CULTURAL RESOURCE MANAGEMENT Information for Parks, Federal Agencies, m ill I Indian Tribes, States, Local Governments, and the Private Sector

VOLUME 20 NO. 13 1997

A Challenge for the Military Mission Preservation in the Armed Forces

U.S. DEPARTMENT OF THE INTERIOR National Park Service Cultural Resources PUBLISHED BY THE CRM CELEBRATING 20 YEARS OF PUBLICATION NATIONAL PARK SERVICE

To promote and maintain high standards VOLUME 20 NO. 13 1997 for preserving and managing cultural Contents ISSN 1068-4999 resources

DIRECTOR A Challenge for Robert Stanton

ASSOCIATE DIRECTOR the Military Mission CULTURAL RESOURCE STEWARDSHIP AND PARTNERSHIPS Katherine H. Stevenson Defending the Nation's Heritage 3 Newell O. Wright EDITOR Ronald M. Greenberg The Importance of Cultural Resources Management for the DoD 4 PRODUCTION MANAGER L. Peter Boice Karlota M. Koester A Summary History of the Army's Preservation Program 6 GUEST EDITORS Constance Werner Ramirez Newell O. Wright Mathilda Cox An Integrated Method For Cultural Resource Management 11 Susan I. Enscore and Sheila A. Ellsworth ADVISORS David Andrews U.S. Army Military District of Washington Editor. NPS Implementation of a Historic Preservation Plan 14 loan Bacharach Mark C. Huck Museum Registrar, NPS Randall I. Biallas Puget Sound Naval Shipyard Building 50 Restoration 17 Historical Architect, NPS Susan Buggey Kira Khadem Director, Historical Services Branch FVks Canada Land-Use History—Past and Present 19 lohn A. Bums Susan H. Alvarez Architect, NPS Harry A. Butowsky Graffiti at the Foxtrot Petroglyph Site 23 Historian, NPS Marie Cottrell and Antoinette Padgett Pratt Cassity Executive Director, Remote Sensing Aids Archeological Investigations 25 National Alliance of Preservation Commissions Muriel Crespi Jan Ferguson Cultural Anthropologist, NPS Mark R. Edwards The Presidio of San Francisco—A Study in Inter-Agency Cooperation 27 Director, Historic Preservation Division, Lee Foster, Jerry Fuentes, and Sannie Kenton Osborn State Historic Preservation Officer, Georgia Roger E. Kelly The Recent Past on Eglin Air Force Base 30 Archeologist, NPS Newell O. Wright and Corinne D. Hollon Graves Antoinette J. Lee Historian, NPS Uncovering the British Colonial Past in Northwest Florida 33 John Poppeliers International Liaison Officer Newell O. Wright, Tegan Swain, and Mathilda Cox for Cultural Resources, NPS CRM Planning at Two Service Academies 35 CONTRIBUTING EDITORS John J. Cullinane Stephen A. Morris Certified Local Governments (CLG) Coordinator, NPS Documenting a Cold War Nuclear Reactor—Attempting Innovation 38 Kay D. Weeks Darby C. Stapp Technical Writer-Editor, NPS Building an Enduring Dialogue: The Army Environmental Center's CONSULTANTS Native American Cultural Resources Program 41 Wm. H. Freeman Design, Imaging Production-freeman Publishing Services Lee Foster lanice C. McCoy Editing-Editorial Notes Tularosa Basin Ecosystems: Past and Present 43 Shelley J. Smith An electronic version of this issue of CRM can be accessed through the CRM homepage at . Cover:Taj Mahal, c. 1938 (see description, page 10).

Statements of fact and views are the responsibility of the authors and do not necessarily reflect an opinion or endorsement on the part of the editors, the CRM advisors and consultants, or the National Park Service. Send articles and correspondence to the Editor CRM, U.S. Department of the Interior National Park Service, Cultural Resources, 1849 C Street, NW, Suite 350NC, Washington, DC 20240; 202-343-3395, fax 202-343-5260; email: .

2 CRM N2 13—1997 Newell O.Wright conduct missions with the assurance that their actions will be unimpeded by the threat or reality of legal challenge. Thus, the cultural resources management program serves to increase mission Defending the Nation's flexibility. DoD's cultural resources stewardship benefits the nation in a variety of ways including scientific Heritage and educational contributions, commemoration of historic milestones, and efficient use of tax dollars. An example of the economic benefits can be seen he Department of Defense (DoD), in adaptive re-use of historic structures. as the manager of over 25 million Preservation of historic buildings offers useable acres, is a major player in National space financed by an earlier generation of taxpay­ THistoric Preservation Act (NHPA) ers and often preserves design features not readily compliance actions. Lands controlled by DoD reproduced with modern techniques. contain myriad historic properties, including The material cultural remains preserved those which bear witness to the country's earliest through DoD efforts offer an educational resource Native American inhabitants, the subsequent and a physical connection with the nation's past. periods of exploration and colonialism, manifest Publications, presentations, and outreach pro­ destiny, plantation economies, internal strife, and grams offer an outlet for the dissemination of infor­ more recent events which reflect alternating peri­ mation on DoD's demanding management ods of global aggression and goodwill. DoD's responsibilities, far-ranging cultural resources pro­ preservation efforts provide a connection to the grams, and plans for future preservation efforts. significant events of the nation's past through CRM is an example of one vehicle for sharing material cultural remains as well as sites and information with a larger audience. The com­ structures. These historic properties offer insight pendium of articles comprising this issue of CRM into events that shaped the prehistoric landscape, addresses an array of topics covering examinations molded European presence on these lands, and of land use and military mission, compliance with forged a new nation following the declaration of specific regulations, fresh approaches to manage­ war on the English throne by the firebrands of the ment and protection of cultural resources, specific American Revolution. examples of the preservation process at work, and DoD's activities in defense research, technol­ challenges facing historic preservation as we enter ogy, and flight have, in themselves, left behind his­ the 21st century. Through the circulation of infor­ toric properties of national significance. The mation on cultural resources work, this issue of stewardship of these resources serves as a lasting CRM heightens public consciousness and also con­ reminder of the importance of military actions in veys to cultural resources professionals the scope world events and as a legacy of military achieve­ of DoD's contributions to preservation of our ment. nation's heritage. DoD's obligation to protect the nation's her­ Twenty years ago few people involved in his­ itage has its own historical roots. In 1872 Congress toric preservation understood the magnitude of the delegated the responsibility of protecting the first cultural record standing in threat of ruin or buried national park to the War Department. In the late- under the surface on DoD lands. Few people recog­ 19th century, as Civil War battlefields came under nized the kind of effort required to properly man­ federal protection as memorials to persons and age these resources. Fewer still realized the ideals, their management was assigned to the rewards that would be reaped from DoD's expan­ Secretary of War. sive preservation efforts. Today, in response to legal requirements and This issue of CRM demonstrates how far increasing public concern for stewardship of cul­ DoD efforts have come and how much they have tural resources, DoD has become a leader in the accomplished. The job is not complete, however, development of formal compliance programs. and much remains to be done. Future issues of These programs can be appreciated from two per­ CRM will highlight the tasks that lie ahead and the spectives. steps to be taken to fulfill preservation goals as we From a heritage perspective, the NHPA offers move toward and into the next millennium. an unprecedented degree of protection to the nation's cultural resources; without that law much Newell O. Wright is the Base Historic Preservation of our cultural heritage would have already been Officer at Eglin AFB, FL. Dr. Wright served as co- lost in the name of progress. From a military plan­ guest editor of this issue of CRM. ner's perspective, compliance allows agencies to

CRM N2 13—1997 3 L. Peter Boice The Importance of Cultural Resources Management lor DoD

he Department of Defense (DoD) Military Mission Goals manages a wide range of unique Implicit within DoD's primary mission of cultural resources on its 25 million Native Americans "keeping the peace" has been the military's role of left pictographs and acres of public lands. Included are protecting America's heritage, including its democ­ petroglyphs that T buildings, structures, sites, and objects associated ratic form of government and way of life, and the depicted both with the historical growth and development of the natural, social, and cultural evidence of that way humans and ani­ U.S. military, as well as many other elements of of life. Preservation of visible signs of democracy mals on many DoD installations in the American history and prehistory. help promote territorial and cultural integrity, both arid southwestern Cultural resources under DoD management here and overseas, thus serving as a means of United States. A include the impressive architecture of our military nation-building. By recognizing and respecting the major group of service academies and other historic military symbols of cultural diversity, cultural resources these spectacular installations; Native American rock carvings and pictorial records of preservation can also promote the integration of prehistoric life and archeological sites; pioneer cemeteries, structures, different groups of people. activity is preserved and sites, including remnants of the Oregon Trail; Changing military training and testing needs at the naval Air sites and buildings associated with such major are less likely to meet local resistance if a military Weapons Station efforts as nuclear weapons development and the installation has established good relationships China Lake, CA. space program; historic aircraft and ships, includ­ with the surrounding civilian community. One area ing USS Constitution; and documents, pho­ of common interest can be an installation's cul­ tographs, uniforms, flags, and other objects tural resources. These resources are often an inte­ associated with our nation's military history. These gral part of the community's cultural heritage, and cultural resources are tangible reminders and sym­ local citizens value their preservation. If DoD bols of people, events, and ideas that shaped our installations are good stewards of their natural nation's character. and cultural resources and work cooperatively It is sometimes suggested that the preserva­ with local communities for their preservation, the tion of cultural resources is inconsistent with installations are more likely to be viewed favor­ DoD's military mission. Specific issues include the ably when controversial issues need to be dis­ cost of maintaining historic facilities, the potential cussed. impact of archeological sites on the use of training In many cases, sound preservation and re­ Fort Sam Houston, lands, and the proper disposition of artifacts. San Antonio, TX, use of historic facilities can actually contribute to has nearly 900 his­ Although sound cultural resources toric buildings. In management must occasionally 1991, the fort cope with all of these challenges signed a program­ and more, such views are short­ matic agreement to manage its historic sighted. What often is not consid­ resources, including ered are the full range of benefits the Band Building. which properly managed cultural Fort Sam Houston resources can convey. In fact, has joined with the DoD's cultural resources are Army Corps of Engineers and the important because of their sup­ National Park port of military mission goals, Service to provide their contributions to military his­ hands-on training tory and tradition, and their courses for artisans to learn the fine enhancement of quality of life for craftwork needed the residents, employees, and vis­ to restore buildings itors to DoD installations. such as this.

4 CRM N2 13—1997 an installation's cost-savings goal. Although it is • know and understand our past; frequently assumed that rehabilitating an "old" • recognize and commemorate past events and building is more expensive than new construction, persons; this may not be the case if all costs and benefits • provide a sense of belonging and identity; are considered. Other economic benefits of re-use • offer an inspiration for future generations; include the preservation of higher quality building • foster esprit de corps among our military men materials and workmanship, and less total energy and women about the history and traditions consumption, if all energy expenditures are con­ of military units. sidered. Quality of Life In addition, cultural resources are protected Maintaining orderly, attractive, stimulating by a variety of federal laws, including the National places to live and work contributes to the security Historic Preservation Act, the Native American of all military personnel, their families, and sur­ Graves Protection and Repatriation Act, and the rounding communities. Preservation of historic Archeological Resources Protection Act. Early buildings and districts on a military installation, planning for cultural resource protection and man­ as well as the presence of other cultural resources, agement can help installations avoid the costly creates a strong sense of place and improves the delays that can result from incomplete compliance living and working environment. with cultural resources preservation laws and reg­ One important element in supporting a

Located on Marine ulations. strong quality of life is commitment to good instal­ Corps Recruit Military History and Tradition lation design and planning. The historic buildings Depot Parris Cultural resources commemorate and honor on many of our military installations are well Island, South our nation's and our military's history. The hand­ planned and designed. Recurring landscapes and Carolina, are the some brick officers' quarters at F.E. Warren Air building types also contribute to an installation's remains of the 16th-century Force Base (Fort Russell), Wyoming, testify to our quality of life. For example, the Olmsted Brothers Spanish village military's role in westward expansion. The spires designed the landscape plan for Fort Lewis, known as Santa of West Point are symbols of military honor and Washington, so that the parade ground focused on Elena. Considered achievement. The industrial might of the Norfolk the distant snowcapped peak of Mount Rainier. the finest Spanish colonial archeologi- Naval Shipyard in Virginia demonstrates the will The result is one of startling beauty and grandeur. cal site in the east­ of the nation to build an arsenal of democracy. Many of our military installations are homes ern United States, And, the runways at Edwards Air Force Base, to military museums which are visited by thou­ Santa Elena has California, symbolize our striving to go ever sands of residents and visitors alike. For example, been nominated as higher, and faster, and further. Such places are Wright-Patterson Air Force Base, Ohio, has been a national land­ mark. MCRD vivid reminders of the military's role in the history at the forefront of aviation science for nearly 100 Parris Island has of our country, symbols of strength and sacrifice years. Wright-Patterson maintains programs to been working with that have made our nation great. educate both military personnel and the public on the South Carolina The preservation of outward manifestations the history of its activities. Their museum holds Institute of Archeology and of our cultural heritage provides direct experiences one of the largest collections of aircraft, spacecraft, Anthropology since about remote and otherwise inaccessible places, missiles, and related artifacts in the world. Other 1979 on excava­ events, and people. Protecting and preserving cul­ DoD museums house world-class collections of tion projects at tural resources found on these and other military archeological artifacts, military memorabilia, and Santa Elena. installations is important to: other items. Other installations use cultural resources to develop on-base programs of public education and scientific inquiry, such as those related to archeo­ logical investigations. Base personnel frequently volunteer to assist in such projects. Summary Cultural resources under DoD control are significant national assets. Wise stewardship of these resources is DoD's moral and legal obliga­ tion. Sound management can benefit mission and other military needs, and also enhance the quality of life for DoD's military and civilian employees.

L. Peter Boice is Director, Conservation Office of the Deputy Under Secretary of Defense (Environmental Security) in Washington, DC.

CRM N2 13—1997 5 Constance Werner Ramirez A Summary History of the Army's Preservation Program

lthough the National Historic 1970, that one district, Tulsa, added archeological Preservation Act (NHPA) was expertise to its environmental resources staff. This passed in 1966, the historic resulted in Larry Banks, working as a geologist, to Apreservation program for Army be given the position of Archeological Coordinator installations was developed primarily in response in September 1970. to specific federal agency tasks and deadlines in In early 1971, while the Corps' military pro­ Executive Order (EO) 11593, signed by President gram was beginning to inventory historic proper­ Richard Nixon on May 13, 1971. Almost 100 ties on Army installations, the civil works program years earlier, the Army, then the War was discussing the role of the National Park Department, had been given responsibility for the Service and its authority to fund archeological management of Yellowstone National Park and investigations as part of Corps project costs. After later for many Civil War battlefields and sites EO 11593 was issued, the Corps decided that it designated as historic monuments. But after these could fund archeological work. In December of properties were transferred to the National Park that year, the Tulsa District of the Corps of Service in the 1920s, the military conducted few Engineers awarded the first archeological contracts formal preservation activities, and history was to Wichita State University for surveys of the domain of the Center for Military History and Construction of Copan Dam and to Texas the Army museum program. With the NHPA and Archeological Research Laboratory for the Lake EO 11593, the Army was forced to consider its Texoma Restudy. inventory of historic buildings and sites in whole There continued to be disagreement among new terms: integration of a preservation process the Corps' Districts as to the role of the National into the maintenance, repair, alteration, use, Park Service in funding and carrying out surveys, demolition, disposal, and acquisition of all of its but now there was also the growing awareness of real property. Twenty-five years later and with the compliance requirements of Section 106 of the lessons learned from hundreds of preservation NHPA and its new regulations (36 CFR 800). activities, the Army has a comprehensive, nation­ Corps projects (undertakings, now), such as at wide preservation program. Tahquitz Canyon and Warm Springs Dam in Even before passage of the NHPA, the Army California, were delayed as staff learned new pro­ Corps of Engineers' civil works program had devel­ cedures. By the spring of 1974, the Corps' head­ oped a preservation program in its district and quarters had begun meetings with archeologists division offices across the country. From its found­ and the National Park Service regarding funding ing in 1802, the Corps had been given responsibil­ responsibilities for compliance with NEPA. After ity for many surveys that ultimately involved the passage of Public Law 93-291, the Moss- historic and cultural properties and management Bennett Act, a task force was assembled to draft of national parks, landmarks, and battlefields. regulations for all civil works archeological and Then in 1879, the Corps' Geographical Surveys historic preservation activities. This meeting were abolished, and the practice of carrying out resulted in Engineering Regulation (ER) 1105-2- ethnological, archeological, and cultural resource 460, which in its revisions, guides the Corps of surveys came to an end. The Bureau of the Budget Engineers Civil Works Program in its cultural (now OMB) decided in 1947 that only the resource management responsibilities today. National Park Service had the authority to budget Within a few years, the Corps of Engineers for and conduct archeological investigations on had hired over 20 archeologists and today has a federal civil works projects. In 1951, the Chief of cultural resources staff numbering over 70 archeol­ Engineers requested the Park Service to adminis­ ogists and several historians, architects, and land­ ter the antiquities permit program on all Army scape architects. lands. It was not until after the enactment of the Executive Order 11593, the Moss-Bennett National Environmental Policy Act (NEPA) in Act, and NEPA also spurred the Corps' military

