法案中删除该条款,并与部落协商更好的方案。

Last week, NATHPO and other tribal groups sent a letter to Senate leaders urging them to drop this provision from the proposed bill and consult with tribes about a better approach.

国家历史保护基金会在9月于华盛顿特区的华盛顿国家大教堂举办了一场峰会——该大教堂本身也是受保护的历史遗址——会议包括小组讨论和宣布一项数百万美元的法律辩护基金。Julia Demaree Nikhinson/AP 隐藏图片 切换图片 iThe National Trust for Historic Preservation held a summit at D.C.'s Washington National Cathedral — itself a protected historic site — in September, featuring panel discussions and the announcement of a multimillion-dollar legal defense fund. Julia Demaree Nikhinson/AP hide caption toggle caption i

“与其推动这项许可改革[法案],不如带来你们明年将采取行动的承诺——这一承诺应由委员会提供信息、通过协商制定、并与保护界共同完成——届时我们可以提供事实、提出诉求、分享经验,从而真正建设出可持续的东西,”马特说。

"Instead of bringing this permitting reform [bill], bring the promise that you'll do something next year — informed by committees, developed through consultation and in conjunction with the preservation community — where we can bring in facts, we can bring in requests, we can bring in experience to actually build something sustainable," Matt said.

参议院法案的批评者称,该法案实际上在第106条流程中制造了更多的疑问和混淆。例如,它没有定义具体术语(如什么构成“次要”修复,或州和部落官员需要达到的“必要指标”)。

Critics of the Senate bill say it actually introduces more questions and confusion about the Section 106 process. For example, it doesn't define specific terms (like what constitutes a "minor" restoration or "required metrics" for state and tribal officials to meet).

马特和韦克赫瑟都告诉NPR,在他们最近的游说会议中向参议院工作人员询问此事时,他们被告知民主党和共和党在这些定义上无法达成一致,并预计这些问题最终将进入法庭。政治随着特朗普提出的拱门方案笼罩华盛顿特区,抗议者将希望寄托在中期选举上“他们一直在说的这项法案是,它将提高效率,并让这些争议远离法庭,”韦克赫瑟说。

Both Matt and Werkheiser told NPR that when they asked Senate staff about this during recent lobbying meetings, they were told that Democrats and Republicans couldn't agree on definitions and expected those questions to end up in court. Politics As Trump's proposed arch looms over D.C., protesters pin their hopes on the midterms "The thing that they keep saying about the bill is it's going to create efficiency and keep these controversies out of the court," Werkheiser said.

“但另一方面,他们说,‘嗯,我们实际上还没有真正做任何工作来决定这一切意味着什么。因此,法庭将不得不来理清这一切。'”韦尔克海泽指出,该法案并不能通过简化第106条款来提升效率;相反,由于省去了最初的公众与专家咨询环节,它反而会“大大增加后续过程中出现争议、反对意见乃至法律诉讼的可能性”。正因如此,他希望未来几周乃至几个月里能有更多人加入保护历史遗产保护法的行列。

"And then, on the other hand, they're like, 'Well, we haven't really done any of the work of deciding what any of this means. And so the court's going to have to sort it out.'" Werkheiser says the bill wouldn't create efficiency by streamlining Section 106 — it would actually create "a much greater chance of controversy, objection and litigation further down the process" by excluding public and expert consultation at the start. That's one of many reasons he hopes more people will join the fight to protect historic preservation law in the weeks and months ahead.

“人们可以在政治上各持己见,也可以对未来有不同的看法,”他说道,“但为了铭记自己的历史,人们绝不应被迫与自己的政府抗争。”

"You can disagree about politics. You can disagree about the future," he said. "But you shouldn't have to fight your own government for the right to remember your past."

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