2017/11/02. Assessment and Resolution of Adverse Effects. Objectives 32 CFR 800

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1 Assessment and Resolution of Adverse Effects Kathleen McLaughlin Department of the Army Deputy Federal Preservation Officer Objectives NHPA Process (32 CFR 800) Identifying Adverse Effects Resolving Adverse Effects 36 CFR 79 Curation Requirements Conclusions Best Practices 32 CFR 800 There are 4 steps in the Sec 106 process: Initiate the Sec 106 process Identify and evaluate any historic properties potentially affected by the undertaking Assess potential effects on historic properties Resolve adverse effects and memorialize in agreement document, filed with ACHP Each step in the process requires consultation 1

2 Step 3: Assess effects (36 CFR 800.5) Examples of destruction Demolition; Removal of an archaeological site through data recovery Example of alteration Not consistent with the Secretary of the Interior s Standards 2

3 Removal Example of removal Relocation of a historic building Example of Introduction of Visual/Atmospheric Elements Mortar fire next to a historic district Example of neglect Deterioration of a historic property: Demolition by Neglect 3

4 Step 4: Resolve Adverse effects 36 CFR Schofield Barracks Continue Consultation Alternatives and Modifications Avoid Minimize Mitigate 4

5 Protecting Cultural Resources Alternatives to mitigation or additional mitigation activities may include: Heritage Documentation Programs Preservation in place (protective fencing or interpretive signage) Site stabilization (i.e., erosion or other adverse effects) Preservation or conservation plans developed with SHPO/THPO and Agency consultation Detailed documentation (HABS,HAER, HALS) Intentional burial (hardening site) Public outreach/education Protecting Cultural Resources Re use or re purposing a building, rather than relegating the building to demolition. By changing the primary function of a building while retaining the building s structural and unique aesthetic details, is known as adaptive re use of a building and is highly encouraged so long as it does not take away from the building s integrity, monitoring may be necessary. Occasionally a building s façade is retained while the structure s interior is altered. It is critical that the process comply with the PA and monitoring may be necessary. If a historical resource is suffering decay, it is important to have a plan for treatment or Preservation in place. Building originally used as telecommunications building now used as a data collection building If demolition of a building is the only recourse, then following documentation, and in accordance with energy standards, building materials may be salvaged and re used. Once an architectural resource is determined to be eligible for inclusion in the National Register, the effect a project may have on the property must be assessed. Mitigation is the action decided in consultation with the SHPO to offset an adverse impact from a proposed action that diminishes the resource s integrity of location, materials, setting, association, design, feel, and workmanship. Mitigation efforts range in type, depending upon the complexity of the project and the adverse impact. Examples of mitigation include large format photographic documentation; development of a more detailed historic context; creation of a mitigation and treatment plan; and the production of educational materials. Architectural Mitigation Mitigation: Mitigation offers a way to preserve the history of the site while maintaining project goals. The goal is to preserve valued information and minimize or avoid adverse impacts to the resource. Mitigation attempts to avoid negative impacts by 1) altering the plan of impact so the resource is not affected or 2) record the historically and architecturally significant features of the resource. For a historic building, only by avoiding a direct impact to the resource or its surrounding environment can be considered no effect. If the proposed action cannot avoid the historic resource, the lead federal agency must consult with the SHPO and interested parties to determine the proper course of action to the mitigate adverse impacts. Mitigation requirements are most commonly written up in a Memorandum of Agreement (MOA) or a Programmatic Agreement (PA), which require consultation with the ACHP. Refer to state guidelines for individual DoD installation. SHPO Websites 5