6 CRM N2 13—1997 gram was born. Upon returning to Washington, the staff of the Buildings and Grounds Division of the Corps' military program moved rapidly to establish a consulting position for a historic preservation expert at headquarters. In January 1977, I accepted that position. Issues, particularly concerning the Army's archeological resources, were emerging at a number of mili­ tary bases and in the same year installations began hiring and con­ tracting for assistance. At Fort Bliss, Texas, where an earlier survey of its missile range and one of its maneu­ ver areas had located a large num­ Glen DeGarmo, for­ program into action. In the first Army regulation ber of sites, Dr. Glen DeGarmo was hired. A few mer preservation on the environment, issued in 1974, a chapter was months later, Fort Hood, in central Texas, had officer at Fort Bliss, devoted to historic preservation. The emphasis hired Dr. Fred Brieur. Problems with sites on the and Fred Brieur, was on identifying properties to be nominated to formerly at Fort Yakima training center at Fort Lewis, Washington, Hood, in front of the National Register. When the field asked for assigned extra duty to Major Robert Kavanagh, an the Governor's assistance, the Military Programs Directorate in anthropologist, to develop a historic preservation Palace, Santa Fe, the office of the Assistant Chief of Engineers adver­ compliance program. The three largest of the NM, 1977. tised for a contractor to write a technical manual Army's major commands responded to the prob­ on historic preservation. The contract was lems at their installations by assigning responsibil­ (Above right) John W. Morris and Dee awarded to Parrish, Pine and Plavnick, a New ity for compliance to members of their real estate Ann Story at the York planning consulting firm with an office in and engineering staffs. During this time, the Corps' Environmental Washington, run by Robert Plavnick, a well-known civil works program had begun to hire archeolo- Advisory Board local government planner and an Army reservist. gists at several of its district and division offices. meeting in April, Having just worked with him on the preservation 1980. LTG Morris By the spring of 1978, the beginnings of a core was Chief, U.S. plans for Fort Myer, Virginia, and Fort McNair, historic preservation staff had begun to develop in Army Corps of DC, I then wrote Technical Manual 5-801-1: each of the Corps' programs and slowly a dialogue Engineers from Historic Preservation Administrative Procedures began between installations and districts regarding 1976 to 1980. and, a few months later, Technical Manual 5-801- identification of historic properties. 2: Historic Preservation Maintenance Procedures. The first meeting of this emerging group of The final volume on archeological procedures historic preservation professionals occurred in the never got written. At that time, no one seemed to spring of 1978, when its members gathered at have a clear picture of how the Army should man­ Woodlawn Plantation, outside Fort Belvoir, age its mostly unknown archeological sites. The Virginia, to draft guidance for management of two manuals set forth the structure, direction, Army archeological resources. Over a three-day guidance, and the level of technical information for period, Larry Banks, Fred Brieur, Glen DeGarmo, the Army's program to the present. Robert Kavanagh, Shirley Smith (FORSCOM), In the meantime, many Army installations, Odette Cranno (DARCOM), Larry Aten of the such as Fort Leavenworth, were discovering that National Park Service, and I put together a strat­ just forwarding information about their landmark egy that tied level of risk to archeological sites to buildings or districts to the National Register office priority for inventory and treatment. In other did not satisfy the new compliance requirements. words, the Army would identify those archeologi­ In 1976, the issue of the treatment of 19th-century cal sites most likely to be damaged by Army land buildings located on property acquired by the uses (particularly tactical vehicle maneuvers) first Army in the 20th century came to the attention of and complete its other EO 11593 responsibilities the Advisory Council on Historic Preservation. To second. Given funding, personnel, and priorities, bring the issue to the attention of the Army leader­ triage would be the recommended policy. This ship, Robert Garvey, then Executive Director of the approach was written up in an Army technical Council, recommended that the Council members note (an Army policy interpretation document) meet on site to discuss compliance with the Army. and was followed by many installation cultural With an agreement to protect the buildings from resources management programs for the next 15 further deterioration, the Army's compliance pro­ years.

CRM N2 13—1997 7 Despite the enthusiasm of the core group, Navy. Meanwhile, the Air Force natural resources most Army installations and commands believed staff at Tyndal Air Force Base, Florida, had begun that compliance with EO 11593 could be assigned providing Air Force bases with technical assistance to existing staff in the areas of real estate, facilities in archeology and historic preservation. By 1982, engineering, military housing, and, in a few places, Air Force headquarters had assigned historic to public affairs. As a consequence, there was a preservation to one of its officers. A year later, Dr. great need for training and the dissemination of A. Ludlow Clark, fresh from MX missile-Native information to all installations and major com­ American negotiations, took the natural and cul­ mands. Beginning with a small conference in the tural resources staff position at Air Force head­ fall of 1977 in Washington, DC, the Army devel­ quarters at Boiling AFB in Washington, DC. oped a series of annual or biennial workshops that Finally, in 1984, DoD hired Christina Ramsey to brought together all Army personnel with responsi­ work in the office of the DoD Director of bility for historic preservation compliance. In Environmental Policy. Under her leadership, the 1979, the Army sponsored a week-long historic natural and cultural resources staff of the four mil­ preservation conference at Fort Sam Houston in itary services were coordinated, primarily through San Antonio, TX. Over 100 people attended from the Natural Resources Committee and its subcom­ installations and major commands and that num­ mittee on cultural resources, later to become the ber increased slightly through a series of similar Defense Cultural Resources Committee (DCRC). In workshops held roughly every two years, and in 1985, DoD distributed a new directive that laid collaboration with the DoD, Navy, Air Force, and out the requirements for the military departments the Marine Corps through 1994. Since then, sin­ in cultural resources, very similar to the Army reg­ gle-subject meetings, such as on curation, have ulation. A year later, DoD sponsored the first tri- been organized by one or more of the military service workshop on historic preservation in departments. Williamsburg, VA, and thereafter, the workshops Another early initiative that has continued is begun by the Army were organized through the the organization of programmatic compliance DCRC. With the close of 1985, the Army's program activities. The first of these was the command- had the major elements that were to be developed wide program initiated by Stan Fried, chief of real for the next 10 years. estate at the Army's Materiel Command (DAR- The years between 1985 and 1991 cover a COM), to survey and evaluate the buildings and period of rapid program development. Major com­ archeological literature for 75 Army installations. mands and installations began to obtain historic DARCOM transferred funds to the National Park preservation and archeology staffs. The construc­ Service which contracted for a 2-volume report to tion at Fort Irwin in the California Mojave Desert, be prepared, using a consistent format, for each of Pinon Canyon in southeastern Colorado, and Fort the installations in that command, the Army's Drum in upstate New York focused attention on arsenal, depot, and testing facilities. The coopera­ the installations' needs for technically-competent tion with the National Park Service had been initi­ cultural resources staff. Also the Corps of ated previously for documentation of buildings at Engineers' district offices continued to increase several Army installations and was to continue their cultural resources (primarily archeology) and expand in the 1980s. staffs and took on a larger role in supporting With the enactment of the 1980 amendments installations and major command cultural to the NHPA, the Army realized that it needed to resources projects. Paul McGuff at Fort Worth expand its policy guidance and to have a regula­ District and Horace Foxall at Seattle District tion devoted solely to historic preservation. The began programs to support the total Army pro­ Army regulation was written and approved by the gram, in cultural resources planning and historic summer of 1983, and was finally printed and dis­ building maintenance, respectively. tributed a year later. Army Regulation 420-40, The 1980s also saw Congress and DoD Historic Preservation, directed Army installations begin to look at opportunities to reduce the main­ to fund and prepare historic preservation plans tenance and repair budgets for military installa­ that would accomplish the requirements of the tions. Directions came down that concerned World NHPA, as amended. It made a requirement of the War II temporary buildings and historic family guidance first issued in the technical manual on housing units. With the request from Congress in administrative procedures. 1983 to DoD to demolish most of its World War II The programs in the other military depart­ temporary real property, a nationwide program­ ments of DoD began to take shape in the late matic compliance project was initiated. The Army 1970s. In May of 1979, the Navy hired Dr. John was assigned the lead for DoD on a Programmatic Bernard Murphy as a socio-economic planner to Agreement for the documentation of a representa­ develop the historic preservation program for the tive sample of approximately 40,000 World War II

8 CRM N2 13—1997 temporary buildings (all of which might be eligible Military Academy at West Point, New York, was for listing on the National Register as a multiple interested in developing such a plan, it entered property nomination) with the Advisory Council into an agreement with the Advisory Council to and the National Conference of State Historic develop a prototype. Thanks to the work of John Preservation Officers. Ten years later, this effort Cullinane, AIA, the Council's senior architect, the had resulted in several volumes of documentation Army learned a lot about developing installation and history of military temporary buildings and an preservation plans. This experience, with the work exhibit at the National Building Museum in on CRIS, was used by CERL to develop XCRIS, a Washington, DC, on the impact of World War II graphic user interface integrating GISs, DBMSs, designs and construction on the American home- text-editing, and report generation with on-line front. compliance guidelines that could provide a cul­ Another mid-1980s program undertaken at tural resource manager with a dynamic planning the request of Congress was a study and plan for and decision-making tool. CERL also undertook reducing the costs of maintaining the historic the nationwide survey of World War II temporary houses, or family quarters, on DoD installations. military buildings, development of prototypes and Each military department undertook its own pro­ standards for both archeological and historic land­ ject, and the Army selected 2,006 housing units in scape and building surveys, and the application of quarters listed on the National Register (approxi­ many materials analysis processes to cultural mately 40% of the family housing quarters that resources. It also entered into partnerships with met the criteria of the National Register and other research programs, such as the universities roughly 2% of the total number of Army family of Arkansas and California, to bring their expertise housing units). Detailed histories and building to the service of the Army. Through CERL's condition analyses were used as the basis for esti­ Cultural Resources Research Center, under the mating one-time repair costs and 25-year mainte­ direction of Keith Landreth, the Army could nance requirements. In the Army's report to address the technical issues critical to a cost-effec­ Congress and the subsequent historic preservation tive preservation compliance and stewardship pro­ plan for the historic quarters at Fort McNair in gram. Washington, DC, and Forts Myer and Belvoir in By the end of the 1980s, the Army's cultural Virginia, the Army approached the issue of treat­ resources program contained the components of a ment of similar historic properties united by a mature government program. There was a policy national military historic context and subject to document, technical guidance, a research and current budget guidance that did not differentiate development capability, contracting experience, a for National Register properties. range of precedent compliance documents with the In addition to the support by the Corps of Advisory Council and with the SHPOs, a schedule Engineers' district offices, the Corps also sup­ of regular training conference-workshops, and a ported the growing cultural resources program growing list of completed field projects in docu­ through its research laboratories. The Waterways mentation, survey, planning, maintenance, and Experiment Station, Vicksburg, Mississippi, pri­ management issues. In November 1988, the pro­ marily through the work of Roger Saucier, had gram was recognized when the Deputy Assistant taken particular interest in the problems of man­ Secretary of the Army for Installations and agement of archeological sites in water resources Housing was presented with a National Historic projects. In 1969, the Corps established the Preservation Honor Award from the Advisory Construction Engineering Research Laboratory Council and the Department of the Interior. The (CERL) in Champaign-Urbana, Illinois, to address only piece missing was consistent budget guidance issues of installation management, and by the and funding. 1980s it, too, was recognizing the need to work on The Army's cultural resources program was cultural resources management problems. Through in place but its low priority and constant fight for the interest of Dr. Diane Mann, anthropologist, funds resulted in sporadic progress. Then late in and Dr. Louis R. Shaffer, technical director of 1990, Congress appropriated $10 million to the CERL, the laboratory began a cultural resources DoD to set up a Legacy Resource Management research and development program. Beginning Program to augment the work in natural and cul­ with the problem of developing a computer-based tural resources. This unexpected shot in the arm information management system for archeological has resulted in DoD funding more work in cultural sites, and then expanding into one-for-all cultural resources in the last six years, about $85 million, resources, CERL developed CRIS, the Cultural than in its whole program before 1990. Across the Resources Information System. This led the Army United States on installations of all sizes, the cul­ to look at the issue of computerized preservation tural resources program has achieved many of its planning systems. When the United States objectives. Requirements of NAGPRA, of 36 CFR

CRM N2 13—1997 9 79, and of NHPA Section 110 have been funded the Navy, on behalf of DoD, identified seven spe­ through the Legacy program. Training materials, cific benefits to the military of cultural resources. workshops, and various meetings have brought Besides the savings by re-use of existing historic up-to-date information to installation personnel. facilities and enhancement of the quality of life on Brochures, reports, and videotapes are telling the military installations, the study pointed out that story of the Army's history and its stewardship of the qualities of readiness now most needed in the historic properties. Policy studies have identified theater were exemplified in the installations' his­ and provided background for guidance documents toric places: understanding of different and chang­ on the treatment of Cold War historic properties, ing cultural values, adaptation of existing facilities, cultural resources management plans, and DoD's exploitation of technology for information, respect role in the protection of historic properties outside for tradition and places hallowed by human activ­ the United States. The use of central funding tech­ ity, and a reminder that each soldier is part of a niques versus decentralized funding has more long and proud history of service to the United clearly shown where each is most effective. States. By fully integrating cultural resources man­ Partnerships have been formed with national and agement into the military mission, they become local historic preservation organizations that have assets that strengthen the defense of this democ­ multiplied the public benefit of Army investments racy. in cultural resources compliance. By the mid- 1990s, the second generation of the Army's cul­ Constance Werner Ramirez is Director, Cultural, tural resources management program was Environmental, and Accessibility Programs, Public underway. Buildings Service, General Services Administration. Nevertheless, cultural resources must ulti­ From 1977 to 1995, she directed the historic preser­ mately enhance the readiness and military mission vation program of the Department of the Army. of the Department of the Army. Without a public recreation or historic property interpretation mis­ Information about the U.S. Army Corps of sion, the Army must manage its historic properties Engineers Civil Works program was provided by in terms of the contribution that they can make to Larry Banks, formerly Chief Archeoiogist, Corps of national security. A study by the Department of Engineers Southwestern Division.

Taj Mahal, from cover

Casting a long shadow over Washington Circle is the majesticfaj Mahal (current Building 100) which rises 170 feet into the air at Randolph Field near San AntonioJX.The origins of the name are unknown, but the distinctive appear­ Launch ance of the building clearly reminded someone Complex 33, of the original Taj Mahal, and the name stuck. First Lieutenant Harold L Clark, die architect of U.S. Army White the air city that was Randolph, came up with the Sands Missile idea of a decorative domed structure to encase the water tower that was usually so obtrusive at Range, New most airfields. In doing so, he also devised a Mexico, was scheme to centralize a considerable number of designated a functions in a single large post administration building at the base of the tower. Completed in National 1931 at a cost of $252,000, die Taj came to Historic house not only a 500,000-gallon water tank but the signal office, a photographic unit, the post Landmark in office, the telephone exchange, a print plant, a October 1985. weather office, the judge advocate's office and Photo courtesy courtroom, and administrative offices of the Quartermaster, as well as the personnel, finance, U.S.Army Public recruiting, and public relations offices. In addition, Affairs Office. the rear wing contained a movie theater and auditorium that had a seating capacity of 1,150 people. On the second floor were the offices of the Randolph Field and the Air Corps Training Center commanders. Over six decades later, many of those functions still remain in the Taj.

