Article from Savannah Morning News, June 18, 2016:
Petition urges protection of Savannah’s buried past
‘Archaeological ordinance’ would require builders to consider historic remnants
Within a city block-sized hole immediately north of downtown’s Drayton Tower apartment complex, excavators have been moving earth deep below the surface to make way for a new hotel. The project is just one of multiple developments underway or pending in Savannah’s Historic District, now that construction activity has picked up after the 2008 recession.
The renewed building activity has recently revived a decades-long effort to protect the city’s underground historic resources.
Archaeologist Phillip Ashlock said seeing the Drayton Street hotel development was a motivating factor behind an online petition he recently posted, which urges the city to adopt an archaeological ordinance.
The large hole in the Historic District, just west of Colonial Park Cemetery, was another reminder that Savannah has no archaeological requirements in place for city or private projects, Ashlock said.
The goal of the petition is to garner support for building requirements that would help prevent the loss of historic resources, Ashlock said, in addition to persuading the city to hire an archeologist who would coordinate preservation efforts. His aim is not to stop development, Ashlock said, but to make sure there is a review process for developers to follow to preserve and document historic sites.
“The past doesn’t belong to anybody,” he said. “We’re stewards of what came before us, and it’s our responsibility to take care of it.”
No ‘champion’
As of Friday afternoon, Ashlock’s petition on Change.org was more than halfway toward meeting his goal of 1,000 signatures.
The petition is raising awareness about the issue as the Chatham County-Savannah Metropolitan Planning Commission creates an incentive for developers to voluntarily conduct archaeological studies.
Under the policy, developers that agree to perform studies for large-scale projects would be permitted to build an additional story beyond the area’s height limits. Four percent of the project’s cost, with a cap of $500,000, would have to go toward archaeology, outreach and education.
The incentive approach is a change in direction after an attempt about four years ago to develop an archaeology ordinance failed to move forward, said Ellen Harris, MPC director of urban planning and historic preservation. Options considered at the time varied from only requiring archaeological assessments for public projects to also mandating that private developers conduct evaluations, with potential incentives to offset additional costs.
The reasoning behind the ordinance was explained in a planning commission memo that said large segments of the underrepresented community — such as slaves, women and immigrants — could be more thoroughly understood through archaeology. Also, 95 percent of the area’s past is considered prehistoric and archaeology remains the only effective means of studying the 13,000-year-old heritage, the memo stated.
Archaeology helps tell the story of the people who built the buildings, Harris said.
“That story isn’t told in the structure anymore,” she said.
That abandoned 2012 endeavor followed a previous failed attempt in the late 1980s. At that time, the planning commission approved an ordinance that would have established an archaeological review policy for city projects, in addition to prohibiting the removal of artifacts from city-owned lands.
The ordinance was never approved by the mayor and aldermen, however.
“We just haven’t had a champion at the city council level for it,” Harris said.
With a new council in place, the issue could be brought back for consideration.
Savannah Alderman Bill Durrence, who represents the downtown Historic District, said last week that he was surprised to learn the city does not have an archaeology ordinance in place. The lack of a policy was something he would look into, Durrence said.
“That’s kind of odd, considering our history,” he said.
Underground stories
Most people in Savannah have no idea the city does not have an archaeological ordinance, either for city or private projects, said Rita Elliott, education coordinator and research associate with the Lamar Institute archaeological nonprofit. Elliott said she has been supporting the effort to “get the ball rolling” for implementing protections for 30 years, but that the lack of community awareness to the issue has played a part in the planning commission’s failed attempts to get regulations enacted.
“I think they need public support,” she said.
The false perception that archaeology and development can’t coexist is another barrier to an ordinance, said Laura Seifert an archaeology professor at Armstrong State University. Archaeology would just be another component of the historic review process, Seifert said, and the cost and time it takes could be built in if developers know their responsibilities at the start.
“If there is good planning, it shouldn’t be a problem,” she said.
