Cape Lookout National Seashore National Park Service North Carolina U.S. Department of the Interior
Draft Cape Lookout Village Historic Structures Reuse Implementation Plan Environmental Assessment / Assessment of Effect . Draft Cape Lookout Village Historic Structures Reuse Implementation Plan / Environmental Assessment / Assessment of Effect Cape Lookout National Seashore Carteret County, North Carolina ______Cape Lookout National Seashore is in Carteret County, North Carolina, about 3 miles off the mainland coast. The national seashore occupies more than 28,000 acres of land and water extending from Ocracoke Inlet on the northeast to Beaufort Inlet on the southwest. The national seashore consists of four main barrier islands (North Core Banks, Middle Core Banks, South Core Banks, and Shackleford Banks). Various historic maritime activities have occurred within the national seashore, and the islands attract visitors seeking a diverse range of recreational opportunities.
This project concerns the Cape Lookout Village Historic District, which is near the southern end of the national seashore on the South Core Banks. The district has historically served as a site of maritime navigation and life- saving services, commercial fishing, and private residential and recreational use. The National Park Service (NPS) proposes to evaluate a range of alternative uses for 16 residences in the Cape Lookout Village Historic District. Although exhibiting various degrees of structural deterioration, all but three buildings are identified as contributing to the district’s national register significance. Essential utility systems would be required for any alternative proposal for reuse of the buildings. This document examines six alternatives for alternatives uses of the buildings in the Cape Lookout Village Historic District for the next 25 years. It also analyzes the impacts of implementing each of the alternatives.
Under all alternatives, the national seashore would stabilize 13 historic structures in the village area (four of which are undergoing emergency stabilization) and remove two additional structures and other selected noncontributing outbuildings. Two noncontributing buildings would continue to be used by nonprofit organizations. Space for two NPS staff / volunteers would be developed in the 1873 Lighthouse Keeper’s Quarters at the lighthouse complex. Under the no-action alternative, village structures would be connected to electrical service and two new septic systems. Limited exterior interpretation of the structures would be provided. Under alternative A, three village structures would be rehabilitated for NPS use, and three would be renovated for public interpretation (some structures could be used for more than one purpose). Structures would be connected to potable water and electrical systems, and three new septic systems.
Under alternative B, four village structures would be rehabilitated for NPS use, and seven would be renovated for public interpretation (some structures could be used for more than one purpose). Structures would be connected to potable water and electrical systems, and a central wastewater treatment system. Three historic structures would be relocated to original site locations. Under alternative C, four village structures would be rehabilitated for NPS use, and eight would be renovated for public interpretation. Three structures would be rehabilitated for use by private leaseholders. (Some structures could be used for more than one purpose). Structures would be connected to potable water and electrical systems, and a central wastewater treatment system. Three historic structures would be relocated to original site locations.
Under alternative D, four village structures would be rehabilitated for NPS use, and eight would be renovated for public interpretation. At a minimum, eight structures would be rehabilitated for use by a concessions operator. (Some structures could be used for more than one purpose). Structures would be connected to potable water and electrical systems, and a central wastewater treatment system. Three historic structures would be relocated to original site locations. Under alternative E, up to four village structures would be rehabilitated for NPS use, and eight would be renovated for public interpretation. At a minimum, eight structures would be rehabilitated for use by either a concessions operator or private lease holders. (Some structures could be used for more than one purpose). Structures would be connected to potable water and electrical systems, and a central wastewater treatment system. Three historic structures would be relocated to original site locations.
This Draft Reuse Implementation Plan / Environmental Assessment has been distributed to other agencies and interested organizations and individuals for their review and comment. The public comment period for this document will last for 30 days after the document has been distributed to the public. Readers are encouraged to submit their comments on this draft plan. Please see “How to Comment on this Plan” on the next page.
U.S. Department of the Interior • National Park Service
HOW TO COMMENT ON THIS PLAN
Comments on this plan are welcome and will Verbal comments may be made at public be accepted for 30 days after the document meetings. The dates, times, and locations of is distributed to the public. Comments/ public meetings will be announced in the responses to the material may be submitted media following release of this document. either over the Internet or in writing. Please comment only once. Before including your address, phone number, e-mail address, or other personal Please include your name and address on identifying information in your comment, any correspondence to be sure that you are you should be aware that your entire included on our mailing list. comment — including your personal identifying information — may be made Commenters are encouraged to use the publicly available at any time. Although you Internet if at all possible. can ask us in your comment to withhold your personal identifying information from Internet comments can be submitted at public review, we cannot guarantee that we
Written comments may be sent to:
Superintendent Bob Vogel 131 Charles Street Harkers Island, NC 28531
ii
SUMMARY
Cape Lookout National Seashore is in seashore’s purpose and mission goals, the Carteret County, North Carolina, about 3 National Park Service intends to rehabilitate miles off the mainland coast. The national and adaptively use selected buildings as seashore occupies more than 28,000 acres of feasible to preserve the integrity of the historic land and water extending from Ocracoke Inlet district and fulfill operational objectives. This on the northeast to Beaufort Inlet on the action is needed because the buildings within southwest. The national seashore consists of the historic district have sustained varying four main barrier islands (North Core Banks, degrees of deterioration. If left unchecked, the Middle Core Banks, South Core Banks, and historical integrity of the district could be Shackleford Banks). These narrow barrier compromised. The six alternatives presented islands are characterized by wide, bare sand and evaluated in this plan represent options beaches with low dunes covered by scattered for preserving and enhancing the integrity of grasses; flat grasslands bordered by dense the historic district’s buildings and cultural vegetation; and large expanses of salt marsh landscape while fulfilling visitor use and alongside the sound. There are no bridges or interpretive objectives. causeways linking the islands to each other or the mainland, and visitors reach the islands by A court order requires the national seashore ferry or private boat. “to conduct a public planning process to formulate a policy for the uses of the subject Various historic maritime activities have structures and other similar structures within occurred within the national seashore, and the the national seashore. During this process, the islands attract visitors seeking a diverse range National Park Service will consider a range of of recreational opportunities. The current uses of the structures including, but not project area is the Cape Lookout Village limited to, leasing, employee housing, admini- Historic District, which is near the southern strative purposes, or demolition, in accord- end of South Core Banks. The district has ance with applicable laws, regulations and historically served as a site of maritime naviga- policies.” tion and life-saving services, commercial fishing, and private residential and recrea- This Draft Reuse Implementation Plan / tional use. The harsh environment and Environmental Assessment / Assessment of relative isolation of the islands have served to Effect presents six alternatives for future limit human settlement other than at Cape management of Cape Lookout Village Lookout Village and Portsmouth Village (at Historic District in Cape Lookout National the northern end of the national seashore). Seashore. The alternatives, which are based on Consequently, the natural environment and the national seashore’s purpose, significance, ecosystems remain largely intact and and mission goals, present different ways to undisturbed throughout the national manage resources and visitor use and improve seashore. facilities and infrastructure in the historic district. The six alternatives are the no-action The National Park Service (NPS) proposes to alternative (continue current management), evaluate a range of alternative uses for build- alternative A, alternative B, alternative C, ings in the Cape Lookout Village Historic alterative D (the NPS preferred alternative), District. Many of the buildings were formerly and alternative E. occupied by private leaseholders as seasonal fishing cottages or used for other purposes. In Under all alternatives, the national seashore accordance with NPS policy and the national would stabilize 13 historic structures in the
iii SUMMARY village area (four of which are currently The key impacts of implementing this undergoing emergency stabilization —the alternative include the long-term beneficial Lewis-Davis House, the Guthrie-Ogilvie impacts on the Cape Lookout Village Historic House, Fishing Cottage No. 2, and the Seifert- District from stabilizing historic buildings. Davis House). Two additional structures The long-term impacts from removing or would be removed — the Setzer-Dawsey thinning aged, diseased, or invasive plant House (determined noncontributing to the materials would have a beneficial impact on district’s historical significance) and Fishing the remaining vegetation and a negligible Cottage No. 1 (determined noncontributing adverse impact on vegetation removed. and also condemned for occupancy). Selected Installation of the electrical lines would have a noncontributing outbuildings in the district negligible long-term adverse impact on would also be removed. The noncontributing vegetation. The long-term water quality Les and Sally Moore House / Store would impacts of use of some structures with septic continue to be used by the nonprofit Cape systems would be negligible. The national Lookout Environmental Education Center, seashore’s operations could be adversely and the main U.S. Coast Guard Station impacted by the additional costs and staffing building at the south end of the district would requirements associated with implementing also continue to be used by the nonprofit preservation undertakings. In the long term, North Carolina Maritime Museum. Space for visitor use and experience would benefit from two NPS staff / volunteers would be interpretive opportunities to see stabilized developed in the 1873 Lighthouse Keeper’s historic structures. Quarters at the lighthouse complex.
ALTERNATIVE A NO-ACTION ALTERNATIVE Under alternative A, three of the village None of the stabilized village structures would structures would be rehabilitated for NPS use be further rehabilitated for occupancy or use and occupancy, and three would be renovated by the National Park Service, concessions for interpretation to the public. (Individual operators, or private leaseholders under the buildings might be used for more than one no-action alternative. The structures would be purpose, i.e., public interpretation and NPS connected to electrical service. Electricity is administrative use, so this does not mean six currently delivered from the mainland at structures would be rehabilitated/ renovated.) Harkers Island and is available in the None of the structures would be used by lighthouse area. The electrical system would concession operators or private leaseholders. be extended to the village area, and would The structures would be connected to potable likely require upgrading or replacement to water piped from an existing well near the meet the additional operational needs of the lighthouse. The electrical system would be village. Two new septic systems would also be extended to the village area and would likely constructed. The locations for these have not require upgrading or replacement to meet the been selected. additional operational needs of the village. Three new septic systems would be Limited interpretation of the structures’ constructed. The locations for these have not exteriors would be provided, although visitors been selected. Selective vegetation clearing would not be able to enter the structures. would be undertaken to provide a semblance Limited vegetation clearing would be carried of the more open views that existed during the out near the structures primarily to reduce the district’s period of significance. risk from fire and hazard tree limbs.
iv Summary
The key impacts of implementing this relocated to their original site locations. alternative include the long-term beneficial Selective vegetation clearing would be impacts on the Cape Lookout Village Historic undertaken to provide a semblance of the District from stabilizing and rehabilitating more open views that existed during the historic buildings, and selective vegetation district’s period of significance. clearing to enhance the cultural landscape and historic views. The long-term impacts from The key impacts of implementing this removing or thinning aged, diseased, or alternative include the long-term beneficial invasive plant materials would have a impacts on the Cape Lookout Village Historic beneficial impact on the remaining vegetation District from stabilizing and rehabilitating and a negligible adverse impact on vegetation historic buildings, selective vegetation clearing removed. Installation of the electrical and to enhance the cultural landscape and historic potable water lines would have a negligible views, and relocation of three historic long-term adverse impact on vegetation. The buildings to their original sites. The long-term long-term water quality impacts of use of impacts from removing or thinning aged, some structures with septic systems would be diseased, or invasive plant materials would negligible. The national seashore’s operations have a beneficial impact on the remaining could be adversely impacted by the additional vegetation and a negligible adverse impact on costs and staffing requirements associated vegetation removed. Installation of electrical with implementing preservation undertakings. and potable water lines and a wastewater In the long term, visitor use and experience treatment system would have a negligible to would benefit from interpretive opportunities minor long-term adverse impact on to see stabilized and rehabilitated historic vegetation. The long-term water quality structures, and enhanced historic views. impacts of increased use of some structures would be negligible. The national seashore’s operations could be adversely impacted by the ALTERNATIVE B additional costs and staffing requirements associated with implementing preservation Four of the village structures would be undertakings. In the long term, visitor use and rehabilitated for NPS use and occupancy, and experience would benefit from interpretive seven would be renovated for interpretation opportunities to see stabilized and to the public under alternative B. (Individual rehabilitated historic structures, and buildings might be used for more than one enhanced historic views. purpose, i.e., public interpretation and NPS administrative use, so this does not mean 11 structures would be rehabilitated/renovated.) ALTERNATIVE C None of the structures would be used by concessions operators or private leaseholders. In alternative C, four of the village structures The structures would be connected to potable would be rehabilitated for NPS use and water piped from an existing well in the occupancy, and eight would be renovated for lighthouse area. The electrical system would interpretation to the public. Three structures be extended to the village area and would would be rehabilitated for use by private likely require upgrading or replacement to leaseholders. (Individual buildings might be meet the additional operational needs of the used for more than one purpose, i.e., public village. A new central wastewater treatment interpretation, leaseholders, and NPS system would be constructed. Three administrative use, so this does not mean 15 structures (the 1887 Life-Saving Station, the structures would be rehabilitated/renovated.) 1924 Life-Saving Station Boat House, and the The structures would be connected to potable 1907 Lighthouse Keeper’s Quarters) would be water piped from an existing well in the
v SUMMARY lighthouse area. The electrical system would the limited availability of structures to lease- be extended to the village area and would holders for overnight / extended-stay likely require upgrading or replacement to occupancy. meet the additional operational needs of the village. A new central wastewater treatment system would be constructed. Three ALTERNATIVE D (PREFERRED) structures (the 1887 Life-Saving Station, the 1924 Life-Saving Station Boat House, and the Up to four of the village structures would be 1907 Lighthouse Keeper’s Quarters) would be rehabilitated for NPS use and occupancy, and relocated to their original site locations. eight would be renovated for interpretation to Selective vegetation clearing would be the public under alternative D. At a minimum, undertaken to provide a semblance of the eight structures would be rehabilitated for use more open views that existed during the by a concessions operator. (Individual district’s period of significance. buildings might be used for more than one purpose, i.e., public interpretation and NPS The key impacts of implementing this administrative use, so this does not mean 20 alternative include the long-term beneficial structures would be rehabilitated/ renovated.) impacts on the Cape Lookout Village Historic The structures would be connected to potable District from stabilizing and rehabilitating water piped from an existing well in the historic buildings, selective vegetation clearing lighthouse area. The electrical system would to enhance the cultural landscape and historic be extended to the village area and would views, and relocation of three historic likely require upgrading or replacement to buildings to their original sites. The long-term meet the additional operational needs of the impacts from removing or thinning aged, village. A new central wastewater treatment diseased, or invasive plant materials would system would be constructed. Three have a beneficial impact on the remaining structures (the 1887 Life-Saving Station, the vegetation and a negligible adverse impact on 1924 Life-Saving Station Boat House, and the vegetation removed. Installation of electrical 1907 Lighthouse Keeper’s Quarters) would be and potable water lines and a wastewater relocated to their original site locations. treatment system would have a negligible to Selective vegetation clearing would be minor long term adverse impact on undertaken to provide a semblance of the vegetation. The long-term adverse impacts on more open views that existed during the water quality associated with occupancy of district’s period of significance. the structures in the village would be negligible. There would be a beneficial impact The key impacts of implementing this on terrestrial water systems in the historic alternative include the long-term beneficial district because of an increase in the impacts on the Cape Lookout Village Historic availability of fresh water in the surficial District from stabilizing and rehabilitating aquifer. The long-term adverse impact on the historic buildings, selective vegetation clearing freshwater saltwater interface and the to enhance the cultural landscape and historic estuarine or marine ecosystems would be views, and relocation of 3 historic buildings to negligible. The national seashore’s operations their original sites. The long-term impacts could be adversely impacted by the additional from removing or thinning aged, diseased, or costs and staffing requirements associated invasive plant materials would have a with implementing preservation undertakings. beneficial impact on the remaining vegetation In the long term, visitor use and experience and a negligible adverse impact on vegetation would benefit from interpretive opportunities removed. Installation of electrical and potable to see stabilized and rehabilitated historic water lines and a wastewater treatment system structures and enhanced historic views, and would have a negligible to minor long-term
vi Summary adverse impact on vegetation. The long-term relocated to their original site locations. adverse impacts on water quality associated Selective vegetation clearing would be with occupancy of the structures in the village undertaken to provide a semblance of the would be negligible. There would be a more open views that existed during the beneficial impact on terrestrial water systems district’s period of significance. in the historic district because of an increase in the availability of fresh water in the surficial The key impacts of implementing this aquifer. If the volume of effluent discharged alternative include the long-term beneficial exceeds the assimilative capacity of the aquifer impacts on the Cape Lookout Village Historic there could be a localized long-term adverse District from stabilizing and rehabilitating but negligible to minor impact on water historic buildings, selective vegetation clearing quality in estuarine and marine systems. The to enhance the cultural landscape and historic national seashore’s operations could be views, and relocation of 3 historic buildings to adversely impacted by the additional costs and their original sites. The long-term impacts staffing requirements associated with from removing or thinning aged, diseased, or implementing preservation undertakings. In invasive plant materials would have a the long term, visitor use and experience beneficial impact on the remaining vegetation would benefit from interpretive opportunities and a negligible adverse impact on vegetation to see stabilized and rehabilitated historic removed. Installation of electrical and potable structures and enhanced historic views, and water lines and a wastewater treatment system the availability of structures to visitors under a would have a negligible to minor long-term concessions operation for overnight / adverse impact on vegetation. The long-term extended-stay occupancy. adverse impacts on water quality associated with occupancy of the structures in the village would be negligible. There would be a ALTERNATIVE E beneficial impact on terrestrial water systems in the historic district because of an increase Under alternative E, up to four of the village in the availability of fresh water in the surficial structures would be rehabilitated for NPS use aquifer. If the volume of effluent discharged and occupancy, and eight would be renovated exceeds the assimilative capacity of the aquifer for interpretation to the public. At a minimum, there could be a localized long-term adverse eight structures would be rehabilitated for use but negligible to minor impact on water by either a concessions operator or private quality in estuarine and marine systems. The leaseholders. (Individual buildings might be national seashore’s operations could be used for more than one purpose, i.e., public adversely impacted by the additional costs and interpretation, leaseholders, and NPS staffing requirements associated with administrative use, so this does not mean 20 implementing preservation undertakings. In structures would be rehabilitated/renovated.) the long term, visitor use and experience The structures would be connected to potable would benefit from interpretive opportunities water piped from an existing well in the to see stabilized and rehabilitated historic lighthouse area. The electrical system would structures and enhanced historic views, and be extended to the village area and would the availability of structures to lease-holders likely require upgrading or replacement to or to other visitors under a concessions meet the additional operational needs of the operation for overnight / extended-stay village. A new central wastewater treatment occupancy. system would be constructed. Three structures (the 1887 Life-Saving Station, the 1924 Life-Saving Station Boat House, and the 1907 Lighthouse Keeper’s Quarters) would be
vii SUMMARY
THE NEXT STEPS will be issued and the plan (one of the alternatives) will be signed by the NPS After the distribution of the Draft Reuse regional director. The “Finding of No Implementation Plan / Environmental Significant Impact” documents the NPS Assessment / Assessment of Effect there will be a selection of an alternative for implementation. 30-day public review and comment period With the signed “Finding of No Significant after which the NPS planning team will Impact,” the plan can then be implemented, evaluate comments from other federal depending on funding and staffing. (A agencies, organizations, businesses, and “Finding of No Significant Impact” does not individuals regarding the draft plan. If it is guarantee funds and staff for implementing determined that there are no significant the approved plan.) impacts, a “Finding of No Significant Impact”
viii CONTENTS
PURPOSE AND NEED FOR ACTION INTRODUCTION 3 BRIEF DESCRIPTION OF THE AREA 3 PURPOSE OF THE ACTION 3 NEED FOR THE ACTION 3 PURPOSE, SIGNIFICANCE, AND MISSION STATEMENTS 6 Purpose 6 Significance 6 Mission Statements 6 PROJECT HISTORY AND BACKGROUND 6 RELATIONSHIP TO OTHER PROJECTS AND PLANS 7 PROJECT-RELATED ISSUES AND CONSIDERATIONS 9 DERIVATION OF IMPACT TOPICS 9 IMPACT TOPICS ANALYZED IN THIS DOCUMENT 10 Cultural Resources 10 Natural Resources 12 National Seashore Operations 12 Visitor Use and Experience 12 IMPACT TOPICS DISMISSED FROM FURTHER ANALYSIS 12 Cultural Resources 12 Natural Resources 13 Environmental Justice 21 Socioeconomic Environment 21
THE ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE THE ALTERNATIVES 25 NO-ACTION ALTERNATIVE 25 ALTERNATIVE A 25 ALTERNATIVE B 26 ALTERNATIVE C 28 ALTERNATIVE D (PREFERRED) 28 ALTERNATIVE E 29 MITIGATIVE MEASURES 31 IDENTIFICATION OF THE PREFERRED ALTERNATIVE 33 ENVIRONMENTALLY PREFERRED ALTERNATIVE 34 ALTERNATIVES CONSIDERED AND DISMISSED FROM FURTHER ANALYSIS 35
AFFECTED ENVIRONMENT INTRODUCTION 43 CULTURAL RESOURCES 44 Historic District 44 Structures and Buildings 44 Cultural Landscape 49 Archeological Resources 51
ix CONTENTS
NATURAL RESOURCES 53 Vegetation 53 Water Quality 55 NATIONAL SEASHORE OPERATIONS 56 VISITOR USE AND EXPERIENCE 57
ENVIRONMENTAL CONSEQUENCES METHODOLOGY FOR ASSESSING IMPACTS 61 Cumulative Impacts 61 Impacts on Cultural Resources and Section 106 of the National Historic Preservation Act 62 CULTURAL RESOURCES 63 Historic District (Structures, Buildings, and Cultural Landscape) 63 Definitions of Intensity Levels 63 No-Action Alternative 63 Alternative A 65 Alternative B 67 Alternative C 69 Alternative D 71 Alternative E 73 Archeological Resources 75 Definitions of Intensity Levels 75 No-Action Alternative 76 Alternative A 77 Alternative B 78 Alternative C 79 Alternative D 80 Alternative E 81 NATURAL RESOURCES 83 Vegetation 83 Definitions of Intensity Levels 83 No-Action Alternative 83 Alternative A 84 Alternative B 85 Alternative C 87 Alternative D 89 Alternative E 91 Water Quality 93 Definitions of Intensity Levels 93 No-Action Alternative 94 Alternative A 94 Alternative B 95 Alternative C 96 Alternative D 97 Alternative E 97 NATIONAL SEASHORE OPERATIONS 99 Definitions of Intensity Levels 99 No-Action Alternative 99 Alternative A 100 Alternative B 101
x Contents
Alternative C 102 Alternative D 103 Alternative E 104 VISITOR USE AND EXPERIENCE 106 Methodology 106 Definitions of Intensity Levels 106 No-Action Alternative 106 Alternative A 107 Alternative B 108 Alternative C 109 Alternative D 110 Alternative E 110
CONSULTATION AND COORDINATION, APPENDIX, GLOSSARY, SELECTED REFERENCES, AND PREPARERS CONSULTATION AND COORDINATION 115 APPENDIX: BUILDINGS IN THE HISTORIC DISTRICT 116 GLOSSARY 121 SELECTED REFERENCES 122 PREPARERS 124
Maps
Regional Map of Cape Lookout National Seashore, North Carolina 4 Project Area, Cape Lookout Village Historic District 5 Historic District Structures 11 Structures to Be Relocated, Alternatives B, C, D, and E 27
Tables
Table 1: Summary of Comparative Costs (Fiscal Year 06 Dollars) 33 Table 2. Summary of Alternatives and Impacts 37
xi
PURPOSE AND NEED FOR ACTION .