10 CRM N2 13—1997 Susan I. Enscore and Sheila A. Ellsworth An Integrated Method For Cultural Resource Management

he National Historic Preservation management. This comprehensive approach trans­ Act of 1966, as amended (NHPA), lates into an organized, coherent, and coordinated is the most prominent federal regu­ effort which includes all aspects of cultural Tlation which military cultural resources (i.e., inventory, evaluation, mainte­ resource managers must address. Historic docu­ nance, management, adaptive use, etc.). mentation of military installations encompasses A comprehensive plan identifies and evalu­ historic buildings, structures, objects, landscapes, ates all areas of the installation's cultural and archeological resources. To meet legislative resources at once. The plan also allows the cul­ requirements, techniques for identification, eval­ tural resource manager, facility planners, and uation and management of these resources have Operations and Maintenance (O&M) personnel to emerged without a coordinated approach over the successfully allocate time and resources for the years. Additionally, legislative compliance at the proactive management of historic properties. installation level is often handled in a reactive Systematic procedures will assist in cost-effective, manner, precipitated by either scheduled under­ non-intrusive compliance with the NHPA through takings or unexpected maintenance problems and development of identification, evaluation, and issues. In this "compliance by immediate neces­ maintenance processes. sity" approach, each compliance case is seen as Once properties have been identified as his­ an individual event, consisting of limited histori­ torically significant, cultural resource managers cal research and fieldwork. face the task of proper maintenance. Construction With the downsizing of the Department of and maintenance techniques for more recent struc­ Defense (DoD), this approach to the identification tures and buildings do not necessarily apply to and management of cultural resources is no longer historic structures and buildings. For example, his­ adequate. It has proven inefficient in terms of toric bricks are softer than today's kiln-fired duplicated efforts, time and cost. The following bricks. Historic mortar was high in lime while factors contribute to the difficulty in cost-effective today's mortar consists of Portland cement, a identification, management, maintenance, and much stronger binding material. The use of preservation of cultural resources on military Portland cement mortar has a tendency to quickly installations: lack of Space Launch resources (manpower Complex 10, and funds); inability to Vandenberg Air hire needed expertise; Force Rose, CA built non-uniform method­ in 1958. Complex 10 was ologies and guidance in listed as a National significance determina­ Historic Landmark tion; and lack of effi­ in 1986 on the cient methods for basis of its being "the best surviving cultural resource identi­ example of a fication and evaluation. launch complex A clear, concise and built in the 1950s comprehensive at the beginning of approach to an installa­ the American effort to explore space." tion's cultural resources Photo by Sgt. Louis documentation require­ Briscese, January ments is necessary to 1994. be both cost-effective and beneficial to all levels of installation

CRM N2 13—1997 11 destroy the much softer historic brick, therefore base to continue its mission of research, develop­ causing rapid deterioration of the building. ment, and testing of missiles and satellites with Installation personnel need guidance and treat­ minimal delay. ment manuals on the proper maintenance and Plans and Guides repair of historic materials. Preservation and Management Plans provide An integrated cultural resources management installation personnel with guidance on the proper plan addresses the installation users' diverse management, maintenance and future use of his­ needs in a simple, yet comprehensive, manner. toric buildings, structures and landscapes. Quality preservation procedures result from a com­ Management plans evolve from baseline invento­ bination of historical, architectural, landscape ries and can ultimately result in programmatic architectural, and engineering research that pro­ agreements. vides practical guidance to historic resource man­ For example, CRRC completed a Historic agers at the installation level. This approach must Landscape Inventory and Master Plan for Fort incorporate all levels of installation personnel, Sam Houston, TX. The landscape inventory including residents and users, into the preserva­ defined the post's historic context and identified tion initiative to be effective. Effective plans assist the significant landscapes. At the completion of installation personnel in complying with federal the inventory, CRRC developed a landscape mas­ preservation legislation in addition to encouraging ter plan (LMP) using the following criteria: main­ residents and users to become stewards of the tain or enhance the historic character, public installation, thereby preserving the historic charac­ image, and quality of life, and proper maintenance ter. and treatment procedures. The LMP has become a The U.S. Army Corps of Engineers significant tool for the cultural resource manager, Construction Engineering Research Laboratories O&M personnel, and the residents and users of (USACERL) is one of four U.S. Army Corps of Fort Sam Houston by providing a management Engineers Research and Development solution that is sensitive to both the post's historic Laboratories. Its mission is to create and develop character and environmental needs. technologies for sustainable military installations. Nationwide Theme and Context Data At USACERL, members of the Cultural Resources The development of nationwide theme and Research Center (CRRC), are developing a com­ context studies reduces the effort required to effec­ prehensive approach and tools for cultural tively identify, evaluate, manage and mitigate resource management. All tools can be used in effects on cultural resources. Thematic studies per­ various combinations according to specific instal­ tain to groups of cultural resources sharing a uni­ lation needs: fying or dominant trend. Context studies provide Programmatic Agreements information on historical patterns, trends, specific A Programmatic Agreement (PA) is an effec­ events, or broad areas of significance that pro­ tive tool by which an installation may fulfill its duced the cultural resource. Theme and context Section 106 requirements for similar and repetitive studies by installation, by military service, or DoD properties, complex projects, or its entire cultural can ultimately eliminate the need for continued resources program. A PA, in consultation with the property-by-property studies; provide guidance for State Historic Preservation Officer (SHPO) and the a broad user community; and develop into PAs.

Old trooper Advisory Council on Historic Monument and Preservation (ACHP), allows Plaza, Fort Riley, the Section 106 process to be KS,c. early 1960s. tailored to the specific needs The monument of active installations service- and plaza, while relatively new, is a wide and ultimately DoD- landscape feature wide. within the post's For example, CRRC Cavalry Parade. assisted Vandenberg Air Force The parade was determined to be Base (VAFB), California, with a significant land­ the development of an scape by USACERL Interim PA for VAFB's numer­ in 1995. Photo by ous operational Cold War G.C. Burt, June facilities. Once the ongoing 1994. review process is successfully completed, the PA will streamline VAFB's Section 106 process, allowing the

12 CRM N2 13—1997 Officer Housing, For example, two areas Fort Bliss.TX, from of study for CRRC are a pre­ l893.USACERLhas liminary thematic overview of conducted research to determine the DoD aircraft hangars and Notional Register of Cold War facilities. These Historic Places eligi­ studies serve as guidelines for bility of approxi­ the identification and evalua­ mately 450 buildings and struc­ tion of both aircraft hangars tures in and around and Cold War cultural the main canton­ resources. Research in the ment area at Fort Cold War area includes a Bliss. Photo by SA. comprehensive overview, a Ellsworth, September 1995. defense radar program theme and context study, and an anti-ballistic missile theme and context study (all spon­ sored by the Air Force Air Combat Command and the Legacy Program). materials in keeping with the historic character of Historic Preservation Technical Guides the post. Historic preservation technical guides serve A second multi-media system was designed to educate and assist installation personnel (CR for Cape Canaveral Air Station (CCAS), FL. This managers, O&M personnel, and installation users, system, entitled "Stepping Stones to the Moon," is visitors, residents) on the proper techniques to designed as an education and public awareness improve the efficiency and effectiveness of identi­ tool and is located at the CCAS museum. Visitors fying, evaluating, repairing, maintaining and man­ have the option to learn about astronauts and spe­ aging installation cultural resources. cific space programs, play a history game, and lis­ For example, CRRC's technical guides per­ ten to and view footage of missile launches. taining to condition inspection, materials specifi­ These various preservation tools work cation and repair techniques assist installation together to create a comprehensive approach to personnel with proactive maintenance of historic cultural resource management. Theme and context building materials. In contrast, current mainte­ studies can supply the basis for cultural resource nance practices requires the allocation of decision-making that results in Preservation Plans resources for building repairs after the building and Programmatic Agreements. Guidance docu­ elements fail. The net result would be the ineffi­ ments and multi-media systems can assist in the cient use of resources and potential loss of histori­ implementation of Management Plans. Using com­ cally significant building elements. pleted tools to build others avoids duplication of Cultural Resources Multi-Media Systems effort, providing a more cost-effective process. Cultural resources multi-media systems are Data collected quickly, economically, and accu­ interactive computer programs designed to rately provides the foundation by which the com­ enhance the management of cultural resources or prehensive management of cultural resources is educate installation users about cultural resources. possible. The systems are designed for the installation end user and include several modules of data as Susan 1. Enscore is a historical geographer with the needed, i.e., historical background, current condi­ U.S. Army Corps of Engineers Construction tions, maintenance requirements, techniques and Engineering Research Laboratories, Champaign, IL. specifications, photographs, drawings, and maps. Dr. Enscore's email address is The CRRC designed a multi-media system . for Fort Riley, Kansas, to identify, evaluate, and maintain their historic landscapes. The system Sheila A. Ellsworth is a registered historical architect was designed to allow the cultural resource man­ with the U.S. Army Corps of Engineers Construction ager to manage and the O&M personnel to main­ Engineering Research Laboratories, Champaign, IL. tain the historic landscapes. It is also a powerful Ms. Ellsworth's email address is tool for educating the residents on proper planting .

CRM N2 13—1997 13 Mark C. Huck U.S. Army Military District of Washington Implementation of a Historic Preservation Plan

he U.S. Army Military District of Signal Corps because of its prominent location on Washington (MDW) is comprised top of a hill. It was renamed Fort Myer in honor of of six installations with approxi­ Brig. Gen. Albert J. Myer, the Army's first chief sig­ mately 5,500 units of family hous­ nal officer. The Signal Corps left in 1887 when T General Sheridan changed Fort Myer's mission to ing. Although this represents only about 5% of the Army total (120,000 units within the United become the nation's calvary showplace. The sta­ States), MDW has 77 General/Flag Officer's quar­ bles originally built for the calvary are still home ters, nearly 25% of the Army total of 324 units. to the Army's last official horses. Fort Myer is now All of these quarters are historic. In all, more the home of the Old Guard, which performs mili­ than 400 housing units within MDW are listed or tary ceremonies, including burials at Arlington eligible for listing in the National Register of Cemetery. It is also famous as the site where in Historic Places. The average age of these quarters 1907 Orville Wright demonstrated the first pow­ is 71 years. ered airplane flight to last longer than one minute. The installations of the MDW have always Fort Belvoir has been an Army post since maintained stewardship of these quarters, but the 1917, originally named Fort Humphreys. It was active preservation of individual and neighbor­ part of the colonial estate of Lord Fairfax, which hood groups of quarters began in 1984 when the he named "Belvoir," for "beautiful to see." It is the MDW initiated the process to comply with Army largest of MDW's installations, covering 8,656 Regulation 420-40, the Army's implementation of acres. Fort Belvoir is surrounded by significant the Section 106 review process. Through this historic sites including Gunston Hall, Mount process, historic districts were identified at Forts Vernon, and Woodlawn Plantation. The relocated Lesley J. McNair, Myer, and Belvoir. Pope-Leighey House, a Usonian house designed Installation Historical Context by Frank Lloyd Wright, is presently located at Forts McNair, Myer, and Belvoir, like all Woodlawn. Army installations, have long histories that make The Cultural Resource Survey Process them unique. Fort McNair is one of the nation's In 1984, the House Appropriations oldest continually occupied Army bases, estab­ Committee's Subcommittee on Military lished in 1791. The War College campus was built Appropriations requested the Army to develop a here in 1905, designed by McKim Mead and long-range plan for the care of its historic housing White. Stanford White had designed long, sym­ due to the high costs of operating, maintaining, metrical barracks across the street from each other and upgrading these units. This request prompted facing the parade grounds. The barracks to the two Army studies, both of which evaluated the his­ west impinged on the hospital where Major Walter toric and architectural significance of historic Reed did his original work to cure yellow fever units, listed prioritized maintenance and repair and later died of complications due to surgery in requirements, and estimated costs for a 25-year 1902. White fully expected to build on the site, program. The first was Historic Family Housing but resistance to the demolition of the hospital Management Plan Study by Geier Brown Renfrow prevailed. As a result, six bays are missing from Architects/MMM Design Group (1985). This study the west barracks. White reveals himself as an surveyed 100 quarters at Forts Myer and McNair. optimist for this project, however; the face brick The second was Study/Survey of Historically on the facade was left toothed to eventually com­ Significant Army Family Housing Quarters by plete the rest of the building. Mariani & Associates (1986-89). This study sur­ Fort Myer was constructed on land originally veyed 2,000 historic quarters countrywide. This belonging to Robert E. Lee, but which was confis­ action by the Army acknowledged the role historic cated during the Civil War by the federal govern­ preservation played in efficient management of ment when the Lees were unable to pay their family housing, and formed the basis for the cur­ property taxes in person, as a provision in the tax rent prototype design projects at MDW. law required. The fortification created there was MDW and the Army have participated in the named Fort Whipple and became home to the process of researching their historic assets as pre-

14 CRM N2 13—1997 scribed in Army Regulation 420-40, Historic Quarters Component Guidebook analyzes each Preservation. Once cultural resources on the instal­ quarters, or group of similar quarters, and pro­ lation have been evaluated, a Historic vides direction on the repair or replacement of Preservation Plan detailing the conservation and specific components. Where historic components stewardship of the cultural resources is developed. are either missing or in need of replacement, the Through this process, historic districts were identi­ guidebooks specify new ones, chosen with respect fied at Forts McNair, Myer, and Belvoir. to both historic character and modern needs. This process at MDW grew out of the mutual Modern amenities are recognized as requirements interest of the Commanding General and a council for the comfort of current occupants, and their composed of civilian employees and residents. The integration is designed to be as sympathetic as Office of the Deputy Chief of Staff for Engineering possible to the character of the building. and Housing and the MDW Housing Officer took Another aspect of the Guidebook is to repre­ the initiative to assemble a task force which sent logical management practices. All components brought together Army housing and engineering and designs are standardized, which saves time on personnel, representatives of public preservation individual design and contracting efforts and agencies, and the Norfolk Architectural/ results in cohesive units with equitable compo­ Engineering firm of Hanbury Evans Newill Vlattas nents. The production of the guidebooks involved & Company. The task force defined three goals: to the input of residents and installation personnel. protect and preserve MDW's historic architectural Upon completion in December 1993, the guide­ resources, to provide a standard of excellence in books were officially sanctioned by the family housing, and to prevent unnecessary expen­ Commanding General and adopted as Installation ditures of financial and human resources. policy. The task force developed a set of Implementation Stewardship Standards, or principles applied to The main objective of the Historic work to be performed on MDW's historic quarters. Preservation Plan at MDW was the selection of a The Stewardship Standards specify treatment of number of prototype whole-house revitalizations

Quarters 20A at interior and exterior elements of the quarters and to serve as models for subsequent work. In the fall Fort Myer, Virginia. are meant to be referenced in conjunction with of 1993, 12 quarters in 8 buildings at Forts Repair of deterio­ prevailing Installation Design Guides and the Belvoir, Myer, and McNair were chosen as proto­ rated wood at the Secretary of the Interior's Standards for types, based on the recommendations of the A/E front entrance, and Rehabilitation. The Stewardship Standards were and the installations, taking into account sched­ complete paint removal and formally adopted by the MDW in December of uled vacancies and a range of occupant ranks and repainting. Photo by 1992. In January of 1993, the Army historic family types of quarters. Currently, construction docu­ the author. quarters preservation program was introduced in a ments have been completed for all 12 quarters, promotional ready for execution upon funding authorization. brochure, Historic Two prototypical quarters at Fort Belvoir have Preservation Plan, already received funding and are being scheduled Military Family for rehabilitation in fall 1997. The National Park Quarters. Service Historic Preservation Training Center is One objective of acting as the contracting agency. The construction the program was to phase will be used to document the renovation in address the need for progress to further the practice of cultural resource guidance on the preservation at MDW and elsewhere in the Army. everyday mainte­ Following the completion of these prototype revi­ nance and repair talizations, the results will be evaluated and the requirements of the next phase of the program can be modified if historic quarters. needed before further implementation. Toward that end, Integral to the whole house revitalization of three-ring binders historic quarters is the opportunity to anticipate were compiled con­ future needs that may potentially disrupt the his­ taining descriptions toric fabric of the building and design the solution of all elements from into the house. A good example of this would be each type of historic the mechanical and electrical systems of these quarters found on the homes. In all of these elements can be found three installations. wrapped and stapled tightly to the baseboards, These were distrib­ running in busses next to ceilings forming unlit uted to each installa­ coves, and plunging through door and window tion. The Historic jambs at every floor to reach the exterior, where

CRM N2 13—1997 15 References Nathaniel McCormick. Hanbury, Evans, Newill Vlattas & Co. Architects, MDW Historic Family Quarters Preservation Program—Program Summary and Implementation Plan, 1995. Army Environmental Managers Handbook Series, Cultural Resources Management (AEC/CERL spon­ sored), 1993-94. Legacy Resource Management Program, The Benefits of Cultural Resource Conservation, 1994. Karen Waddell, National Trust for Historic Preservation, Creating Partnerships in Preservation: A Guidebook for Legacy Coordination, 1993. Advisory Council on Historic Preservation, Defense Department Compliance with the National Historic Preservation Act, 1994. Seattle District Engineers, Maintenance and Repair Quarters 7 at Fort they snake along walls like vines. The prototype Manual for Historic Structures Fort Lewis, Walter McNair in design anticipates the need for growing capability Greissinger Architects, 1987-88. Washington DC. and integration of future new technology by Council on America's Military Past (CAMP) publishes This quarters, designing a cable space inside the existing base­ Headquarters Heliogram. designed by McKim, Meade board. All electrical lines, telephone wiring, and U.S. Army Military District of Washington, U.S. Army and White, is rep­ TV cable to every room in the house run in this MDW Public Affairs Office, 1992. resentational of 15 space, eliminating the need to extend these ser­ Phyllis I. McClellan, Silent Sentinel on the Potomac, similar General's vices later. If more cable is added, the baseboard Heritage Books, Inc., 1993. Quarters in a row. is removed and the cable installed. In this way Photo by Nat Summary of studies and surveys: McCormick. several maintenance headaches are avoided by 1974-75 Extensive survey work of quarters at Forts eliminating the need to drill and anchor into the Myer and McNair done by Raymond Parish Pine historic fabric of the building. This reduces water and Plavnich with Constance Ramirez and James penetration problems and the disruption of the Madison Cutts, Universal Restoration Inc. quarters' period appearance. 1983 Historic Preservation Plan Fort Myer (author Conclusion unknown), included some history and preservation Most of the historic housing at MDW is recommendations, and a conditions and priorities assigned to higher ranking officers, primarily matrix for each quarters. colonels and generals. Many of these quarters 1984 need consolidated and/or updated utilities, and 1) Historic Family Housing Management Plan Study repairs to many building elements suffer because by Geier Brown Renfrow Architects/MMM Design Congress is reluctant to renovate housing which Group (1985) surveyed 100 units at Forts Myer and does not directly impact enlisted personnel. Work McNair. on these quarters is progressing piecemeal within 2) Study/Survey of Historically Significant Army the limits predefined by Army regulations until Family Housing Quarters by Mariani & Associates Congressional authority can be granted to begin (1986-89) surveyed 2000 historic units country­ renovation. The present installations at the wide. Military District of Washington must continue to 1992-present Hanbury Evans Newill Vlattas & craft compelling professional and economic pre­ Company developed MDW's Historic Family sentations to Congress so that funding will con­ Quarters Preservation Program. tinue to be available for the appropriate revitalization of Historic Army Family Housing. In Mark C. Huck, AIA, is the on-site representative for this way we can continue to serve our goals of Hanbury Evans Newill Vlattas & Company and is providing a standard of excellence in family hous­ responsible for implementation of the Historic Army ing, preventing unnecessary expenditures of finan­ Family Housing Preservation Plan. cial and human resources, and protecting and preserving our historic architectural resources for future generations.