6 HABS/HAER/HALS Three distinct methods for mitigating the adverse impacts buildings, structures, and landscapes are the Historic American Buildings Survey (HABS), the Historic American Engineering Record (HAER), and The Historic American Landscapes Survey (HALS). HABS was the nation s first preservation program, but HABS/HAER/HALS is now usually completed as mitigation of an impact rather than a survey due to cost. A brief description of each follows. Further reading on these topics can be found at the National Park Service website. Historic American Buildings Survey (HABS): Focus is contextual Armories are a good example of buildings documented under HABS Historic American Engineering Record (HAER): Documents historic sites and structures related to engineering and industry Focus on machinery and processes more so than the building fabric Bridges are good example of structures documented under HAER Historic American Landscapes Survey (HALS): Landscapes include gardens, cemeteries, farms, quarries, nuclear test sites, reservoirs/dams, suburbs, and abandoned settlements Camp Clark in Missouri, Territorial Road in Michigan, and Arnold AFB in Tennessee are good examples of military landscapes All three documentation programs include: Large format photographs Written narrative Historic photos Blueprints Resources determined eligible need to be maintained according to the Secretary of the Interior s standards for the treatment of historic properties. Maintenance and treatment plans provide specific information to maintain historic buildings, structures, and landscapes. This type of document can be created out of specific need or as a mitigation document. Maintenance and Treatment Plans Specific topics in a maintenance and treatment plan include: Historically and architecturally significant features Historic context for the individual resource, historic district, or landscape Summary of alterations to the resource, historic district, or landscape Recommendations for maintaining the historic and architecturally significant features based on materials, such as masonry, metal, wood, glass, etc. Results of invasive or non invasive testing Cost estimates Recommendations on consultation with agencies and consulting parties if appropriate Archaeological Management and Protection Create buffer zones, fencing/signage Educate others Interpretation makes others aware of significance Withhold site locations from public disclosure Create / Update ICRMP Create / Update SOPs Create / Update Mapping/GIS Create / Update Buffers / Zones Create / Update Historic Maintenance and Treatment Plans Appropriate Collections Management Ongoing Consultation maintain relations Coordinate with others on and off Post A reasonable and good faith effort to learn enough to make reasonable judgments about effects. Effects must be taken into account, but protection or mitigation efforts will vary depending upon the scope of a particular undertaking. Avoidance of a site is not the same as preservation. Maintain an up to date listing of all historic properties, Maintain historic status in conjunction with real property inventory and reporting guidelines. Withhold from public disclosure information about the location, character, or ownership of a historic property when the GC determines that disclosure may cause risk of harm to the historic property or may impede the use of a traditional religious site by practitioners. Consider alternatives for historic properties, including adaptive reuse, that are not needed for current or projected installation mission requirements. 6

7 Alternative or Creative Mitigation These terms refer to alternatives or creative mitigation to architectural resources for an undertaking s adverse effects. Such approaches can either be implemented alone or as part of a broader mitigation package. Examples of Alternate or Creative Mitigation: Creating visual barriers (e.g., trees) that reduce the visual impacts to a structure; Installing new HVAC equipment in locations that are not visible from the surrounding area (e.g., on the roof or behind bushes); The concept of alternative or creative mitigation is consistent with the definition of mitigation as used in the National Environmental Policy Act regulations of the Council on Environmental Quality [Section (c)-(e)], where it includes: (1) Rectifying the impact by repairing, rehabilitating, or restoring the affected environment; (2) Reducing or eliminating the impact over time by preservation and maintenance operations during the life of the action; and (3) Compensating for the impact by replacing or providing substitute resources or environments (i.e., off-site mitigation ). Installing solar panels on the roof will reduce energy costs and will likely not alter the historic nature of the building; Installing ground source heat pumps to reduce energy costs and will likely not alter the historic nature of the building; All mitigation methods are completed in consultation with SHPO, THPO, ACHP and potentially individual DoD installation. Traditional Cultural Property (TCP) Traditional Cultural Property as defined by National Park Service, Bulletin 38. A National Register property is significant as Traditional Cultural Property and eligible for recognition in the National Register when it is associated with cultural practices or beliefs of a living community and is defined by these criteria: that are rooted in that community's history, are important in maintaining the continuing cultural identity of the community; that constitute a location associated with the traditional beliefs of a Native American group about the group s origins, cultural history, or the nature of the world; are a location where Native American or Native Hawaiian religious practitioners have historically gone, and are known or thought to go today, to perform ceremonial activities in accordance with traditional cultural rules of practice; or are a location where a community has traditionally carried out economic, artistic, or other cultural practices important in maintaining its historic identity. Example of TCPs Traditional Examples a location associated with the traditional beliefs of a Native American/Native Hawaiian group about its origins, its cultural history, or the nature of the world; a location where Native American/Native Hawaiian religious practitioners have historically gone, to perform ceremonial activities in accordance with traditional cultural rules of their practice/beliefs; a location where any community has traditionally carried out economic, artistic, or other cultural practices important in maintaining its historic identity. Non-traditional Examples a rural community whose organization, buildings and structures, or patterns of land use reflect the cultural traditions valued by its long-term residents; an urban neighborhood that is the traditional home of a particular cultural group, and that reflects its beliefs and practices; Educational Materials A new component being developed within architectural surveys is the creation of educational materials. Educational materials provide a way to mitigate an adverse impact by preserving the history of a building, historic district, or landscape and disseminating the information to the public. There are no formal guidelines for educational materials and should be developed in consultation with appropriate agencies. Types of educational materials that can be created include: Pamphlets/brochures/booklets/research synthesis Toolkits Permanent museum displays Outdoor signage Videos Websites Archives (paper and artifact) Temporary celebration displays Architectural renderings 7