INTRODUCTION
BRIEF DESCRIPTION OF THE AREA buildings within the Cape Lookout Village Historic District. Many of the buildings were Cape Lookout National Seashore is in formerly occupied by private leaseholders as Carteret County, North Carolina, about 3 seasonal fishing cottages or used for other miles off the mainland coast (see figure 1). The purposes. In accordance with NPS policy and national seashore occupies more than 28,000 the national seashore’s purpose and mission acres of land and water extending from goals, the National Park Service intends to Ocracoke Inlet on the northeast to Beaufort rehabilitate and adaptively use selected Inlet on the southwest. The national seashore buildings as feasible to preserve the integrity consists of four main barrier islands (North of the historic district and fulfill operational Core Banks, Middle Core Banks, South Core objectives. Banks, and Shackleford Banks). These narrow barrier islands are characterized by wide, bare sand beaches with low dunes covered by NEED FOR THE ACTION scattered grasses; flat grasslands bordered by dense vegetation; and large expanses of salt This action is needed because the buildings marsh alongside the sound. There are no within the historic district have sustained bridges or causeways linking the islands to varying degrees of deterioration. If left each other or the mainland, and visitors reach unchecked, the historical integrity of the the islands by ferry or private boat. district could be compromised. The alterna- tives presented and evaluated in this plan Various historic maritime activities have represent options for preserving and enhanc- occurred within the national seashore, and the ing the integrity of the historic district’s islands attract visitors seeking a diverse range buildings and cultural landscape while fulfil- of recreational opportunities. The current ling visitor use and interpretive objectives. project area is the Cape Lookout Village Historic District, which is near the southern A court order issued in 20021 requires the end of South Core Banks (see figure 2). The national seashore “to conduct a public district has historically served as a site of planning process to formulate a policy for the maritime navigation and life-saving services, uses of the subject structures and other similar commercial fishing, and private residential structures within the national seashore. and recreational use. The harsh environment During this process, the National Park Service and relative isolation of the islands have will consider a range of uses of the structures served to limit human settlement other than at including, but not limited to, leasing, Cape Lookout Village and Portsmouth Village employee housing, administrative purposes, (at the northern end of the national seashore). or demolition, in accordance with applicable Consequently, the natural environment and laws, regulations and policies.” ecosystems remain largely intact and undisturbed throughout the national seashore.
PURPOSE OF THE ACTION
1 The National Park Service (NPS) proposes to Warren J. Davis, et. al., Plaintiff, v. United evaluate a range of alternative uses for States of America, et. al., Defendants. Case No. 4:01-CV-117-H(3). September 4, 2002.
3 PURPOSE AND NEED FOR ACTION
4 Introduction
5 PURPOSE AND NEED FOR ACTION
PURPOSE, SIGNIFICANCE, AND Important Bird Area by the American Bird MISSION STATEMENTS Conservancy. • The national seashore’s significant Purpose cultural resources reflect the rich maritime history of the Outer Banks. The Cape Cape Lookout National Seashore was Lookout Village Historic District and the established by Public Law 89-366 (March 10, Portsmouth Village Historic District are 1966) “to preserve for public use and distinguished by listing on the National enjoyment an area in the State of North Register of Historic Places. A diverse array Carolina possessing outstanding natural and of structures dot the cultural landscapes of recreational values . . . .” From this enabling these districts — the Cape Lookout legislation, the national seashore’s purpose Lighthouse and keeper’s quarters, fishing has been further broadened: to conserve and cottages, U.S. Life-Saving Service and preserve for public use and enjoyment the Coast Guard facilities, and various outstanding natural, cultural, and recreational community buildings (Portsmouth’s values of a dynamic coastal barrier island church, school, and post office / general environment for future generations. The store). national seashore also serves as both a refuge • The national seashore provides outstand- for wildlife and a recreational area for the ing visitor recreational opportunities to public, including developed visitor amenities. fish, hunt, beachcomb, hike, swim and camp in a remote coastal environment.
Significance Mission Statements • The national seashore’s 56 mile-long coastal barrier islands are among the most The mission of Cape Lookout National dynamic in the United States. The Seashore is to combined natural forces of wind, waves, and tidal currents continually reshape the • conserve and preserve for the future the low-lying islands. outstanding natural resources of a • The national seashore has been designated dynamic coastal barrier island system; a unit of the Carolinian – South Atlantic • protect and interpret the significant cul- Biosphere Reserve by the United Nation’s tural resources of past and contemporary Educational, Scientific and Cultural maritime history; Organization (UNESCO). It is also • provide for public education and enrich- designated a North Carolina Natural ment through proactive interpretation and Heritage Area. scientific study; and • The barrier islands provide refuge and • provide for sustainable use of recreation critical habitat for threatened and resources and opportunities. endangered species such as the loggerhead sea turtle, piping plover, and seabeach amaranth (a plant species). Critical habitat PROJECT HISTORY AND is also provided for other unique wildlife BACKGROUND including the protected wild horses of Shackleford Banks. More than 275 bird The national seashore ’s 1966 enabling species use the national seashore for legislation (PL 89-366) provided rights of resting, nesting, and feeding, and as a occupancy leases of 25-year duration, and life migratory stopover point. The national estates to those persons “who on January 1, seashore is designated a Globally 1966 owned property which on July 1, 1963
6 Introduction was developed and used for non-commercial locations to the central village area: the Life- residential purposes” (NPS, 1982). Most of the Saving Station (1887), the Life-Saving Station leased properties and life estates are located at Boat House (1924), and the Lighthouse Cape Lookout Village and Portsmouth Keeper’s Quarters (1907). Village, although a few private inholdings are dispersed between the two locations along the Essential utility systems would be required for Core Banks. Most of the leases have expired any alternative proposal for reuse of the and the properties have returned to NPS buildings. A recently drilled well near the management. Ten private leases in the Cape lighthouse is anticipated to provide potable Lookout Village area expired between 2001 water in quantities sufficient to serve all the and 2002, three leases expired in 2003, and the properties in the historic district. Electricity is last lease will expire in 2007. presently provided to the lighthouse from Harkers Island (the location of NPS Several of the former leaseholders in the Cape headquarters). Electrical service could be Lookout Village owned the residences for extended throughout the district, perhaps many years prior to establishment of the supplemented by photovoltaic panels and national seashore and retain strong personal generators. Most of the existing buildings connections to the properties and the history have individual septic systems that are of the cape. The Cape Lookout Village presently inoperative, or do not meet state and Historic Preservation Committee, formed by county regulations. A critical component of former leaseholders, was instrumental in the reuse plan would be provision of a nominating the historic district to the national wastewater system that adequately addresses register in efforts to preserve the cape’s fishing environmental requirements (e.g. protection and life-saving heritage. Two of the building of the fresh water aquifer), and does not complexes in the village area have been intrude on the historic district or the cultural adapted for use by nonprofit organizations for landscape. The suitability of a central natural history and environmental education. wastewater system serving all the properties in The North Carolina Maritime Museum, the district would be investigated and headquartered in Beaufort, uses the former implemented as required. Coast Guard Station as a field school. The Cape Lookout Environmental Education Center operates its educational programs RELATIONSHIP TO OTHER from the former house, store, and cabins built PROJECTS AND PLANS by Les and Sally Moore in the 1950s and 1960s. The following plans, policies, and actions could affect the alternatives being considered This document focuses on alternative in this environmental assessment. These plans management strategies for 16 residences in the and policies were also considered in the Cape Lookout Village Historic District. Three analyses of cumulative impacts. of these buildings (the Setzer-Dawsey House, Fishing Cottage No. 1, and the Moore House General Management Plan / Development and Store) are noncontributing structures in Concept Plan (1982) —This 1982 plan the national register significance of the established the underlying NPS management historic district. The remainder, although philosophy and long-range planning direction exhibiting various degrees of structural for the national seashore. The following are deterioration, are identified as contributing to among the management objectives identified the district’s national register significance. in the 1982 plan: Three of the contributing historic government buildings were moved from their original
7 PURPOSE AND NEED FOR ACTION
• Resources management: The seashore will “Cape Lookout Village Cultural Landscape be maintained in a natural condition, with Report” (draft 2005) — The cultural land- primary resource management scape report provides detailed cultural land- consideration of the dynamic natural scape descriptions, analyses, and treatment processes that shape its exposed, maritime recommendations for the historic district. The setting and environment. Native wildlife cultural landscape is identified as a contribu- (particularly threatened and endangered ting component of the district’s national species) and historic resources will be register significance, furthering the district’s preserved and protected. overall integrity of setting, feeling, and • Visitor use and interpretation: Seashore association. resources and recreational pursuits will be made available and accessible to visitors in Cape Lookout Visitor Orientation Area a manner that minimizes environmental Development Concept Plan / Environmental impacts. The interpretive emphasis will Assessment (November 2005) — The plan focus primarily on the effects of the sea on analyzed alternatives for improved visitor use the barrier islands. facilities near the Cape Lookout Lighthouse. • Development: Facilities will only be The selected alternative consisted of con- developed on the barrier islands that are structing a new comfort station and visitor essential to visitor use, safety, and contact station on a previously disturbed site resource management. Major facilities outside the boundary (to the north) of the (visitor contact, administration, historic district. Additional project actions maintenance) will be developed at the included the placement of new water line, mainland site on Harkers Island. construction of a 75-car public parking area, and construction of new sections of General Management Plan Amendment / boardwalk. Environmental Assessment (2001) — The General Management Plan Amendment Economic Feasibility Study of Potential addressed improvements to overnight accom- Commercial Services at Cape Lookout modations and transportation services to Village (October 2005) — The consulting firm North and South Core Banks. The plan called of Dornbusch Associates prepared this study for a reduction in the number of parking to analyze the feasibility and necessary condi- spaces located near the 1873 lighthouse tions for a prospective concessions operator keeper’s quarters. to provide visitor services (e.g., lodging, food and beverage, and merchandise sales) using Cape Lookout Village Historic District — rehabilitated buildings at Cape Lookout The historic district (listed on the National Village. The study concluded that a single Register of Historic Places in June 2000) concessions operator could profitably lease at encompasses former privately leased fishing least eight village properties for visitor lodging cottages, the Cape Lookout Lighthouse if the concessions operation was combined Station, and the U.S. Coast Guard Station. The with other fishing camp units in the South district’s period of significance extends from Core Banks. 1857 to approximately 1950. Shoreline Protection Project (Spring 2006) Court Order (September 2002) — This court — This project was completed to protect the order requires the National Park Service to Cape Lookout Lighthouse and associated develop a reuse plan for structures within the structures from shoreline erosion occurring Cape Lookout Village Historic District. on the western (sound) side of the cape. The shoreline between the lighthouse area and the sound has substantially eroded since the mid-
8 Introduction
20th century, and was heavily impacted by Cape Lookout Village Historic District — Hurricane Isabel in 2003 and subsequent All proposed actions and treatments must storm surges. Sand dredged from a shoal be in accordance with approved standards northeast of Shackleford Banks was used to to ensure preservation of distinctive renourish the beach north and south of the features of the district’s contributing lighthouse dock. buildings and cultural landscape. • establishing the appropriate types and Interim Protected Species Management levels of uses for the buildings to Plan / Environmental Assessment (March effectively fulfill the national seashore’s 2006) — This plan was prepared to evaluate long-range objectives for preservation, and implement strategies to avoid adversely interpretation, and visitor use — The impacting protected species while allowing for buildings could potentially be used by the appropriate recreational use. The plan (in National Park Service, private leasehold- conformance with the national seashore s ers, and concessions operators. enabling legislation, NPS policies, the • providing reasonable opportunities for Endangered Species Act, the Migratory Bird potential concessioners to profitably Treaty Act, and other relevant laws and operate commercial services from NPS- mandates) will provide interim guidance selected and rehabilitated structures pending the development of an off-road • protecting natural resources (e.g., critical vehicle (ORV) plan and environmental impact habitat, groundwater, and wetlands) in statement. accordance with NPS policies and standards Commercial Services Plan / Environmental • providing adequate and appropriate utility Assessment (in progress) — The national systems (potable water, electricity, septic / seashore is preparing a commercial services wastewater) to support reuse of the plan that will identify and analyze alternatives structures with minimal environmental for managing necessary and appropriate impact commercial services during the next 10 years. • suitability, safety, and special use require- The plan is required to address the nature of ments for sustainable construction and concessions operations, the level of required occupancy within the 100-year floodplain services, and other issues that have arisen and barrier island environment since the 2001 General Management Plan • engineering and structural feasibility of Amendment. The plan will assist the national relocating three historic structures back to seashore in achieving its objectives for desired their original site locations to help visitor experiences, while minimizing resource reestablish the district’s historic spatial impacts associated with commercial service arrangement and integrity activities.