10 CRM NS 13—1997 Kira Khadem Puget Sound Naval Shipyard Building 50 Restoration

ocated in the northwest corner of Through the years, Puget Sound Naval Washington State, bordered by the Shipyard grew. By 1913 a second dry dock was Olympic mountain range to the west completed, along with numerous buildings and L and the Cascade mountain range to structures. By World War I its mission was the east, is the Puget Sound Naval Shipyard. The expanded and included the development of the Shipyard is situated on Sinclair Inlet, a natural capability to construct new ships. Additional dry deep water port. The 354 acres of the Shipyard docks were built, with the fifth finished in 1941. are bordered on three sides by the City of By World War II, the Shipyard was to play a Bremerton in Kitsap County. The City of Seattle major role in winning the War in the Pacific. It is only one hour away by either driving or ferry performed major battle repair, modernization, service. The Shipyard now employees 8,925 civil­ overhaul, and shipbuilding as the only west coast ians and 7,262 military personnel. It is built shipyard capable of repairing large ships. around six major piers and six large dry docks, By 1945, the Shipyard's mission changed to and consists of approximately 400 structures. the deactivation of the war fleet. Its workload Originally called Puget Sound Naval Station, since that time has included conversion of carriers the name was changed in 1945 to Puget Sound to accommodate jet aircraft and maintenance of Naval Shipyard. The Shipyard's principal historic the Navy's nuclear powered ships. significance was its role as the primary repair Throughout its history, the Shipyard has facility for damaged battleships and aircraft carri­ designed and built structures based on changing ers as well as smaller warships of the Pacific Fleet technologies and needs. The designs and construc­ during World War II. Today, Puget Sound Naval tion of shipyard buildings were determined mainly Shipyard contains four historic districts and one by the public works officers. The basic configura­ National Historic Landmark District. tion of the Shipyard was firmly established by Officially funded by Congress in 1891 as a post-World War I. dry dock site for naval and commercial purposes, Located within the National Historic the Shipyard has provided over a century of ser­ Landmark District and in the heart of the indus­ vice in defense of the nation. The decision to trial area of the Shipyard is one of the oldest origi­ establish a shipyard in the Northwest was due in nal buildings of the Shipyard, Building 50, built in part to the fact that the United States had no dry 1896. With partial funding provided by the Legacy dock north of San Francisco large enough to Resource Management Program* and additional accommodate the country's larger commercial sail­ Shipyard resources, Building 50 is being restored ing vessels and steamships. Often ships in need of and re-utilized. repairs had to be sent to the British Columbia Building 50 was designed by the Seattle DockYard at Esquimalt. In 1888, President architectural firm of Chamberlain and Siebrand in Grover Cleveland appointed a commission to 1896. It was originally constructed on a hill over­ select a suitable site for a navy yard and dry dock looking the Shipyard for a cost of $7,000. It was in the Northwest. The commission decided Puget the headquarters for the Naval Station during Sound was the most suitable location in the entire most of the initial period of development region for a navy yard and dry dock. Congress rec­ (1891-1906) and housed the offices of the ognized the resulting flight of American money to Commandant. Five other similar structures were a foreign port and passed the proposal to estab­ built adjacent to Building 50 for officers quarters, lish a dry dock in the Northwest. and are still used as quarters today. By 1896, the first dry dock was completed, In 1911, the building was moved off the hill along with an administrative building and officers' closer to the main work area of the Shipyard near quarters. A Marine Reservation was established Dry Dock 2 to be used as a receiving ships office. shortly after to provide security. In 1906 a wire­ Over the years, the building had many uses; in less station was established and in 1911 a hospi­ 1918 it was the Shipyard's dental office, in 1920 tal was built. the building was used by the Shipyard chemists,

CRM N2 13—1997 17 Building 50 in in 1922 by the Fire Chief and, 1907. shortly after that, the Apprentice School was estab­ lished in the building. By 1939 the building was moved a short distance to the newly built Dry Dock 5, which is where it remains today. Working from an old 1907 photograph, the Shipyard's goal was to restore this building to its original appearance as much as possi­ ble. Initially, restoration plans included replacement of all the original siding, as it was thought it would have a better appearance. However, Building 50 in after careful review it was 1995 before restoration. decided only 30% of the original siding really needed replacement since the goal of historic restoration is to maintain as much original mater­ ial as possible, thus keeping the "historic charac­ ter" of the building. Repairs were also made to the columns, which were held in place by a forklift while the bases and plinths were removed and repaired and later reinstalled by the Shipyard carpenters. At the same time, the original wood windows officials, and other employees involved in the pro­ were removed and rehabilitated. Initial estimates ject. While craftspeople worked on Building 50, a to repair each window ran about $600. However, video was made of their accomplishments, which additional research resulted in retention of an will be used to produce a historic preservation experienced window rehabilitation contractor for training video. approximately $300 for each window. The high cost of building maintenance and Next came the demolition of an old concrete Building 50's location within the Shipyard's con­ security vault built alongside the west wall and trolled industrial area sparked discussions in the used to store encryption machines during the 1970s to demolish it. The plan never materialized, 1940s. Not original to the building, the vault was and the building continued to be used as an office torn down. While the vault was being removed, a space. portion of the attached Building 50 wall unexpect­ During rehabilitation, the interior was edly came down, too. Temporary supports were remodeled to provide more administrative space used to shore up the remainder of the wall until it and to include a berthing area for Navy personnel was rebuilt and the siding was installed. Because living on old barges during deactivation of their the vault covered some of the window openings on submarines. Part of the interior of the building will the west wall, new windows designed to match the provide sleeping quarters, showers, a small original windows were installed along the lower kitchen, and additional classrooms upstairs. It is portion of the new west wall to match the original estimated that the money saved will amount to windows on the top portion. over $1 million a year and, more importantly, that Today, the renovation is almost complete. the project will improve the quality of life for these The exterior has been repainted the original color military members. of colonial ivory, the stone facing around the foun­ This project has been unique for the Navy. It dation has been replaced, and almost all the is the first and only project that Legacy has funded awnings have been installed. to actually restore a historic building; all other With Legacy money the Shipyard held a funding has been for studies. Since this is a "first class in historic preservation, including preserva­ time" project of this type, the work has been chal­ tion technology for all craftspeople, contracting lenging and has provided several tangible benefits.

18 CRM N2 13—1997 It has provided historic preservation and craft- skills training to a number of our own craftspeople References and established a list of technical resources for the Grulich Architecture and Planning Services location of materials and expertise within the com­ 1986 Historic Survey Puget Sound Naval Shipyard. munity. Tacoma, WA. This rehabilitation project has also brought Reh, Louise M. and Ross Helen together the Navy, the Army Corps of Engineers, 1991 Nipsic to Nimitz, A Centennial History of Puget and the National Park Service to work in partner­ Sound Naval Shipyard. Federally Employed Women, ship. More important, it has brought heightened Inc. Olympic Peninsula Chapter, Bremerton, WA. awareness of historic preservation to our own EDAW, Inc. employees and through civic displays shown the 1989 Master Plan Bremerton Naval Complex. Seattle, public a piece of their American heritage. WA. Stott, Kermin P. Note 1979 BUILDING 50 Puget Sound Naval Shipyard. In 1991 Congress elevated the stewardship of DoD's Bremerton, WA. natural and cultural resources by enacting a bill to establish and fund the Legacy Resource Kira Khadem was the Historical Facilities Manager Management program. Legacy's purpose is to "pro­ in the Public Works Department of Puget Sound mote, manage, research, conserve, and restore the Naval Shipyard for over three years until 1996. priceless biological, geophysical, and historical resources which exist on public lands, facilities, or property held by the Department of Defense."

Susan H. Alvarez Land-Use History—Past and Present A Challenge For the Military Mission

ort Hunter Liggett (FHL) in southern training and testing needs is the primary objective Monterey County, California pre­ at FHL. Action planning, installation development serves a cultural landscape that and maintenance, and coordination with regula­ F emerged over thousands of years in tory agencies facilitate these goals. United States a remote and bountiful environment. World War II involvement began a history of "free Hypothesized to extend back in time at least rein" training over 200,000-plus acres. Legislation 8,000 to 10,000 years, FHL's rich cultural her­ and public concern eventually challenged to inte­ itage spans a documented 6,000 years of prehis­ grate natural and cultural resources protection into tory- Between the 1769 Spanish exploration of training goals and facility maintenance. this locale and the War Department's 1940 pur­ Environment and Cultural Background chase of area ranch lands, remains of four dis­ The installation's natural and cultural envi­ tinctive historic eras cover the installation. In ronment is bounded on the west by a high ridge addition to a long prehistory, typically Californian paralleling the Pacific coast. Rising sharply from 18th- and 19th-century Spanish, Mexican, and rocky coastal shores, this ridge is one of a wooded American settlement imprinted the land. and chaparral-blanketed system enveloping oak Presently, all branches of the armed forces and grass-covered hills that roll onto margins of take advantage of this isolated terrain for training elongated river valleys. Eastward, and 1,000 to and both testing and experimentation toward 1,500 feet in elevation below FHL, lies the fertile enhanced defense technology. Indeed, meeting Salinas River valley.

CRM N2 13—1997 19 This protected, well-watered setting, bounti­ were wholly or partially within present FHL. The ful in food and material resources, and with access Mexican regime continued the mission's economic to both inland and coastal resources, supported a practices—heavy livestock grazing, irrigated and large prehistoric population. Speakers of a Hokan dry farming, and adobe building construction—on language were among the first to migrate south grants encompassing vast tracts of land. After sev­ and west over the Sierran barrier toward Pacific eral generations under Franciscan tutelage, the shores. These ancestors to the Salinan Indians Salinan people moved back onto the land. Mid- finally occupied the upland valley hinterland, the 1800s gold discovery and California statehood current FHL. The present 165,000-acre military stimulated Euro-American crowding westward in holding is understood to have been heartland of pursuit of mineral wealth or soil rich farms. territory controlled through a long prehistory by Mexican land grants were fragmented; locally, ethnographically identified Salinan Indians. small homesteads dotted valleys within and bor­ Many thousands of years after ancestral dering present FHL. Mining ventures explored Salinan people arrived, Spanish padres estab­ gold, mercury, and chromate possibilities, expand­ lished a mission on oak dotted plains bordering ing area operations into a thriving mining district. San Antonio River. Mission San Antonio de Padua Serving local farmers and miners, the stage stop (1771) initiated local agrarian development, heav­ town of Jolon flourished and a Chinese community ily impacting area natural resources and, subse­ settled near the town's outskirts in order to mine quently, reducing the indigenous population to nearby canyon streams. Between 1880 and 1920, near extinction. Mission records indicate that of small farms again were gathered into large ranches the estimated 3,600 pre-Spanish population (Cook and, in 1920, publishing magnate William R. South-facing eleva­ 1976), less than 20% survived missionization Hearst, Jr. consolidated as much local land as pos­ tion of original Jose (Bancroft 1884). Secularization (1833) resulted in sible into a cattle operation encompassing over Maria Gil Adobe division of mission lands; five Mexican grants 200,000 acres. (c. 1865) con­ structed on El More recently, topo­ Camino Real, over­ graphic isolation attracted mil­ looking San itary use of the heavily Antonio River. wooded hillslopes, rugged Ranch residence until 1940; served mountains, and coastal through 1950s as access. Hearst's holdings and bachelor Officers' neighboring parcels were Quarters. Pending incorporated into the War restoration, struc­ Department's 1940s Hunter ture is "moth- balled." Courtesy Liggett Military Reservation U.S. Army, FHL (HLMR). This new era altered Archives, 1979. the local economy, providing civilian jobs and periodically expanding the area's con­ (below) East eleva­ sumer population. Military tion of north wing addition. Courtesy presence also limited public U.S. Army, FHL access and all private develop­ Archives, 1993. ment, thereby, affording pro­ tection to a significant block of central coast range cultural and natural resources. Soldier training historically involved hand and mechanical excava­ tion, semi-permanent bivouac construction, use of high explosives and anti-aircraft artillery, and tank gunnery over all of HLMR. Favored for its European-like setting, HLMR prepared thousands of soldiers in a realistic environ­ ment for combat on World War II fronts in France, Germany, and Italy. This

20 CRM NO 13—1997 Remains to the tural layering for an appreciation of land use, late-19th-century determined perhaps by topography as well as mud-mortared stone house built human common sense. Time's cultural layering by Leon Gil, son of also provides evidence of impacts to FHL's natural ].M. Gil. In the early and cultural environment. Such information helps l920s,William and refine understanding of human attraction to the Rebecca bane area, land use and re-use, and, more importantly transformed the farmstead into the for current resource management, facilitates coastal mall and assessment of potential risk to cultural deposits supply route termi­ during future actions. nus, creating a Cultural Resources Management Program local social scene Evaluating significance for the range of FHL that prevailed until 1940 establish­ cultural resources proved problematic during ment of HLMR. development of FHL's Historic Preservation Plan Courtesy U.S.Army, (HPP). Highly visible historic properties, such as FHL Archives. the c.1865 Jose Maria Gil Adobe and Hearst's Milpitas ranch house (known as the "Hacienda"), a 1920s Spanish colonial style building designed by architect Julia Morgan, are recognized as signif­ icant by the entire FHL community. Fort Hunter Liggett also protects two sites important in ancient sacred rituals. Both ceremonial sites, one of which is NRHP listed, contain superimposed polychrome painted elements, bedrock mortars, and well- developed middens. A third sacred site showing intensive, but as yet not fully understood, prehis­ toric activity is associated with monolithic forma­ tions bordering a major stream course. aspect of the installation's heritage invigorates Additionally, FHL is cognizant of its respon­ today's training and equipment testing activities. sibility to protect a large number, about one half, Fort Hunter Liggett is equally proud of its distant of the 500-plus sites recorded as sparse lithic scat­ cultural past and current innovative land-use man­ ters and/or isolate bedrock mortars. Failing data- agement toward the 21st century. bility or other scientific analyses, these site types Historic Mission San Antonio, preserved appear to contain limited information potential within an 85-acre inholding, and FHL standing and occur so frequently throughout the installation structures, those of undetermined historic property that only planning ensures their protection and status as well as two National Register of Historic minimizes impacts to both facility maintenance Places (NRHP) properties, are obvious remnants and military land use. Recent excavation of a sam­ of post-1770 land use. Less evident, but no less ple of these sites demonstrated that intact, below- significant, are more than 500 prehistoric and his­ ground deposits were significantly deeper than toric archeological sites ranging from sparse lithic previously understood and contained data altering scatters to complex occupation sites. Prehistoric their characterization for potential significance. sites commonly contain housepit depressions, Assessing risk potential for FHL's cultural bedrock food processing mortars, well-developed assets and implementing resource protection mea­ middens with dietary debris, and potential or con­ sures that do not constrain the full range of train­ firmed human burials. Historic adobe "melts," ing or facility operations, animates the refuse scatters, and linear features characterize management challenge. Currently, FHL's program­ later settlement remains. Nearly six decades of matic approach streamlines Section 106 processes defense training and equipment testing for World for categories of undertakings and integrates War II and operations in Korea, Vietnam, applicable mandates into military objectives to the Panama, and the Persian Gulf resulted in an addi­ satisfaction of regulatory agencies, concerned citi­ tional cultural layer: defense vantage points, zens, and the professional community. These pro­ bivouacs, and landscape features nearly as grams involve coordination including pre-action ephemeral as those attesting to former land uses. site marking, monitoring ground disturbing activi­ A comprehensive study of a single site's ties, and post-action evaluation of land use in sen­ remains, from a scatter of prehistoric tool crafting sitive areas. To date, no training or operations to a strategic depression surrounded by concentra­ action has been stopped and, although previously tions of brass projectile debris, could unravel cul­ unknown archeological deposits have been

CRM Na 13—1997 21 In 1941, Hearst's mount for sustaining associa­ Milpitas Ranch Hacienda served tions beneficial to both the as post headquar­ Salinan people and FHL, ters and currently includes installation support is officer housing, of Salinan activities. In 1995, dining room, and FHL sponsored the Salinan lounge Courtesy U.S. Army, FHL people's successful application Archives, 1941. for a National Trust for Historic Preservation (NTHP) grant to compile a Salinan Veterans' photographic dis­ play for exhibit in the Hacienda during Historic Preservation Week. Similarly, two local historic preservation groups received a 1997 NTHP grant to support Preservation Week events hosted by the