8 Other Cultural Resources In addition to the traditional prehistoric and historical sites listed in the previous slides, when considering cultural resources that could be located on a military installation, care should be taken to consider other types of resources that could be eligible for the NRHP or important to Native American Tribes and could include: Battlefields Aerial Targetry (including Bombs) Firing Ranges (including Targets) Emplacements (Bivouacs, Foxholes, Trenches) Antenna or Communications Towers Land Navigation Markers Flagpoles Walkways Gates Static Displays Runways/Tarmacs Rail Spurs Speed Test Tracks Jump Towers Storage Igloos Hangars Visual Observation Towers Rocket Test Stands/Silos Aircraft Crash Sites Loading Pits (for loading aircraft and munitions) Submerged Resources (Sunken Aircraft, Ships, etc.) Sacred Animals or Sacred Plants used in traditional Native American practices (e.g., medicine) (Tribal Consultation required) Sacred sites / Traditional Cultural Properties Other Supporting Infrastructure. Tips for Reaching Consensus Consult before decisions are made Use non threatening venues Allow adequate time for meaningful consultation Approach consultation with an open mind Be honest and clear about existing parameters Be open to suggestions of alternatives Address concerns or explain why you can t Documenting Outcomes Memorandum of Agreement/Programmatic Agreement Decisions recorded Legally binding document evidences agency compliance Road map for successful implementation of the undertaking Formal ACHP comments 8

9 Conclusion Section 106 process is designed to accommodate preservation of our nation s heritage while allowing the development, maintenance, adaptation, and transfer of properties necessary to maintain and improve Army programs, operations, and personnel. Plans for proposed changes to historic buildings, development of new training areas, construction on a prominent visual landmark, and transferring out of federal control fall under the purview of Section 106 requirements. Prominent players in the process would include: Cultural Resources Manager (CRM) The State Historic Preservation Office (SHPO) Tribal Historic Preservation Officer (THPO) Advisory Council on Historic Preservation (ACHP) Management agreements with other agencies or entities. Who else on post might be involved in CRM? (e.g. engineering, range, energy, planning, public works, public research/interest) Additional resources that provide valuable information to the CRM. Federal Agency Historic Preservation Programs and Officers Archaeology Tools National Register Links and Publications Cultural Resource Laws Best Practices Advance Planning/Coordination with CRM Explain requirements and potential effects Understand existing Programmatic Alternatives Consult on ICRMP and SOP development Develop PA for routine actions Exclusionary/mitigation/combination Maintain GIS with survey areas, sites, UXO, previous ground disturbance, constraints, etc. Briefings and handouts prior to training events Site protective measures (Seibert stakes, natural topography/boulders, fencing, site hardening) 9