DERIVATION OF IMPACT TOPICS PROJECT-RELATED ISSUES AND CONSIDERATIONS Impact topics are the resources or subjects of concern that could be affected by actions The primary issues and considerations discussed in the range of alternatives. These associated with the actions presented in this impact topics were identified based on federal plan and environmental assessment are as laws, regulations, project issues, and NPS follows: knowledge of limited or easily impacted resources. A brief rationale for the selection of • preserving and protecting historic proper- each impact topic is provided below, as well as ties contributing to the significance of the
9 PURPOSE AND NEED FOR ACTION the rationale for dismissing specific impact National Park Service’s Cultural Resource topics from further consideration. Management Guideline (DO-28), a cultural landscape is
IMPACT TOPICS ANALYZED a reflection of human adaptation and IN THIS DOCUMENT use of natural resources and is often expressed in the way land is Cultural Resources organized and divided, patterns of settlement, land use, systems of The 1966 National Historic Preservation Act circulation, and the types of (16 USC 470 et seq.), the 1916 NPS Organic structures that are built. The Act, NPS Director’s Order 28 (“Cultural character of a cultural landscape is Resource Management Guideline”), and other defined both by physical materials, NPS planning and cultural resource policies such as roads, buildings, walls, and and guidelines call for the consideration and vegetation, and by use reflecting protection of historic properties in develop- cultural values and traditions. ment proposals. The evaluation of potential impacts of proposed actions on significant Proposed project actions could affect aspects historic properties is required by the National of the cultural landscape. This could occur, Historic Preservation Act and the National for example, if vegetation thinning is under- Environmental Policy Act, as is attention to taken to provide a sense of the former open- the provisions of the Native American Graves ness and visual connection among historic Protection and Repatriation Act for sites buildings. Reestablishing or altering patterns where human remains or burials may be of circulation would also affect the cultural present. landscape in this area. Relocation of three buildings to their original locations (contin- Historic District — Structures, Buildings, gent on the outcome of environmental and and Cultural Landscape. The structures and structural feasibility studies) would also affect buildings considered under this reuse the district’s visual character and spatial implementation plan are identified as both arrangement. Therefore, the impacts on the contributing and noncontributing resources cultural landscape by actions proposed under of the Cape Lookout Village Historic District, the various alternatives are evaluated and which was listed on the National Register of analyzed in this environmental assessment. Historic Places in June 2000 (see Historic District Structures map). Proposed alterna- Archeological Resources. The dynamic tives for the use and treatment of these geomorphology of the barrier islands is not properties, including removal of noncontribu- considered conducive to the in-situ preserva- ting properties, could affect historic building tion of archeological resources, and no fabric and other character-defining features significant archeological resources have been that contribute to the district’s significance. identified in the project area. However, there Therefore, the impacts on the district, is a possibility that resources may be present inclusive of historic structures and buildings, in the area associated with prehistoric or are evaluated and analyzed in this historic period occupation (in particular, environmental assessment. cultural materials associated with the development of the Cape Lookout Village The cultural landscape of the project area is Historic District). Because buried archeo- identified as a resource that contributes to the logical resources could be inadvertently overall significance of the Cape Lookout disturbed by construction activities associated Village Historic District. According to the
10 Introduction
11 PURPOSE AND NEED FOR ACTION with the project, archeological resources are National Seashore Operations included as an impact topic. The alternatives proposed in this plan could affect NPS operations and facilities in the Natural Resources national seashore. All proposals for rehabilita- ting and adaptively using the structures in the Vegetation. Vegetation communities arise in historic district would require a considerable response to a combination of locally present initial investment for construction appropri- conditions such as elevation, aspect, available ate to maintaining the district’s historic water, and the exposure to saltwater and integrity, while also bringing the structures wind. The presence and absence of vegetation into compliance with the regulatory code can affect the dynamics of depositional pro- requirements for occupancy. New utility cesses on the island. Vegetation also provides systems for wastewater treatment, electrical important habitat for wildlife, particularly for service, and potable water would also contri- birds. Actions proposed in this plan would bute to project costs and ongoing demands on affect vegetation in the historic district. These the national seashore’s facility management impacts are related to creating defensible staff to construct and maintain these systems. space around the historic structures in the Because these actions would have implications
village historic district, partially restoring fo r facility management staffing and budget historic views within the district, and allocations, the impacts on national seashore removing some vegetation that post-dates the operations are analyzed in this plan. district’s period of significance. For these reasons, the impacts on vegetation from actions proposed in this plan are analyzed in Visitor Use and Experience this document. Providing for visitor interpretation and quality Water Quality. Changes in marine and fresh visitor experiences are among the funda- water quality can affect wildlife populations mental purposes of the National Park Service. and visitors. The water resources in the To varying degrees, the alternatives in this national seashore are protected and managed plan would affect interpretation of the Cape under the Federal Water Pollution Control Lookout Village historic district and other Act Amendments of 1972, the Clean Water visitor use and recreational opportunities in Act of 1977, and the Safe Drinking Water Act the area. The anticipated impacts on visitor as amended. NPS Management Policies 2006 use are therefore analyzed in this plan. also require the protection and conservation of water resources and water quality. Actions related to wastewater treatment proposed IMPACT TOPICS DISMISSED under this plan could affect water quality. FROM FURTHER ANALYSIS From a water quality perspective, the primary concerns are the concentration of nitrogen in Cultural Resources the wastewater effluent as well as influx of fresh water into the environment, which could Ethnographic Resources. Ethnographic affect terrestrial, estuarine, and marine resources are “a site, structure, object, habitats. For this reason, the impacts on water landscape, or natural resource feature quality from proposed actions are analyzed in assigned traditional legendary, religious, this document. subsistence, or other significance in the cultural system of a group traditionally associated with it (DO-28: Appendix A, 181). No known ethnographic resources are
12 Introduction identified within the Cape Lookout area. mental documents. The federal Indian trust There are no federally recognized Native responsibility is a legally enforceable fiduciary American tribal groups with cultural affiliation obligation on the part of the United States to to the national seashore. Therefore, ethno- protect tribal lands, assets, resources, and graphic resources are dismissed as an impact treaty rights, and it represents a duty to carry topic in this environmental assessment. out the mandates of federal law with respect to American Indian and Alaska Native tribes. Museum Collections. Museum collections can include a diverse range of items such as There are no Indian trust resources in Cape prehistoric and historic objects, artifacts, Lookout National Seashore. The lands works of art, archival documents, and natural comprising the national seashore are not held history specimens. Cape Lookout National in trust by the Secretary of the Interior for the Seashore’s museum collections include benefit of Indians due to their status as approximately 4,000 objects including Indians. Therefore, Indian trust resources is archeological artifacts, historical objects, dismissed as an impact topic in this archival materials, and historic furnishings. As environmental assessment. part of the long-range planning effort for management of the historic residences in the Cape Lookout Village Historic District, the Natural Resources National Park Service envisions that historic furnishings and other decorative/utilitarian Air Quality. The national seashore has been items representative of the district’s period of designated a class II airshed for the prevention significance (ca. 1857 to 1950) would be of significant deterioration of air quality. Even placed within selected buildings to assist in though it appears that most air pollutants are interpreting the lifeways and living dispersed by the maritime winds, the National arrangements of former cape residents. Park Service believes that industrial pollutants are lowering pH values of freshwater bodies in Further collections management studies and the southeastern United States. The effects of exhibit planning may be required to guide acid rain on freshwater ponds, vegetation, and these efforts. Although some of these items historic resources at the national seashore are exist within the buildings, others are unknown and are not being monitored. Com- anticipated to be acquired from various mercial tour, ferry, and private boats and donors and sources. No sensitive items are motorized ground transportation vehicles are anticipated to be placed within the buildings the most likely sources of localized air pollu- that would require special security measures tants at Cape Lookout. The number of boats or environmental control systems. Because no and other vehicles are not expected to sub- specific or detailed treatment actions are stantially increase as a result of implementa- proposed in this document that address tion of this plan. There could be adverse historic furnishings and museum collections, construction-related impacts on air quality and additional implementation planning may during the period of construction emanating be required to guide interior exhibits, museum from construction vehicle emissions and dust, collections is dismissed as an impact topic in but these impacts would be negligible and of this environmental assessment. short duration. Because only negligible long- term changes in air quality at the national Indian Trust Resources. Secretarial Order seashore are anticipated as a result of this 3175 requires that any anticipated impacts to plan, air quality has been dismissed as an Indian trust resources from a proposed pro- impact topic. ject or action by Department of the Interior agencies be explicitly addressed in environ-
13 PURPOSE AND NEED FOR ACTION
Floodplains. Floodplains in national park historic district, the structures would cause system units are protected and managed in localized changes in water flow around the accordance with Executive Order 11988 structures. The changes in water flow could (“Floodplain Management”), NPS Director’s result in either scouring or deposition around Order 77-2 (“Floodplain Management”), and the structures, but would be unlikely to result NPS Management Policies 2006 (4.6.4). This in changes over a wider area. The structures guidance requires the National Park Service to would not act as a barrier to water flow, protect, preserve, and restore floodplain change the ability of the floodplain to convey values; minimize risk to life or property by water across the island, or add to the height of design or modification of actions in floodwaters. The proposed alternatives would floodplains; and examine impacts on neither change the relationship of the struc- floodplains. It is NPS policy to avoid affecting tures to the floodplain nor alter the flood- floodplains and to minimize impacts when plain. Therefore, the adverse impacts on the they are unavoidable. Except for the tops of floodplain from proposed undertakings the tallest dunes at Cape Lookout Point, all of would be negligible. Core Banks is in the 100-year floodplain and is a coastal high-hazard area. Because the DO 77-2 requires the preparation of a location of the historic buildings is integral to Statement of Findings (SOF) that describes their significance, it would not be practicable how the potential impacts on natural flood- to locate development outside the floodplain. plain processes would be mitigated during the implementation of a development plan. These Natural floodplain values, as defined in the requirements do not apply to historic struc- procedural manual for Director’s Order 77-2, tures whose location is integral to their are the attributes of the floodplain that significance. Under some alternatives, there contribute to ecosystem quality, including would be additional development, such as a soils, vegetation, wildlife habitat, dissipation wastewater treatment system, that does not of flood energy, sedimentation processes, and fall within the exemption. When site-specific ground water recharge. Periodic disturbance plans are developed related to the proposed of natural floodplain soils and geomorphic actions in this plan, environmental compli- and vegetation attributes by floods also con- ance would be completed and a statement of tributes to ecosystem quality. The attributes finding would be prepared as necessary. that could be affected by implementation of this plan include soils, vegetation, wildlife Geologic Resources. Consideration of habitat, dissipation of flood energy, and sedi- geologic resources is required by NPS mentation processes, including erosion. The Management Policies 2006 (Section 4.8.1). In impacts on soils, vegetation, and wildlife general, the National Park Service will allow habitat are analyzed separately in this docu- geologic processes to continue unimpeded. ment. The floodplain values that are con- Specifically, with respect to shorelines and sidered here are the ability of the floodplain to barrier islands, the Park Service will also allow convey flood waters as well as changes to sedi- natural shoreline processes (e.g., erosion, mentation processes that occur on the island. deposition, dune formation, overwash, inlet formation, and shoreline migration) to The structures in the historic village were sited continue without interference (NPS at their current locations to minimize their Management Policies 2006, 4.8.1.1). exposure and vulnerability to storms. The shape of the southern end of South Core Like the rest of the Outer Banks, Core Banks Banks has evolved over time such that the was formed by sand deposition. Cape village is now located near the widest section Lookout is underlain entirely by sand and of the island. If flooding occurred within the unconsolidated materials deposited by wind
14 Introduction and water. The forces that modify the island accepted health and safety standards. Because topography include wind, water, and storms. the national seashore staff would implement The overwash from storms and hurricanes appropriate mitigation measures in the event brings sand from the ocean-side beach across of a future fuel or oil spill, and would ensure to the sound side of the island. Over time, the that all potentially hazardous building wetland soils from the sound side become part materials are removed during rehabilitation of of the beach on the ocean side. Because of this historic structures, the impacts from this topic constant movement, geologic strata do not have been dismissed for this plan. form and conditions are not conducive to the formation and preservation of a fossil record. Lightscape Management. In accordance with The actions proposed in this plan would occur NPS Management Policies 2006 (4.10), the away from the shoreline within the historic national seashore strives to preserve natural district, an area that has already been heavily ambient lightscapes, which are natural disturbed. Consequently, stabilization and resources and values that exist in the absence rehabilitation of the historic structures would of human-caused light. The lighthouse is a have a negligible impact on shoreline source of unnatural light on the island that accretion and erosion on the island. Any cannot be shielded because of its function as disturbances associated with implementation an aid to navigation. Although the Cape of these actions would be localized, and would Lookout Lighthouse does impact the darkness not likely exceed the level of disturbance of the night sky, these impacts are not related normally experienced on the island as a result to the actions of this plan. of wind, wave, or storm action. For these reasons, geologic resources were dismissed as Sources of artificial light within the historic an impact topic for this plan. village could include lights shining outwards from within the structures as well as a limited Hazardous Materials. NPS public health and number of outside lights. Under this plan the hazardous materials specialists conducted an seashore would limit the use of artificial environmental audit of the historic district outdoor lighting to that which is necessary for (BHATE Environmental Engineers and basic safety requirements, and would ensure Scientists, 2004). During the investigation, it that all sources of artificial light are shielded to was discovered that fuel or oil had leaked into the maximum extent practicable. The the ground within one of the detached garages additional light from within the historic village / sheds in the central village area. The source could have an indirect impact on wildlife at of the contamination may have been from a the seashore, such as nesting sea turtles. former parked vehicle or from a leaking fuel / Visitors would also receive information on oil container. Measures are in progress to responsible use of artificial lights to minimize remove or otherwise mitigate the contami- environmental impacts. With implementation nated soils. Impacts from the leak or spill of the mitigation measures described above, would be long-term, adverse, and negligible to the impacts on the natural lightscape would be minor. negligible. Because artificial light use in the village would be managed to limit impacts, this The historic district’s residences may be topic is not be evaluated further in this plan. found to contain lead paint and asbestos shingles or siding that could, in some Prime and Unique Farmland. Prime circumstances, pose potential health risks. farmlands are lands that have the best However, the national seashore staff would combination of physical and chemical ensure that all historic properties proposed characteristics for producing food, feed, for occupancy, adaptive use and interpreta- forage, fiber, and oilseed crops and are also tion are free of hazardous materials and meet available for these uses. Prime farmlands have
15 PURPOSE AND NEED FOR ACTION the soil quality, growing season, and moisture Soils. Soil resources are managed according to supply needed to produce economically sus- NPS Management Policies 2006 (4.8.2.4). Soils tained high yields of crops when treated and for the entire national seashore are mapped managed according to acceptable farming and discussed in detail in the “Soil Survey of methods, including water management. In the Outer Banks, North Carolina” (USDA, general, prime farmlands have an adequate SCS, 1977). The soils are characterized as and dependable water supply from having poor load-bearing capacity, instability precipitation or irrigation, a favorable due to wind and water activity, and high water temperature and growing season, acceptable tables. Soils on the island could have severe acidity or alkalinity, acceptable salt and limitations for development. The proposed sodium content, and few or no rocks. They actions related to the stabilization and are permeable to water and air. Prime rehabilitation of the historic structures would farmlands are not excessively erodible or have a negligible impact on soils because these saturated with water for a long period of time, actions would occur in areas that have been and they either do not flood frequently or are previously disturbed. protected from flooding. Two different approaches to wastewater Unique farmlands are other farmland than treatment are proposed in this plan. The no- prime farmland used for the production of action alternative and alternative A propose specific high-value food and fiber crops. They the use of septic systems while alternatives B have the special combination of soil quality, through E propose development of a central- location, growing season, and moisture supply ized treatment facility. In either case, some needed to economically produce sustained soil disturbance would occur. The degree of high quality and/or high yields of a specific soil disturbance cannot be quantitatively or crop when treated and managed according to qualitatively evaluated at this time because the acceptable farming methods. type and location of either system has not yet been determined. Developing the infrastruc- The 1981 Farmland Protection Policy Act (PL ture for a centralized facility would likely 97-98) was passed to minimize the extent to disturb more soil than the septic systems. which federal programs contribute to the However, since much of the disturbance unnecessary and irreversible conversion of would likely occur within the historic district, farmland to nonagricultural uses. Provisions the difference between the two approaches of the act also ensure that federal programs may not be substantially different. Before are administered in a manner that (to the developing either type of treatment facility, extent practicable) is compatible with the site-specific planning and additional farmland protection programs and policies of compliance activities would be completed as state and local governments and private necessary. For this reason the impacts on soils entities. are not further analyzed in this document.