Iselow: Detail, west installation. In addition to wing, Courtesy U.S. annual compliance reports, Army, FHL Archives, FHL provides presentations 1993. for special interest groups, updating them on challenges and successes of integrative preservation programs. As demonstrated at FHL, the military met preservation challenges and successfully achieved sustainable goals through innovative and realis­ tic procedures. On site cul­ tural resources management allows for activities documen­ tation toward program refine­ ments. The FHL historic preservation program illus­ trates that, while enhancing encountered, measures are successfully protecting quality of living and working environments, recorded sites. resource protection and community involvement Preservation program development generated are stimulating as well as integral parts of the mili­ public enthusiasm that remains critically watchful tary mission through creative management. as FHL continues the military mission. Program implementation also stimulated Salinan Indian Susan H. Alvarez is FHL Cultural Resources involvement in FHL actions, including formal and Manager. informal consultation pertinent to heritage con­ cerns. Less specific to FHL land use, but para­

22 CRM N2 13—1997 Marie Cottrell and Antoinette Padgett Area residents have known about the Petroglyph site since the 1940s. However, it was not until the late 1970s that the Marine Corps became aware of its significance. Since that time, Graffiti at the Foxtrot the site has been placed off limits to all military activities. It is, however, accessible and over the years various individuals have left their mark on Petrogh/ph Site the site by either carving, scratching, or painting their names, initials, and/or dates onto the rock surface. The majority of the graffiti are carved or nhabited by coyotes, jackrabbits, and incised, but there are a few that have been rattlesnakes and separated from major painted. As graffiti tend to encourage more graffiti, transportation corridors by the San the Marine Corps Air Ground Combat Center initi­ Bernardino and Little San Bernardino ated a program to restore the site. The project was I funded by the Department of Defense Legacy Mountains, the 600,000-acre Marine Corps Air Ground Combat Center is located in one of North Resources Management Program, Rock Art America's hottest deserts. At first glance it Inventory and Protection Project. appears to be one of the most desolate places in The purpose of the restoration and re-inte­ the world to live, but the evidence is irrefutable. gration project was to mask the presence of graffiti The military installation abounds with prehistoric at the petroglyph site, thereby removing incentives archeological sites, giving testimony to the cen­ for additional vandalism. A technique developed turies it served as home to Native Americans. by conservators was used to disguise the carved, Among the numerous archeological sites located scratched, and incised graffiti using synthetic within the installation boundaries, one of the acrylic polymer pigments. These have a uniform most well-known is the Foxtrot Petroglyph Site, grain size, which will allow future researchers to Marine Corps Air Ground Combat Center at distinguish the re-integrated areas from the sur­ Twentynine Palms, California. It was listed in the rounding rock when examined under magnifica­ National Register of Historic Places on February tion. This is important in light of the current 23, 1995. The site consists of a 3-kilometer techniques being developed for dating rock art. To stretch of lava flow, with four primary concentra­ determine the colors necessary for re-integration, tions of rock art. Four hundred and ninety rock rocks containing graffiti were compared to a art panels and over 2,000 design elements have Munsell soil color chart. Black, brown, gray, violet, been recorded. Unique features include the pres­ red, yellow, buff, and white pigments were selected Below, left. Re-inte­ ence of both petroglyphs (images pecked or and a pointillist-style painting technique was used gration in progress scratched into rock surface) and pictographs to fill in the graffiti with enough color to break up of both incised and pecked graffiti. (images painted onto rock surface) in the same the visual impact. The object of re-integration is geographical location as well as style elements not to completely cover the graffiti with an exact characteristic of both the northern Great Basin color match, but to blend it in with the rock sur­ region and the southern Colorado Desert region. face so that it is less visible. Carved and incised The implication is that the design elements were graffiti directly over petroglyphs was not treated. Right. Same panel created by the various Native American cultural Surrounding areas, however, were re-integrated. after re-integration groups that occupied or traversed the area during Graffiti consisting of very fine scratching was dis­ treatment. the prehistoric past. guised using a highly dilute wash.

CRM N2 13—1997 23 All graffiti were An important component for any rock art photographed before conservation project is to examine why the site and after treatment. was vandalized initially. Some of the graffiti at the The colors used and Foxtrot Site date back to 1907, long before it was the success of the acquired by the Marine Corps. The bulk of the technique were docu­ graffiti, however, is relatively recent. Earlier stud­ mented for each ies of the site by McCarthy (1979) and Hedges panel. Success was and Hamann (1992) made it possible to determine generally dependent that 17 panels were vandalized between 1979 and upon the depth of the 1992. As a result of the re-integration project, nine carved and incised graffiti dated between 1993-1996 were found, in graffiti. Deeper graffiti addition to several undated graffiti not noted by were more difficult to the previous researchers. The majority of the graf­ disguise due to the fiti were found in close proximity to four "off lim­ The pecked or associated shadows. With this technique, re-inte­ its" signs which were placed directly in front of the carved abstract ele­ grated graffiti may be more or less visible depend­ most visible petroglyphs. As these may have been ments of the ing on the time of day, angle of the sun and/or the impetus for some of the graffiti, all four signs Foxtrot Petroglyph presence of clouds. The photographic documenta­ were repositioned along the lava flow where there Site are believed to be of great time tion will be used by Marine Corps personnel for are no petroglyphs to designate the entire area as depth, generally monitoring the condition of the panels which were "off limits." If continued monitoring indicates that western Archaic. re-integrated to determine both the longevity and sign repositioning has limited or no effectiveness Several are found the success of the treatment. in eliminating vandalism, the next option may be with scratched geo­ metric lines super­ Three painted graffiti were found in the to move the main supply route to the south, away imposed, which same general vicinity at the center of the site, from the rock face on which the petroglyphs occur. appear to be more adjacent to a major supply route. Removal of The restoration and re-integration project is recent. painted graffiti at rock art sites must always be an important contribution to preserving the rock approached with extreme caution, as frequently art at the Marine Corps Air Ground Combat the solvents available for removal can be detri­ Center. During a time when rock art on private mental to the rock surface. At the Foxtrot Site, and public lands continues to be vandalized, the selected solvents were tested on small areas of efforts of the Marine Corps to preserve this cul­ each painted graffiti to determine the most appro­ tural resource are laudable. Fortunately, limited priate solvent to use. The most offensive graffiti, a public access to an active training base helps con­ large green "GLENN '95," had been painted serve significant cultural resources such as the directly over a petroglyph panel. A test poultice Foxtrot Petroglyph Site; unfortunately, there are was applied using acid free tissue as a buffer still individuals who cannot resist the opportunity between the poultice and the rock surface. The to leave their mark where others in the past have A wide variety of paint was softened to a point at which it could be left theirs. curvilinear and rec­ tilinear abstract ele­ peeled off with tweezers. Additional poultices were ments, as well as then applied in the same manner to small areas of References zoomorphic and the graffiti. Plastic wrap was placed over the poul­ Hedges, Ken and Diane Hamann anthropomorphic tices to retard evaporation, and the poultices were 1992 A Rock Art Inventory of the Foxtrot Petroglyph figures, are repre­ removed at timed intervals. In the areas outside Site, CA-SBr-161. Ms on file Marine Corps Air sented at the Foxtrot Petroglyph the letters, minute spatters from the spray paint Ground Combat Center, Twentynine Palms, Site. were more difficult to remove, causing a ghosting California. effect around the let­ McCarthy, Daniel F. ters. Upon comple­ 1979 The Foxtrot Rock Art Site, CA-SBr-161, tion, a water poultice Twentynine Palms Marine Corps Base, San was applied to treated Bernardino County, CA. Unpublished report for U.S. areas to draw out any Marine Corps, Twentynine Palms, California. solvent remaining on the rock surface. Marie Cottrell, PhD, is Cultural Resources Specialist Although it was not with the Marine Corps Air Ground Combat Center, possible to remove all Twentynine Palms, CA. the paint using this treatment, after one Antoinette Padgett is a private consultant and works year the graffiti are with the Easter Island Foundation in Los Osos, CA. considerably less visi­ ble.

24 CRM N2 13—1997 Jan Ferguson Remote Sensing Aids Archeological Investigations

n 1994, a team of archeologists from flight at this site and developed the world's first the U.S. Army Construction practical airplane. At this site the Wrights also Engineering Research Laboratories Tri- operated the world's first permanent flight school I Services Cultural Resources Center from 1910 to 1916, where they trained 119 of the Orville Wright pilot­ (USACERL) conducted archeological investiga­ world's first pilots, and operated a support base for ing the Wright tions at the 1910 hangar location within the exhibition flying in 1910 and 1911. Never contain­ Model E over Huffman Prairie Flying Field site located on ing more than a single hangar and one or two out­ Huffman Prairie Wright-Patterson Air Force Base, near Dayton, buildings at any given time, today the site lies in Flying Field.The Model £ carried the Ohio. This work expanded on archeological test­ the floodplain just at the end of the active runways automatic stabilizer ing conducted by USACERL in 1990, and con­ at Wright-Patterson Air Force Base and remains that earned Orville firmed the results of 1993 airborne remote much as it did when the Wright brothers worked the Aero Club of sensing studies by the Earth Observation there. None of the original buildings are still stand­ America trophy for Research Office of the Science and Technology ing. In 1990, the Air Force constructed a replica of I9l3.lt also was one of the only two Laboratory of the National Aeronautical and the 1905 hangar in its approximate original loca­ Wright models with Space Administration's (NASA) John C. Stennis tion. No other buildings are on site. a single propeller. Space Center and 1993 ground-level geophysical The Wright brothers believed strongly in the Photo courtesy studies of the hangar area by the Waterways scientific method and kept detailed records of their Wright State University Archives, Experiment Station of the U.S. Army Corps of experiments with early aircraft, both at Kitty Hawk Wright Brothers Engineers (CEWES). All except the 1990 USAC­ and at Huffman Prairie Flying Field. While these Collection. ERL studies were funded by the Department of records tell us what the Wrights were doing at the Defense's Legacy Resource Management Program. site, they don't tell much about how the site was The 1990 USACERL archeological investigations actually used, on a day-to-day basis, particularly suggested the presence of the 1910 hangar as an during the 1910 to 1916 phase of occupation at the archeological component of the Huffman Prairie site. During this time a variety of activities were Flying Field site. The remote sensing investiga­ taking place at the site—pilot training, exhibition tions revealed magnetic anomalies and images flying, and field testing of new models of aircraft believed to be associated with the hangar struc­ being developed by the Wright Aeronautical ture and significantly narrowed the focus of the Company in Dayton—all operating out of the 1910 area to be subsurface tested. The 1994 archeolog­ hangar. Although the hangar is shown on a few ical investigations at these target areas located an maps and aerial photographs of the time, several of in situ post, posthole features, and artifacts asso­ the key landmarks in these documents are now ciated with or actually from the hangar. These missing. With the creation of the Dayton Aviation results verify the location of the 1910 hangar, pro­ Heritage National Historical Park and the National vide a basis for management of this significant Historic Landmark designation, there is greater site, and add another to the growing list of suc­ need for the base to increase its knowledge of the cess stories resulting from utilizing remote sensing site overall and to better understand the 1910 to techniques to maximize the results of archeologi­ 1916 phase. cal field work while minimizing ground distur­ The first attempt to locate the 1910 hangar bance. was carried out in 1990 by USACERL. Extensive Huffman Prairie Flying Field is a National subsurface testing designed to locate foundations Historic Landmark and is part of the Dayton or driplines associated with the hangar produced a Aviation Heritage National Historical Park. Wilbur large quantity of artifacts but did not uncover any and Orville Wright moved to this 84-acre site after in situ archeological features. A change in strategy their first flight in Kitty Hawk, North Carolina in was needed to get to the information we strongly 1903. From 1904 through 1905 the Wright broth­ suspected was down there, while limiting the sub­ ers mastered the principles of manned powered surface disturbance we did to the site. When the

CRM N2 13—1997 25 base received DoD Legacy funding for USACERL to CEWES survey; the NASA survey results were not do additional work at the 1910 hangar site, available at the time of the 1994 excavation, but USACERL contracted with NASA and CEWES to were used later as part of the data analysis. perform remote sensing, including geophysical USACERL's 1994 strategy was designed to mini­ studies. mally impact the 1910 hangar locus, through the The NASA study took place between May and use of limited machine testing and large hand- August of 1993. Because of the wealth of informa­ excavated units to identify architectural remains of tion that can be obtained from airborne remote the post-in-ground structure. USACERL limited the sensing instruments, NASA offered to overfly the work to a portion of the hangar locus deemed entire installation and to select the optimum avail­ likely to reveal discernible archeological features. able instruments to address a wide range of Execution of this strategy was complicated by diffi­ research interests at the base, beyond just the 1910 culties in coordinating the CEWES survey grid and hangar project. Ultimately NASA used airborne the 1990 and 1994 survey grids. The 1994 excava­ imaging techniques (the Calibrated Airborne tions succeeded in locating several subsurface fea­ Multispectral Scanner, or CAMS, which contains a tures, including an in situ wooden post, a posthole, single, broad-range thermal band, and the and a possible posthole. The features were com­ Inframetrics Model 740 scanner, a lightweight ther­ pared to the remote sensing anomalies and the mal unit used primarily in support of the space 1915 map. The detection of these features suggests Chevon Kathari, shuttle program and one of the most powerful ther­ that the Huffman Prairie Flying Field includes in left, and Rafe Kinoshita of the mal instruments commercially available) and color situ architectural remains located in the general U.S. Army infrared aerial photography. Preliminary data vicinity of the 1990 and 1994 excavations and the Construction analysis suggests that CAMS data could be useful anomalies detected by the airborne and geophysi­ Engineering for a wide range of activities, such as wetlands cal remote sensing studies. Research delineation and facilities management. While The remote sensing studies and archeological Laboratory gather data at the 1910 scheduling difficulties meant that the CAMS data fieldwork have contributed to several significant hangar excavation was collected at not the most optimum time of the findings. Despite having been bulldozed c. 1940, site. year for detecting features associated with the 1910 extensive subsurface remains, including artifacts hangar, several anom­ and architectural remains, of the 1910 hangar alies indicating poten­ locus are present on the Huffman Prairie Flying tial features could be Field site. Artifact concentrations occur, but in seen in both the some cases are displaced as a result of the bulldoz­ CAMS and the ing and plowing performed during hangar demoli­ Inframetrics data. The tion. Artifacts are relatively abundant and are anomalies detected dominated by construction materials. Airplane were then spatially parts, though few in number, give important infor­ pinpointed using mation about the repair and operation of early air­ extant landmarks, his­ craft. Domestic artifacts, principally fragments of torical documents, glass beverage bottles, provide a glimpse into the and archeological daily lives of the pilots, mechanics, and others who data. The anomalies worked at the 1910 hangar. The hangar itself may appeared to indicate also provide detailed information on the design the rectangular "footprint" of the hangar (either and construction of one of the world's earliest air­ architectural elements of the hangar itself or ther­ plane hangars. The investigations are part of a mal soil anomalies resulting from activities associ­ continuing effort by Wright-Patterson Air Force ated with the building) and the remains of Symmes Base to manage Huffman Prairie Flying Field and Road, which used to pass just behind the hangar. to develop it as a resource for public information The CEWES study took place in October and education. Finally, the investigations demon­ 1993, and consisted of three geophysical meth­ strate the utility of applying remote sensing tech­ ods—magnetic surveying, electro-magnetic survey­ niques to archeological sites. Although the target of ing, and ground-penetrating radar. Anomalies the remote sensing surveys was an ephemeral, detected were assessed as possible indications of post-in-ground structure, and the studies were the hangar, with particular attention paid to anom­ done in non-optimal seasons, both sets of tech­ alies detected by multiple methods. These were niques were able to locate indications of the then interpreted in comparison with a 1915 map hangar structure. and 1924 aerial photo of the area, both of which show the 1910 hangar. Jan Ferguson is the Base Historic Preservation The 1994 USACERL investigations were Officer/cultural resources manager for Wright- undertaken to ground-truth the results of the Patterson Air Force Base.

2o CRM N2 13—1997 Lee Foster, Jerry Fuentes, and Sannie Kenton Osborn The Presidio of San Francisco A Study in Inter-Agency Cooperation

1822, and the U.S. Army took possession of the The adobe is bad in itself because of the dampness it Presidio in 1848 as part of the Treaty of crumbles.The store houses are built of mud without any Guadalupe Hidalgo. This beautiful post was desig­ nated by the Secretary of the Interior in 1962 as a support [plaster] and therefore exposed to rain...[the National Historic Landmark, and in 1972 the guard-house's] walls are crumbling. The sergeant's house is Presidio was included within the boundaries of the newly created Golden Gate National of stone without support and is falling down. All the walls Recreation Area although it continued its mission of the church are crumbling...The wind blows in such a as an Army garrison. The Presidio offered an unsurpassed oppor­ way...that they are like hurricanes which make notable tunity as well as a tremendous challenge to inter­ harm in the roofs and every year one must attend to them pret and safeguard an important part of our nation's heritage. Recognizing the potential for with unendless work. —Comandante Hermeglldo Sal, 1792encounterin g material culture representing 200 years of military occupation and several millennia t is difficult to imagine that this of Native American habitation, the Sixth U.S. lament, written by the Spanish Army, Forces Command, worked closely with the Commander of the Presidio de San U.S. Army Corps of Engineers, Sacramento Francisco some 16 years after its District, and the U.S. Army Environmental Center. foundingI, describes the idyllic refuge which today Since 1989, when Congress identified the Presidio crowns one of America's most beautiful cities. Yet for closure under the Base Realignment and what is now a tranquil green space guarding the Closure Act of 1988, the Army, Corps, and Golden Gate was once a harsh and forbidding National Park Service have coordinated their place. This barren, windswept spot was beset by torrential rains and earthquakes, presenting a forbidding environment to those who endeavored to live there.

