Preserving our past through public policy

THE FUTURE OF OUR PAST
by MONICA MACDONALD
as published by The Guardian - Feb. 25, 2008

This is the last in a series of three articles meant to encourage and inform public participation in the Island Heritage Study commissioned by the provincial government. As part of the study, The IRIS Group welcomes written briefs at the online address below.

Heritage policies go largely unnoticed, but all levels of government are involved in how we designate our heritage places, how we treat the remains of our past, and how we operate the repositories that hold these remains. What also counts, of course, is how these policies are interpreted, supported and implemented.

Heritage places in Prince Edward Island fall under federal, provincial and municipal jurisdiction. Federal sites, protected by federal legislation and mostly operated by Parks Canada, include both natural and cultural places like the sand dunes at Greenwich and Province House in Charlottetown. Provincial sites come under provincial legislation and the Department of Community, Cultural Affairs and Labour, and are recognized in one of two ways: registration or designation. Registration is honorific and means enlistment on the P.E.I. and Canadian Registers of Historic Places. Designation, though the owner must agree to this status, goes a step further in protection by prohibiting alteration to the exterior of a structure (or landscape) without permission of the province.

Where an Island municipality has its own provisions, the province defers responsibility. Such is the case in Charlottetown, which also has a delineated heritage area in the downtown core. Here as well, designation means that owners cannot alter the exterior of a structure or landscape without permission. In this case, however, the owner does not have to agree, though he/she has an opportunity to argue against it. Both the province and the capital provide only modest incentives to encourage ‘sympathetic’ renovation to designated structures. The province offers a plaque and funding of 25%, up to $3,000, and for residential properties the city offers a similar grant, as well as the waiving of the building permit fee and a five-year graduated tax freeze if the property is reassessed at a higher level due to heritage renovation.

Places of heritage interest also include archaeological sites. The provincial Archaeological Sites Protection Act outlines the circumstances under which these investigations can occur on the Island. Among other things, it renders illegal the disturbance of such sites without permission of the province. Because even the most careful practice of archaeology is invariably destructive, the Act specifies that all legal excavation is to be done to scientific standard and solely for the purposes of retrieving historical (or pre-historical) information. Though the artifacts buried therein belong to the province, under the federal Cultural Property Export and Import Act it is further prohibited, without a permit, to export them from Canada.

A problem with both pieces of legislation is that in Prince Edward Island there is little professional support for them, and almost no policing. The provincial unit responsible for heritage is seriously understaffed. Archaeological sites, many not even identified as such, are often located in out-of-the way places and easy prey for looters. In 2006 this came to public attention with the story of people using metal detectors to find artifacts and then digging them up and selling them on eBay. It caused a scandal, but a similar loss of Island heritage happens every summer, on a much grander scale, with the big farmhouse auctions. In addition to this loss, under the federal act noted above, if the antiques sold at these auctions are over 100 years old and are leaving the country without a permit, depending on their monetary value it may also be prohibited.

Since it is mandated by the provincial Museum Act to collect, preserve, protect, study and interpret our “human and natural heritage,” the P.E.I. Museum and Heritage Foundation keeps approximately 65,000 objects like these antiques and artifacts in its limited collections space. Most of this collection is donated; adequate funds for artifact acquisition and indeed for much of the other basic museum functions outlined in the Act are virtually non-existent. Also absent, though laid out in the legislation as key to the museum’s mandate, is any significant representation in the collection of the Island’s natural heritage.

Provincial responsibility for other types of heritage resources lies with different repositories. The province has mandated the Public Archives, for example, to collect and maintain mostly written documents, but also historical records like maps, photographs and oral history records. The Provincial Library is responsible largely for published material, including audio-visual and other items. The Confederation Centre Art Gallery has a national mandate, though its collection includes works by Island artists.

In Prince Edward Island a range of public policies directs what happens to our heritage resources. It is important to note, however, that heritage is affected not just by what governments do, but also by what they do not do.

Dr. Monica MacDonald is an adjunct professor in Canadian Studies at UPEI and an associate of The IRIS Group, an Island company specializing in public policy research.

For more information on the Island Heritage Study or to submit a brief please visit

http://islandheritagestudy.wordpress.com

Credit: This article appeared first in the Guardian on Monday 25, 2008. Paragraph six has been modified slightly from the original.