The National Park Service consulted with the Soundscape Management. NPS Management Department of Agriculture’s Natural Resource Policies 2006 (4.9) and Director’s Order 47 Conservation Service, the agency responsible (“Soundscape Preservation and Noise for implementation of the policy. The Natural Management”) recognize the importance of Resource Conservation Service stated that natural soundscapes as park resources. The there are no prime or unique farmlands within natural soundscape is defined as the natural the Cape Lookout National Seashore or sounds in a park that exist in the absence of within the historic district. Therefore, prime any human-produced or associated sounds. and unique farmland was dismissed as an The policies and director’s order call for the impact topic. National Park Service to preserve, to the
16 Introduction greatest extent possible, the natural sounds within the historic district once soundscapes of parks, to restore degraded rehabilitation was completed. Visitors to the soundscapes to natural conditions whenever historic district would likely hear the voices possible, and to protect natural soundscapes and sounds of other visitors engaging in day- from degradation due to noise. “Noise” is use tours of the district or staying overnight in defined as unwanted sound that interferes rental structures. The presence of these with an activity or disturbs the person hearing human-caused sounds would be consistent them. All human sound could be considered with conditions existing during the district’s “noise” when compared to the natural period of significance and would have soundscape. This does not, however, imply negligible adverse impacts on the visitor that all human sounds are inappropriate or experience. Vegetation and topography would unacceptable. The range of acceptable help to absorb human-caused sounds in the human-caused sounds is variable, and what is village. acceptable in the vicinity of a visitor center may be unacceptable in a campground or a Implementation of this plan would have backcountry area. negligible impacts on the natural soundscape. The anticipated sounds of human activities The natural soundscape of Cape Lookout within the historic district associated with National Seashore includes all of the naturally short-term construction and long-term visitor occurring sounds such as calling birds and the use would be in keeping with the district’s surf, as well as the quiet associated with still historical use and would not affect the nights. As with all NPS resources, the oppor- soundscape of other areas of the national tunity to experience natural soundscapes is seashore. For this reason soundscape part of the visitor experience. The natural management has been dismissed as an impact soundscape of the national seashore contri- topic for this plan. butes to a positive visitor experience and is a direct or indirect component of why many Wetlands. All wetlands in national park people visit the national seashore. system units are protected and managed in accordance with Executive Order 11990 Under the action alternatives, the structures in (“Protection of Wetlands”), NPS Director’s the historic district would be rehabilitated for Order 77-1 and its accompanying procedural occupancy. Rehabilitating the structures handbook, and NPS Management Policies 2006 would introduce construction-related noise to (4.6.5). This guidance requires the National the natural soundscape. These adverse Park Service to protect and enhance natural impacts on the natural soundscape would be wetland values and requires the examination limited both in terms of duration and of impacts on wetlands. It is NPS policy to geographic area. During the period of avoid affecting wetlands and to minimize structural rehabilitation few visitors would be impacts when they are unavoidable. present in the historic village, and the existing vegetation and topography would absorb There are two types of marsh areas on South much of the sounds of construction. Core Banks, and both occur on the sound Construction-related sounds would end once side. High salt marshes are flooded in spring the rehabilitation work was complete. The and during storm tides. The dominant vegeta- overall adverse impacts on the natural tion type is black needlerush (Juncus soundscape from construction activities roemerianus) and saltmeadow cordgrass would be negligible and short term. (Spartina patens). Low salt marshes are flooded daily at mean low tide. Typically, the The actions proposed under alternatives B predominant vegetation is composed of dense through E would increase human-caused stands of salt marsh cordgrass (Spartina
17 PURPOSE AND NEED FOR ACTION alternaflora). Spike grass (Salicornia, Distichlis Some actions, however, do not require a spicata) and sea lavender (Limonium statement of findings. As noted previously, the caroliniamum) are also present. Salt marshes locations of Jetty Worker Houses No. 1 and depend on cyclic inundation to accumulate No. 2 are integral to their historical peat, sediments and nutrients. Tidal action significance. Section 5.6 of the procedural also prevents the invasion of upland species manual allows structures to remain in their and therefore maintains monotypic stands of current locations if relocation to a site less cordgrass. damaging to wetlands is not practicable. Because the locations of the structures are In March 2005 the U.S. Army Corps of integral to their historical significance, Engineers delineated wetland areas on the relocating the structures is not practicable. southern end of South Core Banks between Other acceptable actions that do not require the Baker-Holderness House (Casablanca) preparation of a statement of findings include and the 1907 Lighthouse Keeper’s Quarters. development of trails and boardwalks where Four structures are currently located in or the primary purpose is public education, near designated wetlands on the island: the interpretation, or enjoyment of wetland Baker-Holderness House (Casablanca), Jetty resources. Maintenance, repair, or renovation Worker Houses No. 1 and No. 2, and the 1907 of an existing structure also do not require Keeper’s Quarters. The keeper’s quarters, if preparation of a statement of findings [see determined to be structurally sound, would be Procedural Manual 77-1, sections 4.2 (A)(1)(a) moved back to its original location south of and (A)(1)(f)]. If the structures are used solely the lighthouse and out of the designated for interpretation, then it is likely that a wetland. The Baker-Holderness House is built boardwalk would be constructed to enable on higher ground, and use of the house as part visitors to reach the structures. If the of a concession operation could have some structures are rehabilitated for occupancy, impact on the surrounding landscape. The then a minor deviation from the existing type and level of impacts would differ based footprint (total of 0.1 acre or less) is allowed on the proposed future use of the structure. under section4.2 (A)(1)(f) to allow for changes in construction codes or safety standards. Jetty Worker House No. 1 is within a Consequently, preparation of a statement of designated wetland, and Jetty Worker House findings is not required at this time. Before No. 2 is partially within the wetland. Because implementation of this plan, additional the two Jetty Worker houses are historic and compliance would be completed as necessary. their locations are integral to their Although a statement of findings is not significance, moving the houses to a different required, the National Park Service would location to avoid wetlands would diminish comply with other requirements of their historical integrity. If the Jetty Worker Procedural Manual 77-1 as necessary. houses were rehabilitated for occupancy, the wetlands could be affected during the Wilderness. There is no federally designated rehabilitation process and installation of the wilderness on the Core Banks or at Cape utility infrastructure, including pipelines for Lookout, although nearby Shackleford Banks the centralized wastewater treatment system. is identified as proposed wilderness. The NPS Procedural Manual 77-1 (“Wetlands project area at Cape Lookout does not fit the Protection”) describes NPS policies and characteristics of wilderness as defined by procedures for protection of wetlands in park NPS Management Policies 2006 (section units. It is NPS policy to prepare a statement 6.2.1.1). Therefore, wilderness is dismissed as of findings when a proposed action has the an impact topic for this plan. potential to adversely affect wetlands.
18 Introduction
Wildlife. A wide variety of species are sup- amount of vegetation would be removed to re- ported by the diverse habitats at Cape create the historic views. No vegetation type Lookout National Seashore. Birds are the would be completely removed from the most numerous inhabitants with more than project area. 275 identified species that use the national seashore for resting, nesting, and feeding, and It is possible that some individuals from the as a wintering or migratory rest stop. The local bird, mammal, or reptile populations national seashore has been designated a could be lost during project implementation. Globally Important Bird Area by the American The loss of these limited numbers of Bird Conservancy. As development along the individuals would have negligible effects on Atlantic coastline has increased and the local population of any resident species on fragmented habitat in other areas, Cape the island, and would not likely adversely Lookout, as part of the Atlantic Flyway, has affect ecosystem functions or biodiversity. become an important stopover point for Therefore, impacts on wildlife have been migrating birds. There are no large mammals dismissed as an impact topic for this plan. on the barrier islands, but smaller native species such as the least shrew and the Threatened and Endangered Species. The northern short tail shrew are present. Non- Endangered Species Act requires federal native mammal species include the nutria, agencies to ensure that their activities do not house cat, house mouse, and the Norway rat. jeopardize the existence of any endangered or Other resident species include amphibians threatened species or result in the destruction and reptiles — tree frogs, toads, turtles, and or adverse modification of critical habitat of snakes, as well as mosquitoes and other insect such species. Consultation with the U.S. Fish pests in the wet areas of the dunes, grasslands, and Wildlife Service (USFWS) and North and marshes. Ring-necked pheasant, an Carolina Department of Natural Resources introduced species, can be found in some identified a number of threatened or shrub thickets. endangered species, or state species of concern. The primary wildlife concern for this project would be habitat disturbance. The action Cape Lookout is one of the southernmost alternatives require localized removal of habitats of the piping plover (Charadrius vegetation from around the historic structures melodius). The plover nests on the beach to reduce the hazards from fire and storms as north of the historic district from May well as to enhance historic views. These through the end of August. NPS monitoring actions would primarily affect nonnative and protection efforts include locating all shade trees and shrubs, and would be guided nests, erecting predator barricades around the by the recommendations of the “Cape nests, and attempting to determine factors Lookout Village Cultural Landscape Report that affect productivity. NPS staff continues to (draft).” The recommendations in that report address USFWS guidelines for protecting recognize the value of conserving wildlife piping plover by closing nesting and foraging habitat in the national seashore, and suggest areas for chicks to both visitors and vehicles. approaches for limiting the impacts on wildlife habitat that could potentially result from Cape Lookout is part of the northernmost modification to vegetation within the historic nesting range for the loggerhead sea turtle district. The extent of any vegetation removal (Caretta caretta), a threatened species. The sea would be limited, and management efforts turtles nest at night on the berms of wide, would focus first on removal of aged and sloping beaches in or near the base of the diseased plant material. The vegetation would dunes. Sea turtles have nested within the be removed in phases, and the minimum boundaries of the historic district at Cape
19 PURPOSE AND NEED FOR ACTION
Lookout. In 1994 NPS staff documented the primarily during the fall migration. The Outer nests of both a leatherback sea turtle Banks king snake (Lampropeltis getula) may be (Dermochelys coriacea) and a green sea turtle found in shrub thickets behind the dunes, and (Chelonis mydas), both endangered species. the Carolina diamondback terrapin The national seashore adopted the U.S. Fish (Malaclemys sipedon williamengelsi) resides in and Wildlife Service’s Beach Index Program, the salt marsh. which requires NPS staff to monitor the beach daily from June 1 through August 15. The NPS staff indicated that no species of state Beach Index Program covers all species of concern are known to feed, nest, or rest in the turtles that nest on the barrier islands. Nests historic district. After consultation with the and hatchlings are protected from both U.S. Fish and Wildlife Service in July, 2006, it vehicles and visitors through education and was determined that none of the federally beach closures. listed threatened or endangered species that inhabit, nest, feed, or rest on the island would The seabeach amaranth (Amaranthus pumilus) be directly impacted by the actions proposed is the only threatened plant species at Cape under this plan because none of the proposed Lookout National Seashore. This plant grows actions would occur in areas where in the dunes, and the annual population varies threatened or endangered species nest, feed, greatly from year to year depending on or rest on the island. Specifically, no actions storms. NPS staff conduct an annual survey of are proposed for the beach or berm environ- the seabeach amaranth to determine the size ments where piping plovers and sea turtles of the population. At present, the staff does would nest. Some of the actions proposed not anticipate that additional protection under this plan could have an indirect effect efforts would be necessary to maintain the on the sea turtle and piping plover nesting population. sites. Under this plan there could be an increase in artificial nighttime light in the There are several state species of concern that historic village. In addition, increased food inhabit, nest, feed, or rest in Cape Lookout sources and trash for scavenging in the National Seashore. These include the little historic district could increase the number of blue heron (Egretta caerulea), snowy egret potential predators in and around the nesting (Egretta thula), glossy ibis (Plegadis falcinellus), area for both species. As discussed in the and tricolored heron (Egretta tricolor) which section on lightscape management, the NPS are residents of marsh areas. Gull-billed terns staff would limit the use of artificial outdoor (Sterna nilotica), the common tern (Sterna lighting to minimal levels necessary for basic hirundo), and the least tern (Sterna antillarum) safety requirements, and would ensure that all nest in colonies on the beach/berm among outdoor lighting is shielded to the maximum scattered low dunes. The black skimmer extent practicable. In addition, measures (Ryncops niger) also nests in colonies on the would be implemented to limit the availability beach among scattered low dunes. Logger- of food sources for scavengers. These head shrikes (Lanius ludovicanus ludovicanus) measures could include but would not be are occasional visitors found inland on the limited to frequent collection of refuse and islands. Brown pelicans (Pelecanus occiden- installation of animal-proof receptacles. NPS talis) feed offshore but do not nest in the staff would continue to implement measures national seashore. The peregrine falcon (Falco to protect piping plover and turtle nests from peregrinus) was recently delisted under the predation. Endangered Species Act but is still a state species of concern. The peregrine falcon uses With mitigation, the proposed actions are not the marshes, tidal flats, and dunes in the likely to have an adverse affect on threatened national seashore for feeding and resting, and endangered species. None of the
20 Introduction proposed actions would have greater impacts • The impacts on the natural and physical on threatened and endangered species than environment that would occur due to any the actions currently being proposed under of the alternatives would not dispropor- the Interim Protected Species Management Plan tionately adversely affect any minority or / Environmental Assessment (March 2006). low-income population or community, or This plan, currently undergoing Section 7 be specific to such populations or review by U. S. Fish and Wildlife Service, communities. would direct management of threatened and • The alternatives would not result in any endangered species at Cape Lookout. None of identified effects that would be specific to the actions proposed under the alternatives in any minority or low-income community. this document would change the way protected species are managed. For this Impacts on the socioeconomic factors because reason, threatened and endangered species of the implementation of actions proposed in are not analyzed further in this environmental the alternatives would be short term, assessment. negligible, and beneficial and would occur mostly in the geographic area near the national seashore. Such impacts would not be Environmental Justice expected to substantially alter the physical and social structure of nearby communities. Executive Order 12898, “Federal Actions to Therefore environmental justice was Address Environmental Justice in Minority dismissed as an impact topic. Populations and Low-Income Populations,” requires all federal agencies to incorporate environmental justice into their missions by Socioeconomic Environment identifying and addressing disproportionately high and adverse human health or environ- Under this plan, Cape Lookout National mental effects of their programs and policies Seashore is evaluating approaches to reusing on minorities and low-income populations structures in the historic district. The historic and communities. structures would be stabilized under all alternatives. The principal difference between For the purpose of fulfilling Executive Order the alternatives would be the type of use and 12898 in the context of the National Environ- the number of structures that would be mental Policy Act, the alternatives addressed adaptively reused. The proposed approaches in this plan were assessed during the planning range from rehabilitating a small number of process. It was determined that none of these structures for use by NPS staff and volunteers, alternatives would result in disproportionately to rehabilitation of nearly all structures to also high direct or indirect adverse effects on any allow visitor use under a concessions contract minority or low-income population or or a historic leasing program. Given the community. The following information current budget constraints, implementation of contributed to this conclusion: the plan would necessarily be phased over time. The structures would continue to be • The developments and actions in the stabilized as the necessary resources become alternatives would not result in any available. Because of the intermittent nature of identifiable human health effects. the funding, the stabilization work would Therefore, there would be no direct or continue sporadically. Rehabilitation of the indirect effects on human health within structures (including installation of the utility any minority or low-income population or infrastructure and wastewater treatment community. system) would also likely be phased. The national seashore would purchase local
21 PURPOSE AND NEED FOR ACTION materials to the extent practicable and would operation would likely attract more people also use some day labor. from outside the region than a historic leasing program. It is likely that stabilization, There is a high degree of construction and rehabilitation for adaptive use, and occupancy development occurring in Carteret County of the structures would have a beneficial and the tidewater region of coastal North impact on the local economy. Because Carolina. The limited work that would occur implementation of the plan would be phased in the national seashore under the current over time, it is not possible to quantitatively plan would have a modest impact on the local assess the impact of the plan at this time. economy. If the structures not used by NPS Given the current rate of growth in the region, staff and volunteers become part of a the limited scale of this project, while concession contract, the impact on the local beneficial, would likely have negligible economy would be greater than if the impacts on the local and regional economy. structures were part of a historic leasing Consequently, socioeconomics was dismissed program. This is because a concessions as an impact topic for this plan.
22 THE ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE
THE ALTERNATIVES
NO-ACTION ALTERNATIVE relocated. Limited vegetation clearing would be carried out near the structures primarily to Under the no-action alternative, the national reduce the risk from fire and hazard tree seashore would stabilize 13 historic structures limbs. in the village area (four of which have already been stabilized due to emergency conditions — the Lewis-Davis House, the Guthrie- ALTERNATIVE A Ogilvie House, Fishing Cottage No. 2, and the Seifert-Davis House). Two additional In common with all alternatives, the national structures would be removed — the Setzer- seashore would stabilize 13 historic structures Dawsey House (determined noncontributing in the village area (four of which have already to the district’s historical significance) and been stabilized due to emergency conditions Fishing Cottage No. 1 (determined noncon- — the Lewis-Davis House, the Guthrie- tributing and also condemned for occupancy). Ogilvie House, Fishing Cottage No. 2, and the Selected noncontributing outbuildings in the Seifert-Davis House). Two additional district would also be removed. The non- structures would be removed — the Setzer- contributing Les and Sally Moore House / Dawsey House (determined noncontributing Store would continue to be used by the non- to the district’s historical significance) and profit Cape Lookout Environmental Fishing Cottage No. 1 (determined noncon- Education Center, and the main U.S. Coast tributing and also condemned for occupancy). Guard Station building at the south end of the Selected noncontributing outbuildings in the district would also continue to be used by the district would also be removed. The noncon- nonprofit North Carolina Maritime Museum. tributing Les and Sally Moore House / Store Space for two NPS staff / volunteers would be would continue to be used by the nonprofit developed in the 1873 Lighthouse Keeper’s Cape Lookout Environmental Education Quarters at the lighthouse complex. Center and possibly other nonprofit organizations. The main U.S. Coast Guard None of the stabilized village structures would Station building at the south end of the district be further rehabilitated for occupancy or use would continue to be used by the nonprofit by the National Park Service, concessions North Carolina Maritime Museum and operators, or private leaseholders. The possibly other nonprofit organizations. Space structures would not be connected to potable for two NPS staff / volunteers would be water systems, although they would be developed in the 1873 Lighthouse Keeper’s connected to electrical service. Electricity is Quarters at the lighthouse complex. currently delivered from the mainland at Harkers Island and is available in the Three of the village structures would be lighthouse area. The electrical system would rehabilitated for NPS use and occupancy, and be extended to the village area, and would three would be renovated for interpretation to likely require upgrading or replacement to the public. (Individual buildings might be used meet the additional operational needs of the for more than one purpose, i.e., public inter- village. Two new septic systems would also be pretation and NPS administrative use, so this constructed. The locations for these have not does not mean six structures would be been selected. Limited interpretation of the rehabilitated/renovated.) Rehabilitation structures’ exteriors would be provided, would conform with the Architectural although visitors would not be able to enter Barriers Act Accessibility Standards (May the structures. No structures would be 2006). None of the structures would be used
25 ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE by concession operators or private lease- NPS staff / volunteers would be developed in holders. The structures would be connected the 1873 Lighthouse Keeper’s Quarters at the to potable water piped from an existing well lighthouse complex. near the lighthouse. Electricity is currently delivered from the mainland at Harkers Island Four of the village structures would be and is available in the lighthouse area. The rehabilitated for NPS use and occupancy, and electrical system would be extended to the seven would be renovated for interpretation village area and would likely require up- to the public. (Individual buildings might be grading or replacement to meet the additional used for more than one purpose, i.e., public operational needs of the village. Three new interpretation and NPS administrative use, so septic systems would be constructed. The this does not mean 11 structures would be locations for these have not been selected. rehabilitated/renovated.) Rehabilitation would conform with the Architectural In accordance with the recommendations of Barriers Act Accessibility Standards (May the “Draft Cultural Landscape Report” (Wiss, 2006). None of the structures would be used Janney, Elstner Associates, Inc. and John by concessions operators or private lease- Milner Associates, Inc., 2005), selective vege- holders. The structures would be connected tation clearing would be undertaken to pro- to potable water piped from an existing well in vide a semblance of the more open views that the lighthouse area. Electricity is currently existed during the district’s period of delivered from the mainland at Harkers Island significance. and is available in the lighthouse area. The electrical system would be extended to the village area and would likely require upgrad- ALTERNATIVE B ing or replacement to meet the additional operational needs of the village. A new central In common with all alternatives, the national wastewater treatment system would be con- seashore would stabilize 13 historic structures structed. The location of the system has not in the village area (four of which have already been selected. been stabilized due to emergency conditions — the Lewis-Davis House, the Guthrie- As shown on the Structures to be Relocated, Ogilvie House, Fishing Cottage No. 2, and the Alternatives B, C, D, and E map, three struc- Seifert-Davis House). Two additional tures (the 1887 Life-Saving Station, the 1924 structures would be removed — the Setzer- Life-Saving Station Boat House, and the 1907 Dawsey House (determined noncontributing Lighthouse Keeper’s Quarters) would be re- to the district’s historical significance) and located to their original site locations (con- Fishing Cottage No. 1 (determined noncon- tingent on the outcome of environmental and tributing and also condemned for occupancy). structural feasibility studies). Selected noncontributing outbuildings in the district would also be removed. The noncon- In accordance with the recommendations of tributing Les and Sally Moore House / Store the “Draft Cultural Landscape Report” (Wiss, would continue to be used by the nonprofit Janney, Elstner Associates, Inc. and John Cape Lookout Environmental Education Milner Associates, Inc., 2005), selective Center and possibly other nonprofit organiza- vegetation clearing would be undertaken to tions. The main U.S. Coast Guard Station provide a semblance of the more open views building at the south end of the district would that existed during the district’s period of continue to be used by the nonprofit North significance. Carolina Maritime Museum and possibly other nonprofit organizations. Space for two
26 The Alternatives
27 ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE
ALTERNATIVE C additional operational needs of the village. A new central wastewater treatment system In common with all alternatives, the national would be constructed. The location of the seashore would stabilize 13 historic structures system has not been selected. in the village area (four of which have already been stabilized due to emergency conditions As shown on the Structures to be Relocated, — the Lewis-Davis House, the Guthrie- Alternatives B, C, D, and E map, three struc- Ogilvie House, Fishing Cottage No. 2, and the tures (the 1887 Life-Saving Station, the 1924 Seifert-Davis House). Two additional Life-Saving Station Boat House, and the 1907 structures would be removed — the Setzer- Lighthouse Keeper’s Quarters) would be relo- Dawsey House (determined noncontributing cated to their original site locations (contin- to the district’s historical significance) and gent on the outcome of environmental and Fishing Cottage No. 1 (determined noncon- structural feasibility studies). tributing and also condemned for occupancy). Selected noncontributing outbuildings in the In accordance with the recommendations of district would also be removed. The noncon- the “Draft Cultural Landscape Report” (Wiss, tributing Les and Sally Moore House / Store Janney, Elstner Associates, Inc. and John would continue to be used by the nonprofit Milner Associates, Inc., 2005), selective Cape Lookout Environmental Education vegetation clearing would be undertaken to Center and possibly other nonprofit provide a semblance of the more open views organizations. The main U.S. Coast Guard that existed during the district’s period of Station building at the south end of the district significance. would continue to be used by the nonprofit North Carolina Maritime Museum and possibly other nonprofit organizations. Space ALTERNATIVE D (PREFERRED) for two NPS staff / volunteers would be developed in the 1873 Lighthouse Keeper’s In common with all alternatives, the national Quarters at the lighthouse complex. seashore would stabilize 13 historic structures in the village area (four of which have already Four of the village structures would be been stabilized due to emergency conditions rehabilitated for NPS use and occupancy, and — the Lewis-Davis House, the Guthrie- eight would be renovated for interpretation to Ogilvie House, Fishing Cottage No. 2, and the the public. Three structures would be Seifert-Davis House). Two additional struc- rehabilitated for use by private leaseholders. tures would be removed — the Setzer-Dawsey (Individual buildings might be used for more House (determined noncontributing to the than one purpose, i.e., public interpretation, district’s historical significance) and Fishing leaseholders, and NPS administrative use, so Cottage No. 1 (determined noncontributing this does not mean 15 structures would be and also condemned for occupancy). Selected rehabilitated/renovated.) Rehabilitation noncontributing outbuildings in the district would conform with the Architectural would also be removed. The noncontributing Barriers Act Accessibility Standards (May Les and Sally Moore House / Store would 2006). The structures would be connected to continue to be used by the nonprofit Cape potable water piped from an existing well in Lookout Environmental Education Center the lighthouse area. Electricity is currently and possibly other nonprofit organizations. delivered from the mainland at Harkers Island The main U.S. Coast Guard Station building at and is available in the lighthouse area. The the south end of the district would continue to electrical system would be extended to the be used by the nonprofit North Carolina village area and would likely require Maritime Museum and possibly other upgrading or replacement to meet the nonprofit organizations. Space for two NPS
28 The Alternatives staff / volunteers would be developed in the ALTERNATIVE E 1873 Lighthouse Keeper’s Quarters at the lighthouse complex. In common with all alternatives, the national seashore would stabilize 13 historic structures Up to four of the village structures would be in the village area (four of which have already rehabilitated for NPS use and occupancy, and been stabilized due to emergency conditions eight would be renovated for interpretation to — the Lewis-Davis House, the Guthrie- the public. At a minimum, eight structures Ogilvie House, Fishing Cottage No. 2, and the would be rehabilitated for use by a Seifert-Davis House). Two additional concessions operator. (Individual buildings structures would be removed — the Setzer- might be used for more than one purpose, i.e., Dawsey House (determined noncontributing public interpretation and NPS administrative to the district’s historical significance) and use, so this does not mean 20 structures would Fishing Cottage No. 1 (determined noncon- be rehabilitated/ renovated.) Rehabilitation tributing and also condemned for occupancy). would conform with the Architectural Selected noncontributing outbuildings in the Barriers Act Accessibility Standards (May district would also be removed. The noncon- 2006). The structures would be connected to tributing Les and Sally Moore House / Store potable water piped from an existing well in would continue to be used by the nonprofit the lighthouse area. Electricity is currently Cape Lookout Environmental Education delivered from the mainland at Harkers Island Center and possibly other nonprofit and is available in the lighthouse area. The organizations. The main U.S. Coast Guard electrical system would be extended to the Station building at the south end of the district village area and would likely require would continue to be used by the nonprofit upgrading or replacement to meet the North Carolina Maritime Museum and additional operational needs of the village. A possibly other nonprofit organizations. Space new central wastewater treatment system for two NPS staff / volunteers would be would be constructed. The location of the developed in the 1873 Lighthouse Keeper’s system has not been selected. Quarters at the lighthouse complex.