The U.S. Army Today, the incorporated the Presidio of San remaining adobes Francisco's rich tapes­ of the Presidio of try of cultural and nat­ San Francisco into ural resources reflects a their early Army post in this 1855 nearly continuous mili­ illustration from tary presence of more "The Annals of San than 200 years. The Francisco." Photo Spanish explorer Lt. courtesy the Golden Gate National Col. Juan Bautista de Recreation Area— Anza established the Presidio of San outpost in 1776, the Francisco Museum. third such garrison in California. Mexico occupied the Presidio after declaring indepen­ dence from Spain in

CRM N2 13—1997 27 Tents were pitched to house troops supporting the Spanish-American War and the Filipino Insurrection.The brick barracks on the left were con­ structed In the 1890s. Photo cour­ tesy the Golden Gate National Recreation Area— Presidio of San Francisco Museum.

efforts to ensure the continued protection of this The determination that the wall was located landmark property. outside the predicted footprint prompted a reex­ Cultural resources studies had already taken amination of the historical development of the place at the Presidio to document its significance Presidio. The discovered wall-foundation was sig­ for nomination as a National Historic Landmark. nificantly north and east of the northeast corner as This nomination has since been revised and established by Comandante Sal's 1792 plan. It expanded by the National Park Service. In 1985 a was speculated that the foundation represented a Historic American Buildings Survey report of the casemate or other outbuilding. Further excavations Presidio was completed, followed by an adaptive at Officers' Quarters 12 were intended to provide re-use study and the production of historic build­ the dimensions of the casemate, but actually ing maintenance manuals. Subsequently, as part of revealed two parallel walls running north-south the closure process, the Army undertook archeo- (the interior and exterior of the eastern portion of logical and other cultural resources investigations the quadrangle) and two interior walls running at the Presidio as it began to repair installation east-west. infrastructure and remove hazardous materials Additional investigations to the north and prior to transfer of the property to the National south confirmed that the Spanish Presidio struc­ Park Service. ture is larger than previously thought, emphasizing In 1993 the Army executed a Programmatic the importance of archeological studies in improv­ Agreement which detailed its responsibilities for ing our understanding of the documented past. considering the effects of its actions on cultural Instead of a small outbuilding as depicted in resources at the Presidio. In June 1993, removal of Comandante Sal's 1792 plan, archeologists had a small underground storage tank behind Officers' discovered the foundations of the eastern side of Quarters 12 revealed a concentration of large ser­ the Presidio quadrangle and a portion of the pentine stones, clay roof tile fragments, and northern side. The wall-foundations were nearly Majolica ceramic sherds. Excavation of the twice as long as the dimensions shown in exposed archeological feature showed the findings Comandante Sal's plan and were located farther to to be typical of a Spanish colonial wall-founda­ the east than expected. tion.

28 CRM N2 13—1997 The discovery of remnants of the original record. Army projects are examined jointly and are Spanish Presidio sparked the imaginations of cul­ subject to review and permitting by National Park tural resources professionals, military and Service oversight groups. The number, complexity, National Park Service personnel, and the resi­ and time-sensitive nature of both Army and dents of San Francisco and stimulated increased National Park Service projects require meticulous public involvement and agency cooperation. "It's yet responsive assessment. an amazing discovery," said Glades Hansen, a An archeological sensitivity model developed retired archivist for the City of San Francisco. by the National Park Service has facilitated the Public tours of this exciting find were included in review process, permitting effective use of the city's annual birthday celebration which coin­ resources earmarked for the cleanup and remedia­ cides with the founding of the Presidio. A cooper­ tion effort. This is clearly demonstrated in the ative effort ensued among Los Californianos development of archeological monitoring protocols (descendants of the original Anza expedition), which have evolved during the past three years. Spanish consulate, Boy Scout Troop 77, California Additional procedures are currently being devel­ Office of Historic Preservation, Advisory Council oped to deal with such issues as sensitivity assess­ on Historic Preservation, National Trust for ment, curation, inadvertent discovery, and Historic Preservation, National Park Service, and recordation. Particularly important is the problem the Army to make information widely available to of hazardous and toxic waste at the Presidio and the public and other agencies. the thorny issue of how to deal with areas of con­ "This is part of the ultimate irony that in the tamination as they affect archeological features 217 years that the Presidio has been here, we and artifacts. The questions of how to deal with would find proof of the first occupants now that these health and safety issues and to effectively we are preparing to turn the post over to the satisfy cultural resources requirements are still Golden Gate National Recreation Area," said Col. being resolved. Gregory Renn, Garrison Commander. Among Since the discovery of the Spanish Presidio those activities intended to publicize the find and wall-foundation in 1993, National Park Service to increase public awareness of the Presidio's rich archeologists have located collapsed adobe walls history were development of a traveling exhibit near the 1792 chapel and sacristy of the Presidio, which has been featured at professional confer­ and, early in 1996, tile and packed earth flooring ences and public meetings throughout the United were uncovered on the eastern side of the Presidio States, production of a one-hour documentary during placement of a fiber optic cable. Significant video on the Presidio's history which is shown discoveries will continue to be made as cleanup daily at the National Park Service Presidio visitor and remediation progress. Through the continued center, distribution of fact sheets and interpretive cooperation between the National Park Service materials to the public, historic preservation train­ and the Army, these irreplaceable fragments of ing for Army and National Park Service staff, and American history will continue to be safeguarded a variety of events held on the Presidio during for the benefit of future generations. National Preservation Week and California Archeology Week. Lee Foster is an archeologist and Native American The Army is proceeding with a comprehen­ Coordinator with the U.S. Army Environmental sive program of infrastructure improvements and Center, Aberdeen Proving Ground, MD. environmental remediation at the Presidio. Concurrently, the National Park Service is under­ Jerry Fuentes is a historian with the Sacramento taking a wide variety of projects in accordance District, U.S. Army Corps of Engineers. with its general management plan. These under­ takings are now being reviewed under a new Sannie Kenton Osborn is supervisor of the Programmatic Agreement executed by the Environmental Analysis Section within the Planning National Park Service. Cultural resources special­ Division of the Sacramento District. She was the ists from both agencies continue to work together Corps archeologist at the Presidio at the time of the to safeguard the Presidio's irreplaceable cultural Spanish Presidio discovery in 1993.

CRM N2 13—1997 29 Newell O.Wright and Corinne D. Hollon Graves The Recent Past on Eglin Air Force Base

n Eglin AFB, Santa Rosa Island, Florida, two parallel rows of con­ crete pillars emerge from the stark Owhite dunes and extend 150 meters toward the Gulf of Mexico. Not far away, in a remote heavily wooded section of the reser­ up to 300' in length. Although the function of the vation, north of the Choctawhatchee Bay, nine oddly shaped structures was not immediately immense concrete structures stand like ruins of a known, intelligence concluded the obvious, that forgotten city. the sites were part of a new, although yet unidenti­ These sites are not remnants of an ancient fied, weapon to be used against Great Britain. In 1944 the civilization but rather physical reminders of impor­ Further investigations suggested that the Germans Germans were tant missions conducted within the United States were building these structures to store, assemble, bombing England and fire V-l and V-2 missiles, unmanned rockets with "V" missiles. As during World War II. They were conceived and part of the Allied fabricated in secret, tested with a sound and fury utilized for long-range attacks. In order to avoid response, Eglin con­ equivalent to any battlefield, but abandoned soon potential interference with the invasion of the con­ structed a replica of after the war. These sites reflect an important tinent, termed Project Overlord, and to circumvent a German V-1 mis­ moment in both the nation's and the Air Force's additional attacks on England, the Joint Chiefs sile site. Code- named "Operation history. However, commemorating or preserving sought to destroy the sites. However, in the inter­ Crossbow," the them for the future is not without problems. est of saving men and material, a practice run was bombing tests Cultural resources managers are often in the proposed to determine the most efficient means of began immediately difficult situation of proposing the preservation of attack. following construc­ On January 25, 1944, Brig. Gen. Grandison tion. sites associated with events which are transitional between recorded history and remembered events. Gardner, commanding general of the Army Air Such sites often have not had the benefit of time to Force Proving Ground Command at Eglin, received demonstrate their significance. The sites mentioned a telephone call from General H. H. "Hap" Arnold, above and others at Eglin are representative of a Army Air Corps Chief of Staff. "Gran, I can't tell widespread class of properties within DoD that are you over the telephone what I am talking about, associated with World War II. but I hope you will know," Gardner later recalled For young Americans, World War II is his­ Arnold as saying. "I want you to build one, study toric in the same way as the Civil War and it and decide what is the best way to destroy it. I Revolutionary War: it is an event of which they want it done in days and not weeks. Did you have no personal recollections. Preservation of the hear? Days and not weeks, and it will take a hell material record of this era offers these citizens a of a lot of concrete" (Kessler 1982 Part Two:31- connection to the recent past. World War II sites 32). such as those recorded at Eglin AFB provide Winston Churchill designated the project insight into the events that shaped the daily lives Operation Crossbow—a term later used for all of a vanishing generation and serve as material operations against the German long-range rocket reminders of the truly global nature of the Second program. Specifications for construction were World War—a conflict which left indelible marks based on information smuggled out of France, on our nation's landscape. As described below, photographs taken by reconnaissance aircraft, and many of these cultural landmarks bear testimony sketches done by British intelligence. A courier to American ingenuity and determination as well brought the specifications in a sealed pouch to as the military role in development of advanced Eglin where, amid as much secrecy as the com­ technologies. mand could maintain in disguising a project so Operation Crossbow large, work commenced. In 1944, when the outcome of World War II With time of the essence and building mate­ was far from settled, enigmatic weapon complexes rials scarce, Proving Ground Command purchasing were identified on the Axis-held coast of France. agents scoured the Southeastern states looking for Each consisted of a series of concrete structures, concrete, steel, and bricks. Under tight security,

30 CRM Na 13—1997 planes, trains, and trucks rushed materials to comprise Eglin's Operation Crossbow district. Some Eglin, where thousands of military and civilian were heavily damaged as a result of the intense workers labored around the clock to complete the bombing to which they were subjected in February work. As General Arnold had requested, the work 1944, and the buildings are currently in various was done in days rather than weeks, and 12 days states of preservation. Distributed over a 14-acre after work began the project was complete. area, the structures include replicas of a missile Test approaches to the target began as soon launching ramp, missile-storage building, an "aim­ as the concrete dried. Teams of officials scrupu­ ing house" where the V-l was equipped with guid­ lously checked the effectiveness of various ance mechanisms and targeted prior to launch, V-l approaches, the efficiency of tactical operations, assembling facilities, and support buildings. These and the vulnerability of aircraft to ground defenses. structures, now overgrown, remain as they were The Eglin tests confirmed beyond question left in 1944, some intact and others wearing the what American field commanders in Europe, the marks of well-aimed bombs. Together they offer Operation Crossbow Committee designated by the mute testimony to Eglin's role in this strategic Joint Chiefs, and General Arnold suspected: mini­ World War II endeavor. mum altitude attacks by fighter planes, properly JB-2 Testing delivered, provided the most effective and econom­ In June 1944, Germany began bombarding ical aerial countermeasure against the sites. The England, especially London, with the V-l or Buzz medium and high altitude bombing attacks which bomb. In July 1944, parts of a V-l salvaged by the the British had employed and advocated were inef­ Polish underground and recovered from crashed fective and wasteful of lives and planes. but unexploded bombs, were flown to Wright- The results of Eglin's tests caused acrimo­ Patterson Field and within three weeks America nious debate within the Allied command. The had completed its first copy of a V-l, the JB-2 (Jet British refused to accept the results and continued Bomb), the United States' first operational guided to favor high altitude bombers. Despite rising bit­ missile and the predecessor of the modern cruise terness among American air chiefs in Washington, missile. Eisenhower acceded to the demands of the War A problem quickly arose, however: the US Cabinet, which continued to insist on the British had no experience launching their new bombs. To approach. As a result, the air support for Project solve this dilemma, Eglin was chosen to test Overlord continued to suffer from the diversion of launching techniques. Three sites were created on bombing resources to Operation Crossbow. Eglin's Gulf-side property, all designed to test dif­ Ultimately, it was not air attacks, but the occupa­ ferent launching techniques. tion of the launch sites by Allied ground forces that One launching site, now located on Sierra overcame the threat. As for the techniques and Club property east of Destin, Florida, featured a weapons developed at Eglin, they were employed concrete inclined launch ramp. Steam-powered and T7ieJB-2 rocket with conclusive results throughout the remainder portable ramps were also tested at this site. The was the American of the war against bridges, railways, and other tar­ other two sites are located within a half mile of copy of the gets that shared characteristics with the V-missile each other on Santa Rosa Island, on Air Force German V-1.This c. 1945 photo was sites. property. taken during J6-2 Constructed of concrete, masonry block, and Recorded as Florida archeological sites testing at Eglin. brick, nine structures of various sizes and shapes 80K246 and 80K248, the remnants of these two JB-2 test sites, along with bunkers and debris fields from unsuccessful test flights, were identified as part of Eglin's initial historic property inventory. After identification, these were evaluated for his­ toric significance and subsequently listed on the National Register of Historic Places. 80K246 contains the remains of a 400' con­ crete launch ramp as well as an intact observation bunker and a JB-2 wreck south of the ramp. Although the ramp itself is missing, its concrete pil­ lars stand against the passage of time. 80K248 is the remains of a JB-2 mobile launch site, containing two concrete pads and an observation bunker, all virtually unscathed. Abandoned to the elements, 18 individual JB-2 wrecks lie scattered across the dunes, a reflection

CRM N2 13—1997 31 plus JB-2s are reported to have been buried in the surrounding dunes. Summary Until recently, the physical record of Operation Crossbow, JB-2 testing, and other signif­ icant events on Eglin have been largely ignored. World War II events, however, have reached the age defined by the National Register as worthy of consideration and, perhaps, preservation. With the end of the Cold War, sites associated with this era are also being considered for significance. Increasing age combined with a growing recogni­ tion of the importance of preserving evidence of transitional events have fostered a movement, in a manner similar to that which saved Civil War bat­ tlefields in the 1890s, to contemplate what we will Remains of launch of the difficulties encountered in achieving field do with the physical heritage of our recent past. ramp at 80K246 readiness. Sites such as Eglin's Operation Crossbow today. This site and All of the Eglin launchings were directed complex and JB-2 launch sites not only remind us neighboring south to the Gulf of Mexico. The targets were 80K248 are listed of our past, of World War II, and of the beginnings on the National buoys placed at measured distances, up to 150 of the Army Air Corps, but also of the evolution of Register. miles, to which the headings and range of the guid­ technology that has resulted in modern aeronauti­ ance system were adjusted. There is no evidence cal and defense programs. Further, these areas are that live warheads were used, as many of the standing monuments to the resourcefulness of the wrecks examined by Eglin archeologists have con­ American people and military during the greatest crete ballast filling the warhead compartment. war in human history. The documentation of such An initial order of 1,000 of these JB-2s was significant events and protection of associated his­ made in July 1944. The primary contractors were toric properties are among the many challenges Republic Aviation for the airframe, Ford Motor facing cultural resources managers at Eglin and Company for the pulse-jet engine, and Jack and throughout the DoD. Heinz for the guidance system. In January 1945, 75,000 JB-2s were ordered, and a launching References squadron was formed to launch the missiles in Angell, Joseph W. Europe and the Pacific. The war concluded prior to 1989 History of the Army Air Forces Proving Ground their deployment and the orders were canceled. Command, part one: background of EgUn Field 1933- Army weapons Ultimately 1300 were produced, but only seven 1940. Reprinted, Air Force Development Test analysts watched survive today. Center, Eglin AFB. Originally published 1944. Office JB-2 launches from The JB-2 testing at Eglin continued until of History, Munitions Systems Division, Eglin AFB. inside observation March of 1946, when the project was canceled. bunkers.The photo Historical Branch, Air Proving Ground Command below shows the After cancellation, the reusable portions of the sites 1946 A History of... Air Proving Ground Command, bunker at 80K246 were disassembled. However, the debris from Personal Narratives of Key Personnel to 31 March as it appears today. crashes was left where it fell, and one or more sur­ 1946. Historical Branch, Air Proving Ground Command, Eglin Field, Florida. Kessler, Melvin 1982 Chronological Syllabus of the Armament Division, Part Two, the war years: 1942-1945. Office of History, Armament Division, Eglin AFB.

Newell O. Wright, Ph.D. is chief, Cultural Resources Branch, Eglin AFB.

Corinne D. Hollon Graves worked as an archeologist at Eglin AFB under contract with Colorado State University. Mrs. Graves left Eglin this year to return to school.

Photos courtesy Eglin AFB.