Certain projects that receive state or federal funding are required to conduct archaeological studies. That requirement was why Chatham Area Transit had to have a site evaluation performed in 2012 when it was building a transit center on Oglethorpe Avenue west of Martin Luther King Jr. Boulevard.
The archaeologists for that project evaluated two brick wells found on the site, which were believed to date back to the 18th century. The excavation work uncovered artifacts from the 1700s, as well as ceramic shards dating back an estimated 1,500 years, said the project’s archaeologist, Angus Sawyer. More artifacts would likely have been discovered if it wasn’t for the damage caused to the site by the construction of a bus station there in the early 1960s, Sawyer said. Now more than 50 years later, Sawyer said, that damage continues throughout the city.
“There is a story under Savannah that is being lost piecemeal,” he said.
Digging versus archaeology
Historic artifacts are discovered regularly during construction projects. Recently, workers dug up about 50,000 19th century bricks hand-crafted by slaves, known as Savannah Greys, during the construction of a hotel on the south side of River Street at MLK.
A stoneware jug dating back to the early 19th century was also recently discovered during the construction of a ferry shelter on River Street north of City Hall.
The handle was broken off by machinery during the project, but the rest of the jug is intact and in the city’s possession after Luciana Spracher, Savannah’s library and archives director, heard about the discovery and rushed down to claim the artifact.
“I’m not sure what would have happened if I hadn’t found out about it,” Spracher said.
However, Ashlock said the discovery of an artifact is not the same as determining the historic object’s story.
“Context is very important,” he said. “Digging is different than archaeology.”
Savannah would not be the first city to adopt protections for its buried past. Other governments that have adopted archaeological ordinances include St. Augustine, Beaufort County, and Hilton Head.
Alexandria, Va. has one of the best models, Harris said.
That city’s archaeological protection code requires the evaluation of a project on a case-by-case basis. The developer is only required to hire an archaeological consultant to conduct research after it is determined there is potential for archaeological resources to be impacted.
‘Careful’ crafting
Local architect Patrick Shay said requiring some sort of historic investigation makes sense, but that an archaeological ordinance would have to be carefully crafted so it doesn’t make it impossible for development projects to move forward.
“It can get in the way of people using their property the way they want to,” Shay said. “It depends on how it’s worded, but it’s got merit.”
Shay’s firm designed the Rockbridge Capital hotel now being built along River Street, where the Savannah Grey bricks were found. An ordinance requiring work be halted in the middle of a project when such discoveries are made could be problematic for the developer, Shay said.
“If the rules are too strict, it can make it unlikely it is reported, frankly,” he said.
Jim Schrim, senior vice-president of real estate for Rockbridge, said during the project’s recent groundbreaking that the historic bricks would be cleaned and reused at the hotel.
Shay’s firm also designed the cultural arts center the city plans to build directly west of the downtown Civic Center. The arts center site at Montgomery Street and Oglethorpe Avenue is where a three-story private residence known as the Wetter House previously stood from about the mid-19th century to 1950. Noted for the ornamental iron railings that ran along the balconies circling the first and second floors, the house was torn down to make way for a used-car dealership and auto repairs.
The city decided not to conduct any further archaeological studies for the arts center project, since a previous survey was performed about 16 years ago when the site was being considered for the CAT transit center, according to city officials. While a full-scale excavation was not performed, an examination of a limited area on the site failed to locate any significant features and further study was not recommended, according to the survey report.
While it won’t be the same as archaeology, Shay said there are plans to investigate the site when the former parking lot’s concrete surface is torn up for the project.
With construction set to begin this summer, the arts center is among the millions of dollars worth of projects expected to soon break ground. In addition, developer Richard Kessler has announced plans to begin construction next month of an estimated $250 million hotel project along West River Street.
Without an ordinance in place, the revitalized building activity can mean the death of archaeological sites, Elliott said.
“When the source is destroyed, you don’t have that history anymore,” she said.
Mister Soapstone 
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