As shown on the Structures to be Relocated, Up to four of the village structures would be Alternatives B, C, D, and E map, three rehabilitated for NPS use and occupancy, and structures (the 1887 Life-Saving Station, the eight would be renovated for interpretation to 1924 Life-Saving Station Boat House, and the the public. At a minimum, eight structures 1907 Lighthouse Keeper’s Quarters) would be would be rehabilitated for use by either a relocated to their original site locations concessions operator or private leaseholders. (contingent on the outcome of environmental (Individual buildings might be used for more and structural feasibility studies). than one purpose, i.e., public interpretation, leaseholders, and NPS administrative use, so In accordance with the recommendations of this does not mean 20 structures would be the “Draft Cultural Landscape Report” (Wiss, rehabilitated/renovated.) Rehabilitation Janney, Elstner Associates, Inc. and John would conform with the Architectural Milner Associates, Inc., 2005), selective Barriers Act Accessibility Standards (May vegetation clearing would be undertaken to 2006). The structures would be connected to provide a semblance of the more open views potable water piped from an existing well in that existed during the district’s period of the lighthouse area. Electricity is currently significance. delivered from the mainland at Harkers Island and is available in the lighthouse area. The electrical system would be extended to the village area and would likely require
29 ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE upgrading or replacement to meet the (contingent on the outcome of environmental additional operational needs of the village. A and structural feasibility studies). new central wastewater treatment system would be constructed. The location of the In accordance with the recommendations of system has not been selected. the “Draft Cultural Landscape Report” (Wiss, Janney, Elstner Associates, Inc. and John As shown on the Structures to be Relocated, Milner Associates, Inc., 2005), selective Alternatives B, C, D and E map, three vegetation clearing would be undertaken to structures (the 1887 Life-Saving Station, the provide a semblance of the more open views 1924 Life-Saving Station Boat House, and the that existed during the district’s period of 1907 Lighthouse Keeper’s Quarters) would be significance. relocated to their original site locations
30
MITIGATIVE MEASURES
Mitigative measures are analyzed as part of the • Visitors would be informed in advance of alternatives. These have been developed to proposed construction and directed away lessen the potential adverse impacts of the from construction areas to avoid safety proposed actions and/or to present measures hazards and minimize visitor use conflicts. the National Park Service would follow in the event of unexpected occurrences during the • Actions to rehabilitate the cultural course of construction. landscape in the village historic district would be phased over time to minimize • Should construction unearth previously the impact on vegetation. National undiscovered archeological resources, seashore managers would consult with work would be stopped in the area of the natural and cultural resource specialists discovery, and the national seashore staff before any decision to thin or clear would consult with the state historic vegetation to ensure adequate protection preservation officer and the Advisory of natural and cultural resources, sensitive Council on Historic Preservation, as habitat, and ecological processes. necessary, according to 36 CFR 800.13, Post Review Discoveries. In the unlikely • An engineering feasibility assessment event that human remains are discovered would precede relocation of three historic during construction, provisions outlined structures (the 1887 Life-Saving Station, in the Native American Graves Protection the 1924 Life-Saving Station Boat House, and Repatriation Act (1990) would be and the 1907 Lighthouse Keeper’s followed. Quarters) to their original site locations to ensure that relocation would not result in • All sensitive cultural resources not structural damage or pose unacceptable specifically identified for structural risks to the historic integrity of the rehabilitation would be clearly marked for structures. All necessary measures would avoidance to protect them from be taken to adequately protect and construction disturbance. All workers stabilize the structures during transit. would be informed of the penalties for Relocation would be monitored by illegally collecting artifacts or intentionally cultural resource specialists and/or other damaging cultural resources. Workers specialists (e.g., structural engineers) to would also be informed of the correct further ensure that damage does not occur procedures to follow in the event during transit and that appropriate previously unknown resources are protection measures are undertaken as uncovered during construction. necessary.
• Before any construction activity, • Best management practices would be used construction zones would be clearly during construction to minimize soil delineated with stakes or by other means disturbance and the potential for erosion to confine activity to the minimum area in the project area. Erosion control required for construction. All protection methods could include (but not be limited measures would be clearly stated in the to) filter cloth and silt fencing. construction specifications, and workers would be instructed to avoid conducting • To avoid introduction of exotic plant activities beyond the construction zone. species, no hay bales or other organic material would be used in erosion control measures. Standard measures that involve
31 ALTERNATIVES, INCLUDING THE PREFERRED ALTERNATIVE
only inorganic materials (e.g., silt fences treated effluent and limit the introduction and/or sand bags) would be used. of treated freshwater into the estuarine environment in efforts to minimize • The national seashore would ensure that localized changes in water chemistry. all historic properties proposed for occupancy, adaptive use, and • The seashore staff would limit the use of interpretation are free of hazardous artificial outdoor lighting to that necessary materials and meet accepted health and for basic safety requirements, and the staff safety standards before use or occupation. would also ensure that all sources of artificial light are shielded to the • Fueling of all machinery would be maximum extent practicable. Visitors conducted only in approved equipment would also receive information on staging areas away from sensitive water responsible use of artificial lights to bodies. Any spills of hazardous materials, minimize environmental impacts. fuel, etc., would be cleaned up immediately to prevent contamination or • The national seashore staff would collect discharge into groundwater aquifers, refuse regularly and install animal-proof wetland areas, or other water bodies. collection devices to prevent wildlife from eating the refuse. • The national seashore would comply with applicable state and local regulations to • Plant materials used for revegetation minimize the impacts on water quality efforts would be native to the national associated with wastewater management seashore. in the Cape Lookout Village Historic District. Best available technologies would be used to minimize nitrogen levels in
32
IDENTIFICATION OF THE PREFERRED ALTERNATIVE
Alternative D was selected as the preferred Alternative D achieved the highest score of alternative. the six alternatives evaluated, and it is the NPS preferred alternative. The alternatives were All alternatives were evaluated using a process rated on attributes relating to each of the called “Choosing by Advantages” (CBA). This above-listed factors and the advantages of the process evaluated alternatives by identifying attributes were compared. and comparing the relative advantages of each according to a set of criteria. The costs of implementing the alternatives were also evaluated. For the purposes of cost The CBA process determines which alterna- estimating, general assumptions were made tive provides the greatest advantage. To regarding the extent of the work to be ensure a logical and trackable process, the undertaken. These assumptions are carried criteria used to evaluate the alternatives were across all alternatives so that comparable costs derived from the primary issues and impact can be considered for each alternative. Costs topics. identified in this document are not intended to replace more detailed consideration of Alternatives were evaluated to see how well operational needs and final construction they would: estimates. They should not be used as a basis for funding requests or budgeting. Cost • Maximize protection of cultural and information is summarized in table 1 (below). natural resources (e.g., the Cape Lookout These costs relate only to NPS funding and do Village Historic District, wetlands, and not include costs by other public or private vegetation). entities for items of work that support the • Provide for quality visitor experiences alternatives. (comfort, convenience, interpretation, and understanding of resources, etc.) • Provide for public health and safety.
TABLE 1: SUMMARY OF COMPARATIVE COSTS (FISCAL YEAR 06 DOLLARS)
No Action Alternative Alternative Alternative Alternative Alternative A B C D E (Preferred) Capital Costs $2,090,942 $3,213,942 $6,607,942 $7,264,242 $7,264,242 $7,264,242 Operational $15,000 $15,000 $24,000 $48,000 $48,000 $48,000 Costs Staffing $50,000 $50,000 $110,000 $154,000 $154,000 $154,000
33
ENVIRONMENTALLY PREFERRED ALTERNATIVE
The environmentally preferred alternative is environmental impacts entailed by the defined by the Council on Environmental construction and operation of these systems Quality as the alternative that best meets the as required by the action alternatives. following criteria or objectives, as set out in the National Environmental Policy Act (sec. All the alternatives provide for stabilization of 101): contributing buildings in the historic district. However, alternatives D and E best fulfill cri- 1) Fulfill the responsibilities of each terion 4 by further proposing that rehabilita- generation as trustee of the environment tion be carried out for the largest number of for succeeding generations. buildings (up to four for NPS use and eight, at 2) Ensure for all Americans a safe, healthful, a minimum, for a concessions operator or productive, and aesthetically and private leaseholders). Whereas stabilization culturally pleasing surroundings. would remove safety hazards, and provide the 3) Attain the widest range of beneficial uses buildings initial short-term protection by of the environment without degradation, means of structural reinforcement and risk of health or safety, or other measures to make them weather-resistant, undesirable and unintended rehabilitation accompanied by adaptive use consequences. and occupancy would more effectively ensure 4) Preserve important historic, cultural, and the long-term preservation of these natural aspects of our national heritage properties. and maintain, whenever possible, an environment that supports diversity and Alternatives C, D, and E each provide for the variety of individual choice. greatest number of structures in the historic 5) Achieve a balance between population district that would be interpreted to the public and resource use that will permit high (eight structures), and alternatives D and E standards of living and a wide sharing of also maximize the number of structures (mini- life’s amenities. mum of eight) that would be available for 6) Enhance the quality of renewable public use and occupancy. Alternative D, resources and approach the maximum however, best meets criterion 5 by calling for a attainable recycling of depletable concessions operator to manage the leased resources. properties, thereby making them available to a wider segment of the visiting population than All the alternatives equivalently address would otherwise be expected if some were criteria 1, 2, and 6 by providing for the privately leased. preservation of historic district structures and cultural landscape features in a safe, healthful, As evaluated in this document, the preferred and environmentally responsible and alternative (D) is the environmentally sustainable manner. The no-action alternative preferred alternative. The preferred best meets criterion 3 because it does not call alternative best meets the six criteria for rehabilitation and occupancy of structures presented in the National Environmental in the historic district, and consequently Policy Act (section 101). would not require the increased level of supporting utility systems and associated
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ALTERNATIVES CONSIDERED AND DISMISSED FROM FURTHER ANALYSIS
There were no additional alternatives for the subsequently dismissed from further reuse of structures in the Cape Lookout evaluation. Village Historic District that were
35
TABLE 2. SUMMARY OF ALTERNATIVES AND IMPACTS
NO-ACTION ALTERNATIVE A ALTERNATIVE B ALTERNATIVE C ALTERNATIVE D — PREFERRED ALTERNATIVE E Thirteen historic structures would be Same as no-action alternative. Same as no-action alternative. Same as no-action alternative. Same as no-action alternative. Same as no-action alternative. stabilized, and two noncontributing structures (along with selected noncontributing outbuildings) would be removed. The Cape Lookout Environmental Education Center and the North Carolina Maritime Museum would continue to use existing buildings. Space for NPS staff / volunteers would be provided in the 1873 lighthouse keeper’s quarters.
Village structures would not be Three village structures would be Four village structures would be Four village structures would be Four village structures would be Up to four village structures would rehabilitated for overnight rehabilitated for NPS use, and three rehabilitated for NPS use, and seven rehabilitated for NPS use, and eight rehabilitated for NPS use, and eight be rehabilitated for NPS use, and occupancy or connected to potable would be renovated for public would be renovated for public would be renovated for public would be renovated for public eight would be renovated for public water lines, but would be connected interpretation (some structures interpretation (some structures interpretation. Three structures interpretation. At a minimum, eight interpretation. At a minimum, eight to electrical service and two new could be used for more than one could be used for more than one would be rehabilitated for use by structures would be rehabilitated for structures would be rehabilitated for septic systems. Limited exterior purpose). Structures would be purpose). Structures would be private leaseholders. (Some use by a concessions operator. use by either a concessions operator interpretation of the structures connected to potable water and connected to potable water and structures could be used for more (Some structures could be used for or private lease holders. (Some would be provided. No structures electrical systems, and three new electrical systems, and a central than one purpose). Structures would more than one purpose). Structures structures could be used for more would be relocated. Limited septic systems. No structures would wastewater treatment system. be connected to potable water and would be connected to potable than one purpose). Structures would vegetation clearing would be be relocated. electrical systems, and a central water and electrical systems, and a be connected to potable water and implemented to reduce risk from wastewater treatment system. central wastewater treatment electrical systems, and a central fire and hazard tree limbs. system. wastewater treatment system.
Three historic structures would be Three historic structures would be Three historic structures would be Three historic structures would be relocated to original site locations. relocated to original site locations. relocated to original site locations. relocated to original site locations.
Selective vegetation clearing would Selective vegetation clearing would Selective vegetation clearing would Selective vegetation clearing would Selective vegetation clearing would be carried out to partially restore be carried out to partially restore be carried out to partially restore be carried out to partially restore be carried out to partially restore historic views. historic views. historic views. historic views. historic views. IMPACT TOPICS Cultural Structures and Cultural Structures and Cultural Structures and Cultural Structures and Cultural Structures and Cultural Structures and Cultural Resources Landscape — Long-term beneficial Landscape — Long-term beneficial Landscape — Long-term beneficial Landscape — Long-term beneficial Landscape — Long-term beneficial Landscape — Long-term beneficial impacts on the historic district’s impacts on the historic district’s impacts on the historic district’s impacts on the historic district’s impacts on the historic district’s impacts on the historic district’s contributing buildings and cultural contributing buildings and cultural contributing buildings and cultural contributing buildings and cultural contributing buildings and cultural contributing buildings and cultural landscape would be expected from landscape would be expected from landscape would be expected from landscape would be expected from landscape would be expected from landscape would be expected from structural stabilization. Long-term stabilization and rehabilitation stabilization and rehabilitation stabilization and rehabilitation stabilization and rehabilitation stabilization and rehabilitation minor adverse impacts on the undertakings and vegetation undertakings, vegetation clearing to undertakings, vegetation clearing to undertakings, vegetation clearing to undertakings, vegetation clearing to district would result from not clearing to enhance historic views. enhance historic views, and enhance historic views, and enhance historic views, and enhance historic views, and relocating three historic buildings to Long-term minor adverse impacts relocation of three historic buildings relocation of three historic buildings relocation of three historic buildings relocation of three historic buildings original site locations and carrying on the district would result from not to original site locations. Long-term to original site locations. Long-term to original site locations. Long-term to original site locations. Long-term out only limited vegetation clearing. relocating three historic buildings to beneficial cumulative impacts would beneficial cumulative impacts would beneficial cumulative impacts would beneficial cumulative impacts would Long-term beneficial cumulative original site locations. Long-term be anticipated. be anticipated. be anticipated. be anticipated. impacts would be anticipated. beneficial cumulative impacts would be anticipated.