32 CRM N2 13—1997 Newell O. Wright, Tegan Swain, and Mathilda Cox Uncovering the British Colonial Past in Northwest Florida

ne of DoD's obligations, as a improved. In addition to the philosophical ratio­ steward of the land it controls, is nale for protection, finances also offer incentive to protect cultural resources that for preservation. Financial resources are becoming O are eligible for the National scarce, and it is often more cost effective to pre­ Register of Historic Places. Management of these serve sites than to excavate. However, unchange­ resources first requires that they be identified able mission requirements or natural threats such and assessed for significance. Eglin Air Force as erosion may sometimes make it necessary to Base has taken seriously its obligation to the recover data or risk the imminent loss of the site, American public and has a proactive program to as was the case at site 8SR1251. Located on the consider, as part of its decision-making process, western edge of the Eglin reservation, this site the ramifications of its actions on historic proper­ dates to Florida's British Colonial Period between ties. When a site is determined eligible for nomi­ 1763 and 1781. The site is of particular impor­ nation to the National Register, Eglin personnel tance to the history of the region. It is located in carefully consider management options in an an area which would have been a frontier during effort to protect and preserve these significant the time of its occupation, meaning it was not part historic properties. of the main settlement of Pensacola. As such, it For both philosophical and fiscal reasons, represents an outlying British settlement, a type Eglin's cultural resources managers do not con­ which heretofore had not been studied in north­ sider excavation as the primary mitigation method west Florida. when archeological sites are threatened. Because of the importance of this site, Eglin's Philosophically, protection is the preferred avenue cultural resource manager decided to "bank" it, for management, allowing preservation of the that is, to protect the site from natural and cultural sites, structures, and material remains of the past impacts as an asset for future generations. Fig. I (below). Brick for future generations. On military lands, preserva­ Unfortunately, natural events of 1995 swiftly chal­ scatter indicating tion is feasible since DoD's cultural resources, lenged that plan. the location of a unlike those that are on private property, are often In August and October of 1995, two fierce former chimney not threatened by development pressure. hurricanes visited the northwest coast of Florida, with structure 2. Consequently, sites and structures can frequently creating substantial damage to personal property Fig. 2 (right). be saved for the future when techniques for dis­ and the shoreline. Historical properties were not Architectural items. covering information about the past will have spared. Not only was much of 8SR1251 lost imme-

CRM N2 13—1997 33 diately as a result of the impacts, but the remainder was threat­ ened as a result of storm damage to pro­ tective barriers. Eglin's cultural resources manager determined that excava­ tion was necessary to salvage the remaining data. In consultation with Florida's State Historic Preservation Officer, a data recovery plan was devised, and and other spirits, decorated blown glasses for their the necessary permits consumption (Fig. 3), porcelain from China, and Fig. 3. Fragments obtained. Data recovery began in the summer of tin glazed earthenware from continental Europe of bottles and a 1996 and has continued intermittently since. and England (Fig. 4). Numerous items of personal glass stem (above). Excavation at the site has proven that the adornment have also been recovered. These decision to initiate salvage data recovery was judi­ include beads, a medallion, buttons from a coat Fig. 4. Ceramics issued to the British 16th Regiment of Foot (Fig. including scratch cious. The large number of artifacts recovered pro­ blue, porcelain, tin, vide previously unknown details of the 5), and cufflinks with the coat of arms of King and saltglaze 18th-century life of isolated British settlers in the Carlos III of Spain (Fig. 6). Together, the items are earthenware Florida panhandle. The investigations uncovered not the material culture one might expect from the (right). evidence of two former structures: one is repre­ pioneer sort competing for the basics of life on the sented by brick footings or wall supports, and the edge of the frontier. Cataloguing of the artifacts is well underway and formal analysis will soon follow. Even at this Fig. 5. Items of per­ point in the research, however, it is clear that the sonal decoration. excavations have salvaged a rich chronicle of early European settlement in the Florida panhandle. The artifacts have afforded a window on a rather narrow span of time not previously represented in the region's archeologi- cal record. The data recovered through con­ trolled excavation rep­ resent a significant advancement in knowl­ edge—an advancement Fig. 6. Cufflinks with coat of arms which would likely of King Carlos III have been lost to time of Spain. and tides without other by a chimney fall and wall trenches (Fig. 1). Eglin's proactive cul­ The function of the structures has not been deter­ tural resources management program. mined, but the artifacts recovered provide evi­ dence of a variety of activities. Artifact classes Newell 0. Wright is the Base Historic Preservation represented in the collection include those associ­ Officer at Eglin AFB, FL and co-guest editor of this ated with the colonial kitchen, architecture (Fig. issue. Dr. Wright may be reached at 850-882-4435, 2), arms, and personal items. In addition, the ext. 597 or email . assemblage contains evidence of specialized activi­ ties such as fishing. Tegan Swain is an archeologist currently working as While the occupants of the site may be con­ a cultural resources specialist on contract to Eglin sidered marginal to the larger area settlements of AFB through Colorado State University. Pensacola and Mobile, they possessed some of the finer material goods that the world had to offer. Mathilda Cox is a historic preservation consultant at We have found evidence of the presence of wine Eglin AFB and co-guest editor of this issue ofCRM.

34 CRM N2 13—1997 John J. Cullinane CRM Planning at Two Service Academies

n an effort to establish strong self-gov­ United States Military Academy erning cultural resource management By 1987 no HPP had been approved through programs, each military service has the Army review system, or accepted by a State I developed internal directives, regula­ Historic Preservation Officer or the Advisory tions, and instructions guiding the treatment of Council as a suitable alternative to review under cultural resources through development of Section 106. This situation resulted in the Army Cultural Resource Management Plans. These approaching the Advisory Council for assistance. directives are not written as counterpart regula­ After much debate surrounding the potential for a tions to 36 CFR Part 800, "Protection of Historic conflict of interest, the Advisory Council took on Properties." Instead, they establish an internal the challenge of developing a prototype HPP that process designed to satisfy the requirements of could be applied to all Army installations. The the National Historic Preservation Act (NHPA) United States Military Academy (USMA) at West while meeting fundamental mission goals of the Point, New York, would be the focus of the initial military. work. The first military service to issue such regu­ The Advisory Council assigned two staff lations was the Department of the Army. In May members to the task, Eleni Silverman, the staff of 1984 the Army published AR 420-40, "Historic architectural historian, and myself, at that time Preservation." This internal regulation established Senior Architect to the Council. Work started on the goal of creating a "Historic Preservation Plan" the project in early June 1988. Illustration of the (HPP) for each Army installation. The initial Nomenclature main program HPPs resulting from this regulation were less than As we have all found through years of expe­ menu for the satisfactory. This was due, in part, to a lack of rience, what you mean to say and what others HRMP for the USMA showing the experience on the part of installation staff and hear can be quite different. In the case of the graphic interface contractors, as well as differences in understand­ Army regulations, the term "Historic Preservation format. ing. Plan" appeared to place emphasis on the act of "preservation." The fact is that the act of "preservation" is not part of the responsi­ bilities of any instal­ lation commander, and that was not the intent of the Army regulation. The pur­ pose of the regula­ tion, and the HPPs, was to improve man­ agement of historic resources at the installation. Preservation may be one of the manage­ ment options, but it should not be the focus of the plan. Every commander, however, is responsi­ ble to "manage" those resources and

CRM N2 13—1997 35 facilities under his/her command. Thus, the HPP Content was turned into a Historic Resources Management As we were considering how to provide the Plan (HRMP), later a Cultural Resources information, we were trying to determine what Management Plan. It was a small issue, but one information should be included in the plan. The that changed the focus and acceptability of the Army indicated that they felt the plan should con­ plan dramatically. tain all the information needed for the user to Use of the appropriate nomenclature in the make the "smart" decision on the disposition and development of the USMA plan was a constant treatment of a resource; we agreed. The manage­ consideration. Unless the terms used in the plan ment of cultural resources not only involves adher­ are consistent with those familiar to the client, the ence to standard code requirements and user plan has little hope of being useful. needs, but also all of the preservation laws and Delivery Systems standards, accessibility standards, energy conser­ Another consideration was how the plan vation goals, respect for historic traditions, quality should be presented to the users. Again, we of life, and cultural beliefs and practices. encountered a difference in what was needed and We quickly determined that you don't pro­ what was expected. The expectation was that the vide this quantity of information in a printed for­ plan would look like a report: a printed document, mat and expect it to be useful. The alternative double spaced, with a history of the site starting appeared to be development of a computerized plan. Use of a com­ puter would allow inclusion of all of the necessary decision­ making information, and also solve the Photograph of the problem of providing Cadet Area of the different types of infor­ United States Air Force Academy mation to different lev­ showing the Cadet els of users. Chapel and dormi- The Apple tories.This photo is Macintosh program included as a HyperCard was, at the resource in the Academy's CRMR time, the only graphic interface program that would allow develop­ ment of a graphical, interactive data retrieval system. This would be the core of our operating system. from the Ice Age, with an inventory of resources, Fortunately, since the introduction of WINDOWS, along with recommendations for treatment. and software applications by main line companies Understanding that any management plan is such as Oracle and Microsoft, the point and click a working, dynamic document required us to con­ operating ease of the original program is now sider alternative delivery systems, to look at what available on virtually all personal computers would best serve the project requirements and the (PCs). client. The HRMP/USMA includes 1,442 buildings, Like any other problem, the more questions structures, and monuments, as well as approxi­ you answer, the more arise. Who was the client, mately 65 identified archeological sites and the user? Although the Army H(D_ asked for the pro­ another 85 potential sites. The plan covers a little totype, the user would be individual installations. over 18,000 acres of land and incorporates the And, within the installation there would be a host National Historic Landmark (NHL) historic can­ of users, from the Commander and Chief Engineer, tonment and Frederick Law Olmsted designed to the installation planner, shops personnel, and landscaping. The program is divided into 23 stacks maintenance crew. This made a lot of different of information, such as Structures, Archeology, users, all potentially seeking different types of Landscapes, Treatment, Standards, and information for different reasons. Accordingly, the Administrative Process. To obtain information or delivery system had to address the needs of all of guidance, the user simply points the arrow at the the potential users. subject and clicks. The user is then directed to the

3o CRM N2 13—1997 information through a series of menus. The goal in Merrill, the Academy's original architects, who developing the program was to provide the provided design standards for new construction. Academy, and any other installation using the The program uses Microsoft's Access software as computer "shell" program, with an easy to use the underlying structure, allowing development of management tool that allowed for meeting both a true relational and graphical database system. mission needs and preservation interests in an The shell program, recently made available effective and efficient manner. for testing by Air Staff, contains the necessary With the assistance of the U.S. Army planning, treatment, and administrative guidance Construction Engineering Research Laboratories in for any installation's use. Once an individual Champaign, Illinois, which developed archeologi- installation answers questions on eight screens, cal modeling and undertook field testing, and their unique information is integrated into the pro­ some additional staff help, development of the gram, and it is ready to use. The program is program took two people 13 months. The system designed to allow this work to be done by in- was installed at the Academy on July 5, 1989. It house personnel. The customization by the instal­ includes a stand-alone computer station, map lay­ lation and the emulation of Air Force Standard ers integrated into the Academy's existing GIS sys­ Operating Procedures help create a sense of own­ tem, and a printed Executive Summary for use by ership often lacking in contracted CRMPs. the Command for long-term economic and The program delivered to the USAFA runs on resource planning. the Engineering office's local area network, and is United States Air Force Academy linked to the Academy's AutoCad files and maps, The Air Force followed the Army in develop­ allowing individuals to call up complete installa­ ment of internal regulations addressing cultural tion data from their PC. The program includes pre- resources and, in June of 1994, issued Air Force Academy cultural resources on the site relating to Instruction 32-7065, "Cultural Resources settlement, ranching, and railroad themes, as well Management." This Instruction calls for every Air as all of the construction associated with the Force installation to develop a Cultural Resources Academy. As with any program, security systems Management Plan (CRMP). are available to restrict the release of classified or At the same time that the Instruction was restricted information, such as the exact locations being issued, the U.S. Air Force Academy (USAFA) of archeological sites. Accompanied by a printed and Air Staff in Washington, DC, asked my firm, Executive Summary, this CRMP program satisfies John Cullinane Associates, to assist them in devel­ the Academy's need to meet mission goals, while oping a prototype computerized CRMP. As with complying with DoD Integrated CRMP directives, the Army plan, this project would use their pre­ Air Force Instructions, and federal laws, regula­ miere installation, the USAFA, as the test installa­ tions, and standards. Now completed, it will serve tion for our initial work. as the basis of a programmatic agreement among The same principles applied to this project the installation, SHPO, and Advisory Council. as to the Army's. They included the need to iden­ Through the use of modern technology and tify the user, define the goals of the CRMP, gather techniques both the Army and Air Force are reduc­ all of the relevant information and data, and ing their administrative burden in meeting compli­ develop an easy-to-use program that could be used ance requirements while successfully managing by a variety of individuals to obtain the informa­ their facilities in a manner that meets mission tion they need to do their job in an efficient and requirements, economic restraints, and conserves effective manner. some of our most historic and valuable resources. In this case the work was undertaken princi­ pally by myself and one staff member, Susan John Cullinane served as Senior Architect for the Lassell, a preservation planner, with assistance Advisory Council on Historic Preservation between from USAFA staff, Stacy Wetstein, an Academy 1976 and 1992. He is the principal in the firm of summer intern, the University of Colorado John Cullinane Associates, Architects & Preservation Colorado Springs Department of Anthropology, Planners, Annapolis, MD. You may reach him at and the prime contractor, Skidmore, Owens, and 410-295-0400 or email .

CRM N2 13—1997 37 Darby C. Stapp Documenting a Cold War Nuclear Reactor Attempting Innovation

With the Cold War over, DoE is now busy In 1939, Nobel Prize-winning physicist Niels Bohr had disarming nuclear warheads, cleaning up environ­ mental contamination, and dismantling the com­ argued that building an atomic bomb "can never be done plex. Before decommissioning and demolishing the unless you turn the United States into one huge factory." eligible buildings, however, DoE will need to miti­ gate the effects of these actions by preserving the Years later, he told his colleague Edward Teller, "I told you buildings or otherwise documenting their signifi­ it couldn't be done without turning the whole country into cance. But how does one document a nuclear weapons facility? It's not a simple question. One a factory.You have done just that"' must go beyond the words provided in the National Historic Preservation Act (NHPA) and oday, that factory, known as the the Secretary of the Interior's Standards and The Hanford N- U.S. Department of Energy (DoE) Guidelines to understand the intent of the legisla­ Reactor complex, Nuclear Weapons Complex, spans tion and then develop a documentation approach located on the last the country at sites such as that is both appropriate and reasonable. free-flowing stretch HanfordT, Los Alamos, Oak Ridge, Savannah This article describes how DoE is addressing of the Columbia River in southeast­ River, Rocky Flats, Pantex, and the Nevada Test this documentation issue at one of its Cold War- ern Washington, is Site. Hundreds of buildings and structures at era nuclear reactors, located at the Hanford Site in comprised of over these sites have been determined eligible for list­ southeastern Washington State.2 100 buildings and ing on the National Register of Historic Places, a The N-Reactor Pilot Project structures. Courtesy U.S. Department of testimony to their important role in national and The N-Reactor, which operated between Energy. local history. 1964 and 1989, was the last of nine plutonium production reactors con­ structed at Hanford. Since 1989, when the reactor was placed on cold standby, efforts have focused on decontamina­ tion and decommissioning. In 1994, cultural resource staff at Hanford proposed a pilot pro­ ject to evaluate, and if neces­ sary, mitigate the N-Reactor. The advantage to the N- Reactor program would be to accelerate their compliance with historic preservation requirements so they could get on with demolition. The advantage to the cultural resource program was that innovative approaches to eval­ uating and documenting a subset of significant buildings could be done in advance of the rest of the site historical documentation. The pilot pro­ ject could then be assessed

38 CRM W 13—1997 The nuclear and lessons learned incorporated into the sitewide other eight reactors at Hanford. This modification weapons produc­ historic preservation program, which was still in addressed an escalating concern in the region, tion process as its infancy. The N-Reactor Deactivation Program namely that the Hanford reactors were dumping developed by the agreed to fund the cultural resource pilot project radionuclides into the river. U.S. Atomic Energy Commission.The and work commenced. The N-Reactor was also designed in conjunc­ N-Reactor was the The Evaluation tion with a steam generating plant, added in 1963, nation's most mod­ A team knowledgeable about Hanford his­ that produced electricity for the region. N-Reactor ern plutonium pro­ tory and technology was formed to evaluate the became the first dual-purpose reactor in the duction reactor from 1964 to historical significance of the facility. They found United States. For many years, it was the largest 1989. From that N-Reactor was significant to the history of electricity-producing nuclear plant anywhere. Closing the Circle Hanford, the region, and the nation for reasons Selling the electricity enabled the government to on the Splitting of explained below.3 drive down the cost of producing plutonium. the Atom. Photo Hanford is an important historic site. As the most advanced production reactor to courtesy U.S. Department of Hanford's mission in the early 1940s was to con­ be built at Hanford, and the only operating pro­ Energy. struct the world's first full-scale reactors and sepa­ duction reactor at Hanford from 1971 to 1989, the rations facilities, irradiate uranium, and separate N-Reactor was considered one of the major con­ the resulting plutonium.4 The plutonium was then tributing facilities to the overall site history. The shipped to Los Alamos where it was used in pro­ DoE, therefore, determined that the N-Reactor ducing nuclear weapons. The first nuclear bomb facility was eligible for listing on the National ever exploded was a test, code named Trinity, con­ Register of Historic Places. The Washington State ducted near Alamogordo, New Mexico, on July 16, Historic Preservation Office (SHPO) concurred 1945; Hanford provided the plutonium for this with this determination. test. On August 6, 1945, the United States Documenting N-Reactor dropped an atomic bomb, known as "Little Boy" In 1995, the DoE and the Washington SHPO on Hiroshima, Japan. Three days later, another began negotiations concerning the makeup of the atomic bomb, "Fat Man," was dropped on proposed Hanford Site Manhattan Project and Nagasaki, Japan. Five days later, the Japanese sur­ Cold War Era Historic District and the ways such rendered and World War II was over. Little Boy a district could be mitigated. While negotiations contained uranium produced at the Oak Ridge were underway, the N-Reactor historical project facility in Tennessee, and Fat Man contained plu­ continued on its separate path, advancing the pilot tonium produced at Hanford. project philosophy. The nation's Nuclear Weapons Complex A research design was developed that drew underwent a series of expansions during the 1950s heavily on recommendations from the Advisory as Cold War concerns heightened. The N-Reactor Council on Historic Preservation's report, at Hanford, which incorporated new technology in Balancing Historic Preservation Needs with the several areas, represented the last of these expan­ Operation of Highly Technical or Scientific sions. Whereas the previous eight reactors at Facilities.5 The first step was to identify individu­ Hanford incorporated the same basic graphite als who would use the documentation and deter­ block, water-cooled technology, the N-Reactor mine what their information needs might be. This incorporated several design modifications. For analysis concluded the following: example, water used to cool the reactor core was • The Public: Efforts should be made to collect recirculated in the reactor rather than disposed of and preserve materials that would be useful in the Columbia River as was the case with the from a public perspective.