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NO-ACTION ALTERNATIVE A ALTERNATIVE B ALTERNATIVE C ALTERNATIVE D — PREFERRED ALTERNATIVE E Cultural Archeological resources — Archeological resources — Archeological resources — Archeological resources — Archeological resources — Archeological resources — Resources Archeological surveys would Archeological surveys would Archeological surveys would Archeological surveys would Archeological surveys would Archeological surveys would (cont.) precede any ground-disturbing precede any ground-disturbing precede any ground-disturbing precede any ground-disturbing precede any ground-disturbing precede any ground-disturbing activities. In the unlikely event that activities. In the unlikely event that activities. In the unlikely event that activities. In the unlikely event that activities. In the unlikely event that activities. In the unlikely event that significant archeological resources significant archeological resources significant archeological resources significant archeological resources significant archeological resources significant archeological resources are identified that could not be are identified that could not be are identified that could not be are identified that could not be are identified that could not be are identified that could not be avoided, an appropriate mitigation avoided, an appropriate mitigation avoided, an appropriate mitigation avoided, an appropriate mitigation avoided, an appropriate mitigation avoided, an appropriate mitigation strategy would be developed in strategy would be developed in strategy would be developed in strategy would be developed in strategy would be developed in strategy would be developed in consultation with the state historic consultation with the state historic consultation with the state historic consultation with the state historic consultation with the state historic consultation with the state historic preservation officer. Potential long- preservation officer. Potential long- preservation officer. Potential long- preservation officer. Potential long- preservation officer. Potential long- preservation officer. Potential long- term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse impacts would occur to impacts would occur to impacts would occur to impacts would occur to impacts would occur to impacts would occur to archeological resources that could archeological resources that could archeological resources that could archeological resources that could archeological resources that could archeological resources that could not be avoided, and potential minor not be avoided, and potential minor not be avoided, and potential minor not be avoided, and potential minor not be avoided, and potential minor not be avoided, and potential minor to moderate adverse cumulative to moderate adverse cumulative to moderate adverse cumulative to moderate adverse cumulative to moderate adverse cumulative to moderate adverse cumulative impacts would also be anticipated. impacts would also be anticipated. impacts would also be anticipated. impacts would also be anticipated. impacts would also be anticipated. impacts would also be anticipated. Natural Vegetation — Short-term Vegetation — Short-term Vegetation — Short-term Vegetation — Short-term Vegetation — Short-term Vegetation — Short-term Resources negligible adverse impacts on negligible adverse impacts on negligible adverse impacts on negligible adverse impacts on negligible adverse impacts on negligible adverse impacts on vegetation would result from vegetation would result from vegetation would result from vegetation would result from vegetation would result from vegetation would result from removing some vegetation to create removing some vegetation to create removing some vegetation to create removing some vegetation to create removing some vegetation to create removing some vegetation to create defensible space around the historic defensible space around the historic defensible space around the historic defensible space around the historic defensible space around the historic defensible space around the historic structures. The long-term impacts of structures and to enhance historic structures and to enhance historic structures and to enhance historic structures and to enhance historic structures and to enhance historic removing and/or thinning aged, views. The long-term impacts of views. The long-term impacts of views. The long-term impacts of views. The long-term impacts of views. The long-term impacts of diseased, or invasive vegetation removing and/or thinning aged, removing and/or thinning aged, removing and/or thinning aged, removing and/or thinning aged, removing and/or thinning aged, materials would be beneficial for diseased, or invasive vegetation diseased, or invasive vegetation diseased, or invasive vegetation diseased, or invasive vegetation diseased, or invasive vegetation remaining vegetation, and negligibly materials would be beneficial for materials would be beneficial for materials would be beneficial for materials would be beneficial for materials would be beneficial for adverse for vegetation completely remaining vegetation, and negligibly remaining vegetation, and negligibly remaining vegetation, and negligibly remaining vegetation, and negligibly remaining vegetation, and negligibly removed. Installation of electrical adverse for vegetation completely adverse for vegetation completely adverse for vegetation completely adverse for vegetation completely adverse for vegetation completely lines would have long-term removed. Installation of electrical removed. Installation of electrical removed. Installation of electrical removed. Installation of electrical removed. Installation of electrical negligible adverse impacts on and potable water lines would have and potable water lines and a and potable water lines and a and potable water lines and a and potable water lines and a vegetation. There would be no long-term negligible adverse wastewater treatment system would wastewater treatment system would wastewater treatment system would wastewater treatment system would cumulative impacts on vegetation. impacts on vegetation. There would locally remove or disturb some locally remove or disturb some locally remove or disturb some locally remove or disturb some be no cumulative impacts on vegetation, resulting in long-term vegetation, resulting in long-term vegetation, resulting in long-term vegetation, resulting in long-term vegetation. negligible adverse impacts on negligible to minor adverse impacts negligible to minor adverse impacts negligible to minor adverse impacts vegetation. There would be no on vegetation. There would be no on vegetation. There would be no on vegetation. There would be no cumulative impacts on vegetation. cumulative impacts on vegetation. cumulative impacts on vegetation. cumulative impacts on vegetation.
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NO-ACTION ALTERNATIVE A ALTERNATIVE B ALTERNATIVE C ALTERNATIVE D — PREFERRED ALTERNATIVE E Natural Water Quality — The long-term Water Quality —- The long-term Water Quality — The long-term Water Quality — The long-term Water Quality — The long-term Water Quality — The long-term Resources adverse impacts on water quality adverse impacts on water quality adverse impacts on water quality adverse impacts on water quality in adverse impacts on water quality in adverse impacts on water quality in (cont.) from use of two septic systems would be negligible to minor from the increased number of NPS the surficial aquifer associated with the surficial aquifer associated with the surficial aquifer associated with would be negligible. There would be because the septic systems would staff and volunteers that could be occupancy of the structures would occupancy of the structures would occupancy of the structures would no cumulative impacts on water be designed to minimize the accommodated in the village would be negligible. In the long term, the be negligible. In the long term, the be negligible. In the long term, the quality. concentration of nitrogen in the be negligible. There would be a volume of effluent discharged into volume of effluent discharged into volume of effluent discharged into effluent. The long-term adverse beneficial impact on terrestrial the aquifer would have a beneficial the aquifer could have both the aquifer could have both a impacts of the freshwater effluent systems from the effluent impact on terrestrial systems by beneficial and adverse impacts on beneficial and adverse impact on would be negligible because the discharged into the surficial aquifer. increasing the availability of seashore habitats. The impact on habitats at the seashore. The impact volume generated would not be The long-term adverse impact on freshwater available to vegetation terrestrial systems would be on terrestrial systems would be expected to adversely affect the freshwater / saltwater interface on the island and potentially beneficial because of the increase in beneficial because of the increase in seashore habitats. There would be and the estuarine or marine systems through the freshwater wetlands. fresh water available to vegetation fresh water available to vegetation no cumulative impacts on water would be negligible. There would be The long-term adverse impact on and potentially to wildlife. If the and potentially to wildlife. If the quality. no cumulative impacts on water the freshwater / saltwater interface volume of effluent discharged volume of effluent discharged quality. and the estuarine or marine systems exceeded the assimilative capacity of exceeded the assimilative capacity of would be negligible. There would be the aquifer, there could be a long- the aquifer, there could be a long- no cumulative impacts on water term adverse impact on estuarine term adverse impact on estuarine quality. and marine systems. Because the and marine systems. Because the effect would be localized, the affect would be localized the adverse impacts would be negligible adverse impacts would be negligible to minor. There would be no to minor. There would be no cumulative impacts on water cumulative impacts on water quality. quality. National Long-term minor to moderate Long-term minor to moderate Long-term moderate adverse Long-term moderate adverse Long-term moderate adverse Long-term moderate adverse Seashore adverse impacts on national adverse impacts on national impacts on national seashore impacts on national seashore impacts on national seashore impacts on national seashore Operations seashore operations would be seashore operations would be operations would be expected from operations would be expected from operations would be expected from operations would be expected from expected from the increased expected from the increased the increased requirements for the increased requirements for the increased requirements for the increased requirements for requirements for facilities requirements for facilities facilities management staff to facilities management staff to facilities management staff to facilities management staff to management staff to implement management staff to implement implement and oversee preservation implement and oversee preservation implement and oversee preservation implement and oversee preservation and oversee preservation and oversee preservation undertakings in the historic district. undertakings in the historic district. undertakings in the historic district. undertakings in the historic district. undertakings in the historic district. undertakings in the historic district. Elevated costs associated with the Elevated costs associated with the Elevated costs associated with the Elevated costs associated with the Elevated costs associated with the Elevated costs associated with the actions would have implications for actions would have implications for actions would have implications for actions would have implications for actions would have implications for actions would have implications for budgetary allocations for operations budgetary allocations for operations budgetary allocations for operations budgetary allocations for operations budgetary allocations for operations budgetary allocations for operations and staffing requirements. Long- and staffing requirements. Long- and staffing requirements. Long- and staffing requirements. Long- and staffing requirements. Long- and staffing requirements. Long- term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse term minor to moderate adverse cumulative impacts would be cumulative impacts would be cumulative impacts would be cumulative impacts would be cumulative impacts would be cumulative impacts would be anticipated. anticipated. anticipated. anticipated. anticipated. anticipated. Visitor Use Long-term beneficial impacts would Long-term beneficial impacts would Long-term beneficial impacts would Long-term beneficial impacts would Long-term beneficial impacts would Long-term beneficial impacts would and occur to visitor use and experience occur to visitor use and experience occur to visitor use and experience occur to visitor use and experience occur to visitor use and experience occur to visitor use and experience Experience due to opportunities to see due to improved interpretive due to substantially improved due to substantially improved due to substantially enhanced due to substantially enhanced inter- stabilized historic structures. Short- opportunities and selective interpretive opportunities and interpretive opportunities, selective interpretive opportunities, selective pretive opportunities, selective vege- term minor to moderate adverse vegetation clearing to enhance selective vegetation clearing to vegetation clearing to enhance vegetation clearing to enhance tation clearing to enhance views, impacts would result from views. Short-term minor to enhance views. Short-term minor to views, and the limited availability of views, and the greater availability of and the availability of historic struc- construction-related noise and moderate adverse impacts would moderate adverse impacts would historic structures to private lease- historic structures to visitors under a tures to private leaseholders or to disruption in the district. Overall result from construction-related result from construction-related holders for overnight or extended- concessions operation for overnight other visitors under a concessions beneficial cumulative impacts would noise and disruption in the district. noise and disruption in the district. stay occupancy. Short-term minor to or extended-stay occupancy. Short- operation for extended-stay or be anticipated Overall beneficial cumulative Overall beneficial cumulative moderate adverse impacts would term minor to moderate adverse overnight occupancy. Short-term impacts would be anticipated. impacts would be anticipated. result from construction-related impacts would result from minor to moderate adverse impacts noise and disruption in the district. construction-related noise and would result from construction- Overall beneficial cumulative disruption in the district. Overall related noise and disruption in the impacts would be anticipated. beneficial cumulative impacts would district. Overall beneficial cumulative be anticipated. impacts would be anticipated.
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AFFECTED ENVIRONMENT
INTRODUCTION
The following discussion highlights resources specific to alternatives analyzed for this that could be affected by the planning and project. design that is specific to the alternatives and is
43
CULTURAL RESOURCES
HISTORIC DISTRICT Quarters, and the 1924 Life-Saving Station Boat House) were relocated to their current Structures and Buildings sites near the central part of the district. Of the latter three buildings, the lighthouse keeper’s The Cape Lookout Village Historic District quarters retains the greatest degree of interior (see Historic District Structures map) consists and exterior integrity. of 27 contributing resources and was listed on the National Register of Historic Places in In 2004 the National Park Service (Historical June 2000. Ten of these contributing Architecture, Cultural Resources Division, resources were previously listed on the Southeast Regional Office) prepared historic national register as part of separate structure reports for nine of the historic nominations for the historic Cape Lookout buildings within the district: the Life-Saving Lighthouse Station (listed in 1972) and U.S. Station, the Life-Saving Station Boat House, Coast Guard Station (listed in 1989). The the 1907 Lighthouse Keeper’s Quarters, and district’s significance derives from being “a six of the former private residences. In unique Outer Banks community that accordance with NPS policy requirements, flourished as a fishing village and life-saving such reports are intended to provide primary station from the 1870s to about 1920, and then guidance for the treatment and use of historic endured as a resort for hardy vacationers until buildings and structures. The reports include becoming part of the Cape Lookout National detailed developmental histories, treatment Seashore in 1966” (National Register and use recommendations, and records of nomination, 2000, Section 8, p.19). treatment to ensure that character-defining features and materials are preserved to the For the most part, the district’s former private greatest extent possible during project houses retain integrity of location, design, planning and implementation. In general, the setting, feeling, and association. This has report recommendations for the district occurred despite the cape’s harsh environ- support restoration of building exteriors and ment, which required repeated building rehabilitation of interiors to accommodate maintenance and a legacy of buildings continued residential use and visitor undergoing adaptation for different functions. interpretive objectives. The condition of the buildings ranges from poor to good, with varying degrees of As identified in the national register nomina- deterioration exhibited as a result of tion, the district’s period of significance spans weathering and lack of regular repairs and the years from 1857, when construction began maintenance over an extended period. on the lighthouse, to approximately 1950 Although most of these houses have had when private home construction on the cape exterior sheathing replaced (commonly with ceased following the state of North Carolina’s asbestos shingles or plywood), and some of acquisition of land for a proposed state park. the original porches have been enlarged All of the historic resources within the district and/or partially enclosed and screened, the are owned by the National Park Service. The overall form of the houses remains intact. In following historic properties are identified as 1958, in keeping with the long tradition of contributing resources in the national register cape structures being moved to meet changing nomination: functional needs and shifting shorelines, three government buildings (the 1887 Life-Saving Station, the 1907 Lighthouse Keeper’s
44 Cultural Resources
Lighthouse Station Complex. collectively significant as a type adapted to the Outer Banks environment.) Cape Lookout Lighthouse (1857–1859) — The 163-foot-tall lighthouse is a Seifert-Davis House (Coca-Cola conical brick structure painted in a House) (ca. 1928) — This building is a distinctive pattern of alternating black one-story frame house with a low and white diagonal diamonds. An iron pyramidal hipped roof and shed porch stair constructed in 1867 spirals to the top along the front and west sides. The house of the lighthouse. The original first-order rests on cast concrete piers. The interior Fresnel lens displayed a fixed light that is defined by a large open public space, could be seen up to 18 miles offshore in with low partition walls separating the good weather. The current light (first four corner bedrooms. The house was automated in 1950) consists of two originally built for the C.A. Seifert family, rotating beacons and is operated and owners of a Coca-Cola distributorship in maintained by the U.S. Coast Guard. New Bern, N.C. It was later owned (in the Ownership of the light was transferred to 1950s) by Harry Davis, renowned North the National Park Service in 2003. As the Carolina geologist, naturalist, and most prominent structure within the conservation proponent. district, the lighthouse has long been viewed as an icon reflective of the cape’s Jetty Worker’s House No. 1 (ca. 1915) colorful history and continues to serve as — This is a one-story frame, side-gable a vital navigational aid. house (five bays-wide) built on pilings with front and rear engaged porches. Keeper’s Quarters (1873) — This Plywood sheathing covers the original building is a brick two-story, side-gable, board-and-batten exterior walls. A shed- five-bay dwelling located near the roofed two-room addition was construc- lighthouse. Reproduction one-story shed ted to form an ell extending from one end roof porches extend along the front and of the screened porch. The house was rear sides of the building. The interior has originally built to house workers been modified with an altered floor plan, constructing the rock jetty at the west end and replacement stairs and woodwork. of the cape. The Park Service has rehabilitated the building as a visitor center with inter- Jetty Worker’s House No. 2 (ca. 1915) pretive exhibits and public restrooms. — This one-story frame, five bay-wide house built on pilings with engaged front Oil House (1890s) — This is a small flat- and rear porches, is nearly identical to the roofed concrete building near the Jetty Worker’s House No. 1. A shed- lighthouse that was used to store oil for roofed two-bedroom addition was the light until about 1950. constructed to the rear about 1940. The house was also originally built to house Cisterns (late 19th and early 20th workers constructing the rock jetty. century) — There are three brick water storage cisterns near the lighthouse Baker-Holderness House (Casablanca) keeper’s quarters that were once filled by (ca. 1930) — This structure is a two-story drains extending from the quarters. frame, three-bay-wide house with a low- These are no longer used. pitched roof and a large one-story west wing. The house rests on pilings, has Former Private Dwellings. (These buildings white painted weatherboard siding, a are vernacular, utilitarian wood-frame houses large brick chimney at the east end, and a
45 AFFECTED ENVIRONMENT
one-story screened shed porch wrapped kitchen and two small bedrooms. around three sides. As the largest private Constructed by Earl O’Boyle, an house on the cape, it occupies a employee at the Navy’s signal station on prominent location on the southern the cape, it was later acquired by Ralph shore of the inlet. The house was built as Bryant (North Carolina State University a summer cottage by a Mr. Baker about forestry professor) and his wife in the 1930, with subsequent shared ownership 1950s as a vacation cottage. acquired by George Holderness and other families. A front-gable outbuilding Gaskill-Guthrie House (ca. 1915) — (ca. 1930) with weatherboard walls and This is a one-story side-gable frame casement windows is identified as a house, built on pilings, with an engaged contributing resource. porch at the front and rear. Asbestos siding, apparently original, covers the Gordon Willis House (ca. 1950) — This exterior walls. Construction of the house structure is a one-story frame, front-gable is attributed to Clem Gaskill, a Coast house set on pilings. The house was built Guardsman at the Cape Lookout station. in a “modest Craftsman style,” with The house was later acquired by the Cape German exterior siding. A screened front Lookout Development Company, who in porch may be a later addition. Gordon turn sold it to Odell Guthrie (also a Coast Willis built the house on the site of his Guardsman) in 1922. childhood home. Lewis-Davis House (ca. 1920) — This is Fishing Cottage No. 2 (ca. 1950) — This a one-story side-gable frame house with structure is a small one-story, side-gable engaged front porch. The house rests on frame building with German exterior pilings with asbestos shingles on most of siding. The house is set on pilings and has the exterior walls. The front porch was no porch. A rear shed addition partially extended and screened, and a small flat- serves as a garage. roofed addition extends to the rear and south sides. The house was built by Coast Guthrie–Ogilvie House (Luther Guardsman James C. Lewis, by evidently Guthrie House) (ca. 1924) — This combining two old Cape “fish houses.” structure is a one-story side-gable frame Subsequent owner, Carrie Arendell house with engaged front porch. The Davis, kept boarders at the house and house rests on pilings with asbestos wall operated a dance hall/store (that is no shingles. A rear kitchen and bedroom are longer in existence) near the shore during later additions. The house was originally the 1930s and 1940s. built by Luther Guthrie (who worked at the Life Saving Station) for his daughter. U.S. Coast Guard Station Complex. Guthrie sold the house in 1928 to H.J. and R.S. Ogilvie who enlarged the house Main Station (1916-1917) — The station and used it as a summer cottage during is a rectangular two-story frame building the 1930s and 1940s. that served as living quarters and office space for the Coast Guard crew. The O’Boyle-Bryant House (1939) — This is building retains Georgian Revival design a one-story side-gable frame house, set elements, with a five-bay front façade, on pilings, with a front engaged porch. steep gable-on-hip roof crowned by a Exterior walls are covered by asbestos cupola, overhanging boxed eaves, and siding over vertical sheathing. The house clapboard exterior siding. A one-story, contains a combination living room and hipped front porch shelters three
46 Cultural Resources
entrances. The building rests on a full The wood-frame house rests on a high poured concrete foundation and concrete block foundation. The main basement that provides space for coal block of the house is three bays wide and storage and a boiler room. A tall brick one bay deep, with a side-gable roof. A chimney is attached to one side of the central two-story ell with gable roof is at cupola; another chimney has been the rear. Although all original exterior removed. trim remains, original clapboard walls have been replaced by unpainted cedar Galley (1917) — This one-story, side- clapboards. The roof has wide overhang- gabled frame building has wide ing eaves, and decorative ridgeboards overhanging boxed eaves along the front project from each gable end. Sash and rear, flush eaves at the gable ends, windows, side door, front porch, and ell and clapboard siding. A chimney at the porch are all original features. A tall north end was removed, as well as most stuccoed chimney projects from the roof. of a shed porch that was added in 1982. Interior features and finishes are also intact (e.g. wooden floors, beadboarded Equipment Building (1940) — This walls and ceilings, raised panel doors, and Colonial Revival style building has a four- turned stair balusters). bay, side-gable garage set on a concrete slab foundation, wood shake-shingle Life-Saving Station (1887) — This exterior walls, original sash windows, and building originally stood beside the gabled dormers on the front and rear former Coast Guard Station. It is one of elevations. The building housed rescue only two surviving examples of 1880s life- equipment and other vehicles. saving stations in North Carolina (six were constructed during the decade). Cistern (late 19th century) — This tall Most of the first floor originally served as rectangular poured concrete structure the boat room for the station, with the was adapted as a flammable liquids remainder used as living area for the storage shed, with the addition of two crew. Rooms for the crew and storage doors and two roof ventilators. were on the second floor. The building was relocated to its current site in 1958 Relocated Government Buildings. and adapted for private residential use. Despite some loss of integrity due to Lighthouse Keeper’s Quarters (1907) — alteration of the front façade and The six-room, two-story house was built relocation, it retains integrity of materials, as a second lighthouse keeper’s quarters craftsmanship, feeling and association, for the 1859 Cape Lookout light station. and a setting similar to its original site. It was originally located immediately south of the brick 1873 keeper’s quarters. The building is two stories, of rectangular It housed the keeper and his family until frame construction (two bays wide and the 1930s. Military troops occupied the three bays deep), and rests on a stone building during World War II. Dr. and block foundation. The building is a Mrs. Graham Barden purchased the simplified but significant example of Stick house in 1958 from the U.S. Coast Guard, Style architecture (popular from the who had deemed it surplus property. The 1860s to about 1890) with Queen Anne- Bardens moved the house about 1 mile style architectural elements such as a southwest of its original site and used it as gable roof, cross-gables, and hipped-roof a summer cottage. dormers on the side elevations. Kingpost trusses are decorative features below the
47 AFFECTED ENVIRONMENT
gables. The exterior walls of the first floor is the approximately 20-foot-wide concrete front porch elevation are clad in German road that connects the former Coast Guard siding (possibly original). Asbestos Station to the dock at the west hook of the shingles cover the remainder of the first cape. It was constructed during World War II floor walls, with wood shakes over board as part of the temporary harbor defenses of and batten on the second story walls. The Beaufort Inlet. The narrow dirt lane leading front of the building has a one-story from the Coast Guard Station through the porch with plain posts and a shed-roofed concentration of dwellings and on to Cape balcony on the upper level. A large Lookout Bight is known as the “Main Road.” double-door to accommodate life-saving The “Back Road” (considered the oldest on boats was formerly at the front façade, the cape) extends the length of the cape and a lookout tower (also removed) was behind the primary dunes. Several shorter positioned at the top of the roof near the access roads branch off from these primary front of the building. roads to residences and other sites.
Life-Saving Station Boat House (1924) Coast Guard Dock (ca. 1950). This former — This three-bay-wide structure is a Coast Guard dock, about 1,000 feet long, is small one-story frame rectangular constructed of creosote-treated wood pilings building that has a hipped roof. The supporting heavy board decking. Some of the building rests on pilings. Exterior walls original pilings have been replaced with are covered in wood shake shingles. concrete pilings, and concrete has replaced Several original sash windows are visible (or been applied over) a portion of the behind plywood shutters. The boat house decking at the outer end of the dock where is identified as the most altered of the the wood decking has deteriorated. relocated government buildings. However, it retains most of its historic Noncontributing Buildings and Structures. features, including the large boat-room (Altogether, the Cape Lookout Village doors that are concealed within the walls. Historic District national register nomination The building is identified as the last of at identifies 26 buildings and 4 structures as least five boat houses built at the life- having lost historical integrity, and/or to have saving station. In 1958, David Yeomans, a been constructed too recently to fall within long-time cape resident, bought and the period of significance) relocated the building from its original site 500 feet north and remodeled it as a Les and Sally Moore House and Store cottage. Yeomans added the front shed (ca. 1951) — This one-story frame porch. building, five bays wide, is set on pilings and has vertical board sheathing and a Circulation Network (late 19th century to the low-hipped roof. The Moores lived in the present). The loosely connected system of dirt south half and operated a store in the and concrete roads linking the lighthouse north half. Rear additions were complex, cluster of dwellings, and former completed about 1960. The building is Coast Guard Station is identified collectively currently used for operations of the Cape as a contributing structure. Most of the Lookout Environmental Education roadways are of packed dirt and range from Center. wide sandy paths to well-graded roadbeds. The road network is dynamic; some roads Fishing Cottage No. 1 (1950s) — This have become obscured or obliterated in structure, clad in narrow vertical response to shifting sands, severe weather, sheathing and plywood, is a frame fishing and altered use patterns. The only paved road cottage (four bays wide) set on pilings
48 Cultural Resources
with low side-gabled roof and front is reflected in the design, materials, and spatial screened porch. organization of historic buildings and structures. Setzer-Dawsey House (ca. 1940) — This one-story, side-gable house is set on The Draft Cultural Landscape Report for the pilings and has board-and-batten siding Cape Lookout Village (Wiss, Janney, Elstner and sash windows covered with plywood Associates, Inc. and John Milner Associates, shutters. The house has been expanded Inc., 2005) provides detailed cultural and remodeled, with a large brick landscape descriptions, analyses, and chimney on the north gable end, an treatment recommendations. In describing addition on the south end, and a wide the cultural response to the cape’s natural engaged screened porch on the front. resources and environment, the report notes that the Coast Guard Station (on the site of Miscellaneous Outbuildings — Several the original 1887 Life-Saving Station) and of the outbuildings and minor structures most of the houses within the Cape Lookout within the district are noncontributing to Village were sited to take advantage of the the district’s national register signifi- protection afforded by sand dunes and ridges, cance. At the lighthouse station, these and the presence of an unconfined, shallow, include the coal house (destroyed by freshwater aquifer. The 1859 lighthouse and Hurricane Isabel in 2003) and the its nearby 1812 predecessor (no longer extant) summer kitchen, which has lost integrity. were sited on a prominent ridge to command Various small-scale garages, sheds, rental the widest possible view for sailing vessels cabins, docks, and other minor structures seeking safe passage around the cape’s associated with the primary buildings are hazardous shoals. Also, the road circulation also noncontributing. system linking the Coast Guard Station on the south, clustered central village, and Machine Gun Nest Site (1942) — This Lighthouse Station on the north, developed in site is a circular depression ringed by large measure in response to the linear granite rocks at the top of a tall sand dune orientation of dunes and ridges. and is all that remains of a machine gun position constructed by the Coast Guard Human activities at Cape Lookout during the Artillery Corps as part of the World War period of historical significance consisted II harbor defenses of Beaufort Inlet. primarily of navigation and maritime services, commercial fishing, and private residential and recreational use. The first permanent Cultural Landscape structure on the cape was the 1812 lighthouse, which was replaced in 1859 by the current The cultural landscape of the Cape Lookout lighthouse. The Cape Lookout Life-Saving Village Historic District is identified as a Station was established in 1887 to provide aid contributing component of the district’s and rescue service for mariners in distress. national register significance, furthering the Between about 1870 and 1910, the commercial district’s overall integrity of setting, feeling, viability of mullet fishing drew fishermen to and association. The coastal environment of the Core and Shackleford Banks during the the Outer Banks has been dramatically shaped summer and fall. By about 1900, many by prevailing winds, storms, tides, and the fishermen who formerly resided on nearby littoral drift of sand along the shorelines. Shackleford Banks began to settle on Cape These dynamic natural processes have Lookout and established a village that at one strongly influenced patterns of cultural time numbered about 80 people. The adaptation and settlement on the cape, which
49 AFFECTED ENVIRONMENT subsistence of the village community was dunes that are frequently overwashed by supplemented by livestock grazing. storm surges. Further inland the terrain becomes gently undulating with low clumps of With the advent of motorboats, fishermen native grasses, evergreen shrubs, live oaks, began to resettle on the mainland or at myrtles, and cedars. The densest Harkers Island, and the Cape Lookout Village concentrations of woody vegetation are found was nearly abandoned by 1920. About 30 or 40 near the lighthouse, around the Les and Sally houses were moved from Cape Lookout to Moore house (much of which is planted shade Harkers Island at this time. However, seasonal trees and ornamentals), and on higher wind- recreational use of the cape subsequently deposited sand ridges in the central part of the gained popularity, and several of the cape. Stands of loblolly pine exist near the remaining cottages were reused by lighthouse and east of the village, some recreational fishermen and other vacationers. initially planted by the Boy Scouts in the late Cape Lookout was used as part of the United 1960s. Salt marshes fringe low lying areas on States’ coastal defenses during World Wars I the bay side of the cape. and II. Following the establishment of the national seashore in 1966, NPS objectives for Based on historic photos and other evidence, preserving and enhancing resource conditions vegetation within the village residential area and providing for compatible recreational was considerably more open during the activities have influenced patterns of cultural period of significance. A sense of this open use and the landscape of the cape. While landscape is still evident around the 1907 fishing continues primarily as a recreational Keeper’s Quarters, Baker-Holderness House pursuit, livestock grazing no longer occurs, (Casablanca), and the Seifert-Davis House and the Coast Guard Station was (Coca-Cola House). Within about the last 25 decommissioned in 1982. years, unimpeded growth of pines, myrtle, cedars, and other small trees and shrubs have Other than the surviving features of the built obscured more open vistas and reduced the environment, the overall landscape bears little visual connection between most of the overt evidence of human manipulation. district’s buildings and structures. The dense However, some cultural activities have had a vegetation also presents an elevated fire marked impact. Regular dredging of hazard. Historical evidence suggests that the navigational channels through Barden Inlet open character of the landscape during the following the original opening of the inlet by a late 19th and first part of the 20th century may hurricane in 1933 and the construction of itself be largely the result of unrestricted jetties on the western (sound) side of the cape livestock grazing and clearing, because large (ca. 1914 and 1945) have both altered and stands of trees are known to have once existed contributed to the natural shoreline dynamics on the Outer Banks (Wiss, Janney, Elstner of sand deposition and erosion. The shoreline Associates, Inc. and John Milner Associates, between the lighthouse and the bight has Inc. 2005, Chapter 4, pgs.8-9). substantially eroded since the mid-20th century. The recent shoreline stabilization and The Draft Cultural Landscape Report (Wiss, beach renourishment project was undertaken Janney, Elstner Associates, Inc. and John to protect the lighthouse and its associated Milner Associates, Inc. 2005) presents several resources from erosion. treatment recommendations regarding appropriate management of the Cape The east side of the district consists of broad, Lookout cultural landscape. Many of the low sandy beaches fronting the Atlantic recommendations for the historic district are Ocean. The beaches are bordered by frontal provided in response to specific issues such as dunes that give way to sparsely vegetated back restricting vehicle traffic within the village,
50 Cultural Resources removing nonhistoric vegetation, relocating Archeological Resources selected historic buildings, stabilizing the shoreline in the lighthouse vicinity, and The Outer Banks region is thought to have treating pine stands. The recommendations been first occupied at least 3,000 years ago by are based on the Secretary of the Interior’s small groups of semi-nomadic people who Standards for the Treatment of Historic subsisted by hunting, fishing, and gathering. Properties, including the Guidelines for the Little is known of these early inhabitants, and Treatment of Cultural Landscapes. The report archeological evidence of their occupation has proposes a mixed approach of restoration of been largely lost or disturbed as a result of historic buildings and structures within the storms and the dynamic nature of the barrier primary built areas, and rehabilitation in the islands. These factors have substantially remainder of the district. The report compromised the stratigraphy of identified acknowledges that restoration may not be sites, and have likely destroyed other sites. feasible in all instances, and that visitor use NPS archeological investigations conducted at requirements may entail adaptive use or the national seashore in the mid-1970s alterations to selected buildings and landscape identified 10 prehistoric sites, typically found features (Chapter 5, pg. 8). eroding from sand dunes, beach wash, or along the edges of salt marshes. Light to To reestablish a semblance of the former open moderate accumulations of cultural material character of the landscape in the vicinity of were identified, for the most part consisting of the village, the cultural landscape report the remnants of shell middens, nondiagnostic recommends a cautious approach of staged ceramics, and tool fragments. All of the sites and selective removal (focused initially on were evaluated as lacking scientific and aged, diseased, and invasive plants and trees) cultural significance and were therefore while retaining some vegetation to provide ineligible for inclusion in the national register. shade and stabilize landforms. Natural resource specialists would be consulted Two of these ineligible prehistoric sites were before any decision to thin or clear vegetation found within the general area of the current to ensure adequate protection of natural project; a site near the lighthouse consisted of resources, sensitive habitat, and critical a buried shell midden strata with fragments of ecological processes. A cape-wide vegetation sand-tempered pottery, and another site west management plan is also recommended to of the Coast Guard Station dock consisted of a provide comprehensive long-term treatment “Halifax-type” projectile point and a ground and maintenance approaches. Although many stone tool fragment. Both sites had lost of the treatment recommendations are in- integrity due to natural erosion and cluded in the proposed actions and mitigation weathering and/or subsequent construction measures presented in this environmental disturbance (NPS 1976). The North Carolina assessment, other recommendations (e.g., state historic preservation office has noted constructing low walls or foundation outlines that Halifax projectile points are diagnostic of to mark the locations of missing buildings, sites dating between about 4,000 BC to 3,000 reestablishing historic road alignments, and BC Therefore, the project area may have seen possibly removing the 1945 jetty to facilitate human occupation at least 5,000 to 6,000 years erosion control in the lighthouse vicinity) are ago (SHPO letter, July 18, 2005). not proposed at the current time but may be considered pending additional studies and Historic archeological resources have also funding. been identified (and/or may potentially exist) in the national seashore associated with the limited occupation of the Outer Banks during the colonial period; use of Cape Lookout
51 AFFECTED ENVIRONMENT
Bight as a protected harbor for ships seeking Before ground-disturbance associated with refuge during storms; fishing and whaling project activities ( placement of utility lines settlements; military operations associated and waste water treatment systems, relocation with the Revolutionary War, the War of 1812, of selected historic structures, vegetation the Civil War, and World Wars I and II; and clearing, etc.) the National Park Service would the development of the Cape Lookout carry out any necessary archeological lighthouse and life-saving stations. These assessments and surveys in consultation with resources (e.g., former building sites and the North Carolina state historic preservation foundations, refuse dumps, and gun officer to ensure that archeological resources emplacements) have also been damaged by are adequately protected and avoided. Should storms, the movement of the barrier island archeological resources be discovered during landforms, and human activities and the course of the project, the National Park disturbance. Service would ensure that measures are taken to evaluate resource significance and No historic archeological resources undertake site avoidance or data recovery considered eligible for the national register are measures (see the “Mitigative Measures” identified within the current project area. section of this document).