CRM N2 13—1997 39 • Historians, Social Scientists, and Historic practical applications in reactors and chemical Preservationists: A basic documentation about separations plants. Today, Hanford is again trans­ the history and life at the reactor should be forming theory to practice, this time in the area of prepared to satisfy their interest in various historic preservation at the site's nuclear facilities. aspects of N-Reactor's genesis, performance, For the N-Reactor, innovative approaches were and worker-related issues. attempted to adapt the Advisory Council's 1991 • Nuclear Scientists and Engineers: Because recommendations for sites such as Hanford. information on the technological aspects of N- DoE and the historic preservation commu­ Reactor was already on record in countless nity now have a completed nuclear facility docu­ professional documents and publications, mentation package to evaluate. Where the these individuals were viewed as having little documentation succeeds, the methods can be interest in the abbreviated technical informa­ applied elsewhere; where the efforts failed, we can tion which might be included in this report. go back to the blackboard. Such is the nature of Based upon these assumptions, the following innovation. activities were completed: • Reports, photographs, and objects with docu­ Notes mentation and public interpretive value were 1 U.S. Department of Energy. 1995. Closing the Circle collected and catalogued. on the Splitting of the Atom: The Environmental • An interpretive event was held at the local sci­ Legacy of Nuclear Weapons Production in the United ence center that focused on the history, tech­ States and What the Department of Energy is Doing nology, and contributions of the N-Reactor; About It. Office of Environmental Management. the feature presentation was a movie of Washington, D.C. President John F. Kennedy's October 1963 2 Stapp, Darby C, Joy K. Woodruff, and Thomas E. speech at the groundbreaking for the N- Marceau. 1995. "Reclaiming Hanford," Federal Reactor steam generating plant. Archeology 8(2)14-22. • An oral history program was started with for­ 3 Stapp, Darby C. and Thomas E. Marceau. 1995. mer N-Reactor workers to document the his­ The Hanford Site N-Reactor Buildings Task: tory from their perspective. Identification and Evaluation of Historic Properties. • A three-volume documentation package was BHI-00627. Bechtel Hanford Company. Richland, prepared.6 Volume 1 is a public-oriented, Washington. well-illustrated overview of N-Reactor that 4 Gerber, Michele S. On the Home Front: The Cold documents the history of the facility and its War Legacy of the Hanford Nuclear Site. University significance to Hanford, its workers, the of Nebraska Press. Lincoln. region, and the nation. Volume 2 includes 5 Advisory Council on Historic Preservation. 1991. descriptions for all buildings and structures. Balancing Historic Preservation Needs with the Volume 3 is a "Guide to N-Reactor Operation of Highly Technical or Scientific Facilities. Resources," prepared to assist future Advisory Council on Historic Preservation. researchers interested in finding additional Washington D.C. information about the N-Reactor. Historic 6 U.S. Department of Energy. N Reactor Property Inventory Forms for all permanent Comprehensive Treatment Report, Hanford buildings are on file at the Hanford Cultural Washington. 1997. DoE/RL-96-91. Richland, Resources Laboratory. Washington. All documentation derived from the N- Reactor Pilot Project will now be utilized in meet­ Darby C. Stapp is the Cultural Resources ing the documentation requirements of the Coordinator for CH2M HILL Hanford, Inc., a sub­ Historic Buildings Programmatic Agreement, which contractor to Bechtel Hanford Inc., at the U.S. was agreed to by the DoE, the Washington SHPO, Department of Energy's Hanford Site. Dr. Stapp's and the Advisory Council on Historic Preservation work involves documenting Hanford and its role in in August 1996. Sitewide mitigation efforts began the Cold War, and working with Native Americans to in Fall 1996. protect archeological and traditional cultural areas. Summary Additional information on the Hanford cultural Fifty years ago, Hanford was chosen as the resources can be found at place where nuclear theory was transformed into .

40 CRM N2 13—1997 Lee Foster Building an Enduring Dialogue: The Army Environmental Center's Native American Cultural Resources Program s the United States emerges from American Cultural Resources Program in 1994 in the Cold War and approaches the an effort to address Native issues while, at the 21st century, the Department of the same time, allowing the Army to effectively use AArmy is assessing its activities to and manage its training lands. better meet the challenges presented by increas­ The U.S. Army Environmental Center ingly complex domestic environmental conditions. (USAEC) is a Headquarters, Department of the An integral part of this assessment is an emphasis Army (HQDA) activity which supports the on effectively addressing issues of concern to the Assistant Chief of Staff for Installation Native Peoples of this nation while maintaining Management. The USAEC's Native American pro­ the world's foremost, combat-ready fighting force. gram was begun as a centrally managed Army-wide Responding to concerns expressed by Native effort to satisfy the summary and inventory Americans, Alaska Natives, and Native Hawaiians requirements of Sections 5 and 6 of NAGPRA. relating to environmental justice, free exercise of USAEC developed a program to review Army col­ religion, self determination, and recognition of lections and prepare draft compliance documents tribal sovereignty, Congress and the Executive to help Army installations with the consultation Branch have, over the past three decades, created and repatriation process. The St. Louis District legislative and other mandates requiring federal Corps of Engineers, Mandatory Center of Expertise agencies to address these issues. Of particular rele­ for the Management and Curation of Archeological vance to agencies with land management responsi­ Collections assisted the USAEC with the develop­ bilities are the American Indian Religious Freedom ment and execution of the program. Act of 1978, the Native American Graves Protection The approach was two-phased. The first and Repatriation Act of 1990 (NAGPRA), phase, completed in March 1996, identified the Presidential Memorandum dated April 29, 1994, locations of archeological collections from all Army "Government to Government Relations with Native installations, prepared general summaries of collec­ American Tribal Governments," Executive Order tion contents, identified potential culturally affili­ 13007, "Indian Sacred Sites," dated May 24, 1996, ated Native American tribes or Native Hawaiian and the National Historic Preservation Act of 1966, organizations, and drafted template compliance as amended. documents required by Section 6 of NAGPRA. This In redefining its relations with Native major undertaking resulted in the investigation of Medicine Bluff Peoples, the Army is a leader among federal agen­ collections belonging to 169 installations. Of these, Sacred Site, Fort cies in addressing many of these concerns. The 97 were found to hold collections and received Sill, Oklahoma. U.S. Army Environmental Center created its Native reports containing summary data. In total, some 37,737 archeological site records and 2,062 reports were reviewed. In the second phase of the program, 20 installations were found to require Section 5 inves­ tigations. These included such facilities as Fort Sill, Oklahoma; Fort Benning, Georgia; Yakima Training Center, Washington; and Pohakuloa Training Area, Hawaii. Physical investigations confirmed the pres­ ence of human remains or funerary objects for 18 of the 20 locations. By August 1997, inventory reports containing the results of physical examina­ tion of the collections, more detailed information on potential affiliated groups and template compli­ ance document drafts were completed. The major­ ity of the affected installations have now begun consultation with federally recognized tribes and

CRM N2 13—1997 41 The Consultation Guidelines will be adopted as official Army guidelines in the upcoming Department of the Army Pamphlet (DA PAM) 200- 4 Cultural Resources Management. The DA PAM 200-4 provides Army installations with guidelines for implementation of the policies in AR 200-4. The success of the Fort Sill meeting led to a second, larger workshop held at Park City, Utah, in 1997. This forum brought together 150 representa­ tives of Native Peoples groups and Army Headquarters and installation personnel. The focus of the meeting was on further refining the consulta­ tion guidelines, and included discussion on how the Army manages training areas and tribal reac­ Mr.jefferson Keel, Hawaiian organizations in preparation for complet­ tion to the management process. It also cemented Administrator for ing determinations of cultural affiliation and, ulti­ the Chickasaw relationships established at Fort Sill and strength­ mately, repatriating NAGPRA cultural items. This ened the Army's dialogue with Native Peoples. Of Nation of centrally managed and centrally funded approach to Oklahoma, particular interest was the presentation of Army addresses the the Army's agencywide NAGPRA compliance docu­ and Native Peoples' views on the identification of ArmylNative mentation needs created a considerable cost savings sacred sites and other traditional cultural proper­ Peoples Cultural through an economy of scale and also resulted in ties and management of these special places within Resources consistent, high quality report documentation in a Workshop in Park the requirements of the National Historic standardized format. City, Utah. Preservation Act and Executive Order 13007. An integral part of USAEC's efforts to address The USAEC is currently in the initial stages Native Peoples' issues is the complete revision of of drafting a counterpart to the Advisory Council Army regulations and guidelines dealing with cul­ on Historic Preservation (ACHP) regulations, tural resources management. Department of the "Protection of Historic Properties" (36 CFR Part Army Regulation (AR) 200-4 "Cultural Resources 800) that will stand in place of 36 CFR Part 800. Management," provides Army installations with pol­ The early and sustained involvement of tribes and icy for implementing the government-to-government Native Hawaiian groups is viewed as crucial to relationship with tribes required by the Presidential developing the Army's counterpart regulations. Memorandum of April 29, 1994. In addition, the Mr. Kunani Regional meetings and other initiatives are being new regulations give installations the direction to planned by the USAEC and the ACHP at this time Nihipali, Po'o comply with Executive Order 13007, affording (Head), Hui to insure that the views of Native Peoples and Malama I Na access to sacred sites and maintaining the integrity other stakeholders are taken into account and fully Kapuna '0 Hawai'i of those sites while concurrently using installation Nei, discusses integrated into this Army counterpart regulation. lands to develop a trained and battle-ready force. Protection of cultural resources, particularly Native Hawaiian Supplementing the new regulations are com­ issues at the those which are important to Native Peoples, forms prehensive Native American consultation guide­ Army/Native an important part of the Army's stewardship Peoples Cultural lines. Army leaders recognized the importance of responsibility. Indeed, the preservation of Native Resources obtaining tribal input early in the regulation and Workshop. Peoples' culture and respect for their sacred places guidance development process and of establishing are national priorities. The Army's Native an enduring dialogue with Native American Program seeks to acknowledge the con­ Peoples. Thus, in 1996 the Army tributions of Native Peoples not only to the invited interested tribes and nation's past, but also to its future. Many chal­ Native Hawaiian organizations to lenges remain, especially in the area of ensuring attend a workshop at Fort Sill, access to sacred places while maintaining the Oklahoma. Representatives of 14 Army's ability to train forces to fulfill its national tribes and three Native Hawaiian defense responsibility. The mechanism is now in organizations attended along with place and actions are underway to foster honest Army personnel representing and enduring dialogue with Native Peoples. headquarters, installations, and Corps of Engineers districts. Lee Foster is Native American Cultural Resources Native Peoples provided valuable Program Manager at the U.S. Army Environmental information and recommendations Center, Aberdeen Proving Ground, MD. Many of the on how the Army should go about documents mentioned above are available on consulting with them on the full USAEC's Conservation Web site at range of cultural resources issues. .

42 CRM N2 13—1997 Shelley J. Smith Tularosa Basin Ecosystems: Past and Present

s land managers increasingly The project is an easy-to-use database, the apply the principles of ecosystem heart of which is the Abstracts section. Here the management, the need for solid user will find an annotation about each data Adata about natural long-term source, a brief description of the content of each cycles, landscape changes, and the roles humans record, type of data available in the report/record have played in shaping ecosystems becomes (e.g. pollen, faunal), geographic origin of data, the apparent. Archeological and historic data can location where the data or report is available, and often provide just the kinds of information scien­ a list of species by Latin and common names. A tists need as they undertake a variety of ecosys­ query search directs users to data sources that tem management projects, including data about could assist them in designing, implementing, or vegetative cycles, fire histories, animal popula­ choosing a management option. The database soft­ tion distributions over time, climatic regimes, and ware is askSam's Electronic Publisher, read-only riparian system histories. Further, humans have version. been manipulating ecosystems for many millen­ Six other components of the database pro­ nia; identifying human-caused changes is essen­ vide additional useful tools: archeological con­ tial to understanding how the landscapes of cepts, user data files, reports, photos, maps, and today are configured. resources. Since the purpose of the project is to enable managers to make Historic pho­ more informed decisions, the tographs in the archeological concepts compo­ database provide land managers with nent is a crucial bridge to the evidence of vegeta­ database for the natural tion change and the resources specialist. Here influence of grazing users will find overviews of animals. At the various kinds of archeological, Frank Andregg Ranch, catclaw and historic, and paleo-environ­ other desert shrubs mental data, how the data is now grow around gathered and analyzed, and its the barn and up limitations. The relevance of a the mountain slope. This expansion particular data type to man­ occurred in less agement questions is dis­ than 50 years. (See cussed. For instance, under next page.) the topic "faunal bone" is an explanation of how bone is The Tularosa Basin of south central New recovered from archeological sites and pack rat Mexico is the focus of a pilot study to provide nat­ middens, and some of the issues with interpreting ural resource specialists with data from archeolog­ faunal bone data. The relevance of this sort of ical, historic, and paleo-environmental sources data to the management issue of animal species that are relevant to current management issues. re-introductions is that they can shed light on The project is a cooperative effort between the which species were present in an area at a particu­ U.S. Army White Sands Missile Range and the lar time. The user would then go to the database Bureau of Land Management. Human Systems and construct a query, such as for Antilocapra Research, Inc. is the contractor conducting the americana (pronghorn antelope) bone. work. The U.S. Army Environmental Center initi­ The User Data Files are lists of known ated the project to support the Army's mission of species, plant and animal, from the land managing troop readiness by maintaining training lands in agencies within the Tularosa Basin. The Reports realistic, natural conditions. section contains 83 of the annotated reports, or

CRM N2 13—1997 43 The anticipated outcome of the project is improved ecosystem management, because: • decision makers will better understand the factors that shaped the present ecosystem and its potential under various management options; • the origin of certain ecosystem changes (e.g., human activity, natural long-term cycles) can be discerned and management practices adjusted accordingly; and • future studies and inventories will be well focused since the pilot project will identify crucial data gaps. Improved ecosystem management con­ tributes to agencies' missions in two significant ways. First, by enabling wiser decisions on how natural resources on training lands are managed, a the relevant portions of them. The Photos section savings is realized in time and money. The project has 120 historic photographs, many of which are could well pay for itself by preventing even one ill- paired with recent photos of the same location, conceived project planned with inaccurate base­ while the Maps component contains maps portray­ line data. Further, management projects intended ing modern environmental and geographic infor­ to comply with other laws, such as protecting mation. The Resources component lists all of the endangered species habitat, can now be more pro­ references used in the database. Each of these files ductively and efficiently conducted. Secondly, the can be queried separately. The Reports and Photos archeological, historic, and paleo-environmental records are also hyper-linked to the individual data that has been collected for years will be pro­ abstracts. viding a good return on the investment. This project was developed with the partici­ pation of natural resources specialists and man­ Shelley J. Smith is the Bureau of Land Management agers, and the design of the database reflects their Liaison to the Army Environmental Center, where she needs and concerns. Training sessions are sched­ is also the Cultural Resources Team Leader. uled for local users. A follow-up phase one year after the training will focus on identifying the For information on the project, contact Mike actual and practical use of the project and gather­ Mallouf, White Sands Missile Range, 505-678- ing suggestions for revision of the prototype for­ 8651, or Shelley Smith, Army Environmental mat. A summary of the Basin's climatic and Center, 410-671-1577. vegetative history may also be produced.

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