52
NATURAL RESOURCES
The barrier islands comprising Cape Lookout through inlets, and storm overwash. During National Seashore extend from Okracoke storm surges waves remove sand from the Inlet to Beaufort Inlet. They are southwest of ocean beach and deposit it on the sound side the islands of Cape Hatteras National in fan-shaped deltas. This process is known as Seashore on the northeast and Bogue Banks overwash. The effect is compounded if there on the southeast. All of these barrier islands is an unusually high tide. Small islands such as are known as the Outer Banks of North South Core Banks are subject to frequent Carolina. Of the 308 miles of barrier island overwash. Wind transport is only indirectly ocean shoreline in North Carolina, Cape responsible for island migration, but the Lookout National Seashore represents 87% of direction of the prevailing winds does affect the miles in public ownership that are dune formation. The winds at Cape Lookout roadless. Cape Lookout is on the southern run parallel to the shoreline and produce low end of South Core Banks, one of the few dune fields that are more easily penetrated by barrier islands that does not have a bridge overwash. connecting it to the mainland. The width of the islands ranges from 600 feet to 1.75 miles. Overwash of the foredunes caused by storm Except for the highest dunes at Cape Lookout surges transports a large amount of sand. The Point, all of the barrier islands in the national sand deposited on the sound side of the island seashore are within the 100-year floodplain creates overwash fans or terraces. Sometimes and the coastal high hazard area. the waves and their deposits extend across the island to the sound side. This sand movement Barrier islands are highly ephemeral in nature. plays an important role in marsh formation. The ocean is the dominant force of change on these islands, and the forces of wind and wave action are constantly altering the landscape. VEGETATION The landscape on Cape Lookout is composed of low sand dunes that generally do not Vegetation communities arise in response to a exceed 10 feet in height. Strips of grasslands combination of locally present conditions grow behind dunes. Shrub thickets and a few such as elevation, aspect, available water, and hammocks are scattered along the length of exposure to saltwater and wind. A slight the islands. There is an extensive area of salt change in elevation or localized protection marsh on the sound side of the island. Sand from oceanic overwash can directly affect movement changes the appearance of the vegetative composition. Vegetation on the island and shoreline, sometimes by accretion island is divided into a series of distinct but more often by erosion. The ecological zones defined by elevation and predominantly southwest littoral (along-the- degree of exposure to the wind and water. shore) currents, daily wave action, high waves, The 10 ecological zones are: beaches, berms, and wind during storms are constantly moving tidal flats, dunes, open grasslands, closed the sand. grasslands, woodlands, high salt marshes, low salt marshes, and subtidal marine vegetation. Over time, South Core Banks has moved in a The vegetation types grade into one another southerly direction toward the mainland. and often share common species. South Core Banks and Cape Lookout have migrated more than 4 miles landward in the The presence of vegetation can also affect the last 7,000 years. Landward migration is dynamics of depositional processes. For primarily driven by winds, tidal currents example, the cordgrass in the marsh area traps
53 AFFECTED ENVIRONMENT and holds fine particles of sand. Over time, sea oats, love grass (Eragrostis pilosa), and sea- this contributes to marsh formation. The roots pink (Sabitia stellaris). In the project area the of the grasses and other plants also help to closed grasslands are concentrated in the hold sand particles in place. The grasses are middle of the island, adjacent to the particularly important in stabilizing the dunes. woodlands, and between the open grasslands Cultural management of vegetation has also and salt marshes. affected topography on the cape. The loblolly pine forests planted near the lighthouse have Woodlands form in areas protected from likely diminished the movement of sand flooding, salt spray, and overwash. Woodland deposits due to wind. types include shrub thickets and maritime forest. In the shrub-thicket, species include The vegetation patterns in the historic district wax-myrtle (Myrica conifera), red cedar are generally consistent with the vegetation (Juniperous virginiana), marsh elder (Iva patterns across the island. No vegetation frutescens), and live oak (Quercus virginiana). grows on the beach because of the constant Shrublands will succeed to maritime forest if surf. A berm develops between the beach and conditions are favorable, but frequently the dune system. The size of the berm remain in this seral stage because salt spray, environment and vegetation is determined by occasional flooding, and other factors prevent the frequency and severity of storms. A the community from shifting to a forest common species is sea oats (Uniola environment. This may be the case in much of paniculata), which along with other plants the historic district. The Siefert-Davis (Coca traps sand at the drift line to form small dunes. Cola) House is in an open grassland. The These dunes are knocked down or buried village itself is primarily shrub thicket with during storms. Annuals such as the sea beach some areas of shrub savanna and two small amaranth (Amaranthus pumilus) also inhabit areas of maritime forest. the berms. The vegetation helps to create low, scattered dunes in overwash areas. In addition High and low salt marshes are found on the to the sea oats, other species include sound side of the historic district. The marsh saltmeadow cordgrass (Spartina patens) and is flooded by tides from the sound and shifts sand-grass (Triplasis purpuria). very gradually into the maritime grassland. High salt marshes are flooded during the Open grasslands occur in areas subject to the spring and during storm tides. The dominant oceanic overwash and are only sparsely vegetation is saltmeadow cordgrass and black vegetated. Barrier flats and dune slacks are needlerush (Juncus roemerianus). Low salt considered open grasslands. On the barrier marshes are flooded at mean low tide. The flats, the saltmeadow cordgrass and penny- dominant vegetation is typically salt marsh wort (Hydrocotyle bonariensis) predominate. cordgrass (Spartina alternifolia). In a dune slack the wind has scoured out the trough between the dunes down to the water In the project area, the woody species that table. In these areas flat-bottomed marshes would ordinarily comprise the maritime forest can form. Various types of rushes, sedges, and are concentrated around the lighthouse grasses grow in these freshwater marshes. In complex, the Les and Sally Moore complex, the historic district, open grasslands are and on high ground to east and west of the primarily behind the primary dunes and low village. Near the lighthouse the maritime areas subject to overwash. The open forest is primarily stands of loblolly pines. The grasslands grade into closed grasslands on vegetation to the east and west of the village lower terraces that are older, have lower salt includes both woody growth shrub thickets content, and are closer to the water table. The and some loblolly pine. The shrub thickets vegetation in the closed grasslands includes include wax myrtle and bayberry. Although
54 Natural Resources loblolly pine naturally occurs in the maritime in the water table in this aquifer could cause a forest of barrier islands, the trees at Cape change in the saltwater / freshwater interface. Lookout were purposefully planted. Raising the water table could change the Vegetation around the Les and Sally Moore volume of freshwater flow into the estuarine complex consists primarily of shade trees and and marine environment. Lowering the water ornamentals. This vegetation is not native but table could cause salt water intrusion into the could date from the period of significance. aquifer, which could impact the availability of The loblolly pine stands postdate the period freshwater for vegetation and wildlife. Actions of significance. proposed under this plan could impact water quality in this aquifer. Over time, woody vegetation has grown close to the historic structures in the village. This Beneath the unconfined aquifer are two vegetation poses a fire hazard and increases confined aquifers. The depth to ground water the potential for storm damage to the for the upper confined aquifer is 90 to 150 feet structures. In some locations within the and is known to contain freshwater only at historic district, the spread of woody New Drum Inlet. None of the actions vegetation has also obscured scenic vistas that proposed in this plan would impact this existed during the period of significance. aquifer. The depth to groundwater of the lower confined aquifer (the Castle Hayne aquifer) is 150 to 500 feet. In 2004 a new well WATER QUALITY was drilled into this aquifer, and the well was screened at 330 feet. Water from the new well There are three aquifers on the island. The meets federal and state drinking water shallowest of the aquifers is an unconfined, standards. At current visitation levels, this surficial aquifer located just below the surface source of drinking water is considered more of the dunes. Given its proximity to the than adequate to meet the needs of the surface, water quality in the aquifer is low and national seashore. Because the aquifer is unsuitable for drinking. The aquifer is affected confined, saltwater intrusion into this aquifer by overwash from storm surges, which further is not considered an issue at this time. temporarily degrades water quality. Changes
55
NATIONAL SEASHORE OPERATIONS
There are two full-time maintenance Historic Properties. State and county building employees at the national seashore and an code requirements must also be addressed to additional four permanent part-time bring selected properties into compliance with employees. The national seashore hires day occupancy standards. labor crews to complete project work under NPS supervision. The staff is challenged to The maintenance division is responsible for maintain a large number of historic buildings the construction and maintenance of the at Portsmouth Village and Cape Lookout national seashore’s utility system. Most of the Village, located 56 miles apart at the extreme existing septic systems for individual resi- north and south ends of the national seashore. dences have failed or do not meet approved They also have primary maintenance standards. Any replacement wastewater responsibility for seasonal-use cottages at the system must meet all regulatory requirements Great Island and Long Point fishing camps for public heath, safety, and environmental and for visitor use locations on Shackleford protection. Potable water is available for the Banks. All materials and equipment must be district from a well that was recently drilled transported by boat. The harsh maritime near the lighthouse. The water is chlorinated climate of the Outer Banks and frequent storm and treated to comply with safe drinking damage place further demands on the water standards. Electrical service to the maintenance division to carry out structural project area is provided from the mainland repairs and keep utility systems operational. and is available in the lighthouse area. The electrical system would need to be extended In all alternatives, stabilization work will be to the village area and upgraded to adequately done on 13 historic structures in the Cape meet the projected additional demands of Lookout Village area; however, because of NPS staff and visitors if structures are emergency conditions, stabilization has been rehabilitated/ reused for occupancy. The completed for the Lewis-Davis House, the maintenance division also is responsible for Guthrie-Ogilvie House, Fishing Cottage No. 2, vegetation management, which could include and the Seifert-Davis House. In accordance selective vegetation clearing in the historic with NPS policy, the national seashore carries district, depending on which alternative is out preservation treatment of historic selected, for fire protection and to provide structures in accordance with the Secretary of more open views. the Interior’s Standards for the Treatment of
56
VISITOR USE AND EXPERIENCE
The NPS Public Use Statistics Office reported Harkers Island on passenger ferries that arrive 692,857 recreational visitors at Cape Lookout and depart between 8 a.m. and 5 p.m. and use National Seashore in 2005, down from the public dock north of the lighthouse. The 720,216 in 2004. Monthly visitor use has been capacity of the tour boats is increasing, with documented from 1976 to the present. The the largest allowing up to 200 visitors to arrive visitation statistics may be somewhat at one time. A significant number of visitors misleading, because many visitors are local travel to the cape on private boats, including residents who use the picnic area adjacent to kayaks and canoes. NPS headquarters on Harkers Island and do not necessarily travel to the outer islands. Although there are no developed roads, Although the national seashore is open year- vehicles may be driven on the open ocean-side round, the highest day-use visitation occurs beach or on marked sand trails. Vehicle ferry during June to August and is concentrated in service is provided to South Core Banks at the lighthouse area at the southern end of Great Island by a concessions operator in South Core Banks. Recreational fishing, Davis, North Carolina. Designated areas along characterized by overnight camping stays, the beach are subject to seasonal closure for accounts for heavy visitor use during the protection of turtle and shorebird nesting spring and fall (April to May and September to locations and to address other environmental November). Many fishermen drive four- protection and recovery efforts as needed. wheel-drive or all-terrain vehicles south from Private vehicles are not permitted in the the Great Island area to fish along the coast lighthouse area, although visitors may take near the lighthouse and historic district. They commercially operated vehicle tours from the frequently camp near the district or return at visitor orientation area to other parts of the night to cabins at the Great Island camp. historic district. Seasonal waterfowl hunting is also permitted in designated areas at the national seashore. There are no stores or restaurants on the islands, and visitors are advised to transport According to NPS staff observations, most their own food, water, and supplies. Primitive visitors are from the North Carolina region, tent camping is allowed, and some designated including Charlotte and Raleigh-Durham. campsites are available north of the Most travel from Beaufort, Morehead City, or lighthouse.
57
ENVIRONMENTAL CONSEQUENCES
METHODOLOGY FOR ASSESSING IMPACTS
Potential impacts (direct, indirect, and reasonably foreseeable future projects at Cape cumulative effects) are described in terms of Lookout National Seashore and, if applicable, type (are the effects beneficial or adverse?), the surrounding region. These projects context (are the effects site-specific, local, or include the following: even regional?), duration (are the effects short-term, i.e. occurring during the period of • the ongoing structural rehabilitation of the construction or lasting less than one year; lighthouse and planned opening of the long-term, i.e. lasting longer than one year; or structure for daily visitation within the permanent?), and intensity (is the degree or next year severity of effects negligible, minor, moderate, • shoreline stabilization and beach or major). Because definitions of intensity renourishment (completed in the spring of (negligible, minor, moderate, or major) vary 2006) by impact topic, intensity definitions are • Some recommendations from the “Draft provided separately for each impact topic Cultural Landscape Report” are included analyzed in this environmental in the actions presented in the current assessment/assessment of effect. reuse implementation plan — selective vegetation clearing, restoration and rehabilitation of historic buildings, and CUMULATIVE IMPACTS relocation of selected historic buildings to original site locations. Other actions and The Council on Environmental Quality (CEQ) treatments recommended in the report are regulations, which implement the National not included in this present plan but may Environmental Policy Act of 1969 (42 USC be considered in the future — such as 4321 et seq.), require assessment of cumulative reestablishing historic road alignments impacts in the decision-making process for and patterns of circulation, constructing federal projects. Cumulative impacts are new pathways and boardwalks, and defined as replacing missing structures in the lighthouse and coast guard areas. the impact on the environment • Visitor use improvements are in progress which results from the incremental in the lighthouse vicinity as described in impact of the action when added to the Cape Lookout Visitor Orientation Area other past, present, and reasonably Development Concept Plan / Environmental foreseeable future actions regardless Assessment (November, 2005) — a new of what agency (federal or non- comfort station and visitor contact station, federal) or person undertakes such the placement of new water line, other actions (40 CFR 1508.7). construction of a 75-car public parking area, and construction of new sections of Cumulative impacts are considered for all boardwalk. alternatives, including the no-action • development of the Commercial Services alternative. Plan to guide the management of commercial services at the national Cumulative impacts were determined by seashore (in process) combining the impacts of the alternatives with • management of threatened and other past, present, and reasonably endangered species through the Interim foreseeable future actions. Therefore, it was Protected Species Management Plan. necessary to identify other ongoing or
61 ENVIRONMENTAL CONSEQUENCES
IMPACTS ON CULTURAL RESOURCES association. Adverse effects also include AND SECTION 106 OF THE NATIONAL reasonably foreseeable effects caused by the HISTORIC PRESERVATION ACT alternatives that would occur later in time, be farther removed in distance, or be cumulative In this environmental assessment, impacts on (36 CFR 800.5, Assessment of Adverse Effects). cultural resources are described in terms of A determination of no adverse effect means type, context, duration, and intensity, which is there is an effect, but the effect would not consistent with the regulations of the Council diminish the characteristics of the cultural on Environmental Quality (CEQ) that resource that qualify it for inclusion in the implement the National Environmental Policy national register. Act (NEPA). These impact analyses are intended, however, to comply with the CEQ regulations and the National Park requirements of both the National Service’s Conservation Planning, Environmental Policy Act (NEPA) and Environmental Impact Analysis and Decision Section 106 of the National Historic Making (Director’s Order #12) also call for a Preservation Act (NHPA). In accordance with discussion of mitigation, as well as an analysis the Advisory Council on Historic of how effective the mitigation would be in Preservation’s regulations implementing reducing the intensity of a potential impact, Section106 of the National Historic e.g., reducing the intensity of an impact from Preservation Act (36 CFR Part 800, Protection major to moderate or minor. Any resultant of Historic Properties), impacts on cultural reduction in intensity of impact due to resources were also identified and evaluated mitigation, however, is an estimate of the by (1) determining the area of potential effectiveness of mitigation under the National effects; (2) identifying cultural resources Environmental Policy Act only. It does not present in the area of potential effects that are suggest that the level of effect as defined by either listed in or eligible to be listed in the Section106 is similarly reduced. Cultural National Register of Historic Places; (3) resources are nonrenewable resources, and applying the criteria of adverse effect to adverse effects generally consume, diminish, affected national-register-eligible or -listed or destroy the original historic materials or cultural resources; and (4) considering ways to form, resulting in a loss in the integrity of the avoid, minimize, or mitigate adverse effects. resource that can never be recovered. Therefore, although actions determined to Under the Advisory Council’s regulations a have an adverse effect under Section106 may determination of either adverse effect or no be mitigated, the effect remains adverse. adverse effect must also be made for affected national register-listed or eligible cultural A Section106 summary is included in the resources. An adverse effect occurs whenever impact analysis sections. The Section106 an impact alters, directly or indirectly, any summary is an assessment of the effect of the characteristic of a cultural resource that undertaking (implementation of the qualifies it for inclusion in the national alternative) on national-register-eligible or - register, e.g., diminishing the integrity (or the listed cultural resources only, based upon the extent to which a resource retains its historic criterion of effect and criteria of adverse effect appearance) of its location, design, setting, found in the Advisory Council’s regulations. materials, workmanship, feeling, or
62
CULTURAL RESOURCES
HISTORIC DISTRICT (STRUCTURES, agreement in accordance with 36 CFR BUILDINGS, AND CULTURAL 800.6(b). LANDSCAPE)
Definitions of Intensity Levels No-Action Alternative
Negligible: Impact is at the lowest levels of Analysis. Under the no-action alternative, the detection with neither adverse nor National Park Service would stabilize 13 of the beneficial consequences. The former residential buildings contributing to determination of effect for Section106 the significance of the Cape Lookout Village would be no adverse effect. Historic District. (As stated previously, four of Minor: Adverse impact — alteration of a these buildings have been stabilized because feature(s) or landscape pattern(s) would of emergency conditions.) The National Park not diminish the overall integrity of the Service would undertake measures to preserve resource (structure, building, or the existing form, features, and architectural landscape). The determination of effect detailing of these buildings in accordance with for Section106 would be no adverse effect. historic structure reports and the Secretary of Moderate: Adverse impact — alteration of a the Interior’s Standards for the Treatment of feature(s) or landscape pattern(s) would Historic Properties. With particular regard to diminish the overall integrity of the the standards and guidelines for preservation, resource (structure, building, or stabilization measures would include landscape). The determination of effect structural reinforcement, weatherization, and for Section 106 would be adverse effect. A actions required to correct unsafe conditions. memorandum of agreement (MOA) is Two noncontributing buildings (the Setzer- executed among the National Park Dawsey House and Fishing Cottage No. 1) Service and applicable state or tribal would be demolished and removed to historic preservation officer and, if enhance the setting of the historic district. necessary, the Advisory Council on Other noncontributing outbuildings would Historic Preservation in accordance with also be removed. The above actions would 36 CFR 800.6(b). Measures identified in result in long-term beneficial impacts on the the MOA to minimize or mitigate adverse contributing buildings and structures of the impacts reduce the intensity of impact Cape Lookout Village Historic District. under the National Environmental Policy Act from major to moderate. Three buildings (the 1907 Lighthouse Major: Adverse impact — alteration of a Keeper’s Quarters, the 1887 Life-Saving feature(s) or landscape pattern(s) would Station, and the 1924 Life-Saving Station Boat diminish the overall integrity of the House) would remain at their current loca- resource (structure, building, or tions near the central village portion of the landscape). The determination of effect historic district and would not be relocated to for Section 106 would be adverse effect. their original building sites at the lighthouse Measures to minimize or mitigate adverse station and U.S. Coast Guard areas. Conse- impacts cannot be agreed upon and the quently, the current spatial arrangement of National Park Service and applicable contributing buildings would not accurately state or tribal historic preservation officer reflect the arrangement that existed during the and/or Advisory Council are unable to period of historical significance. Although negotiate and execute a memorandum of some limited vegetation thinning would be
63 ENVIRONMENTAL CONSEQUENCES undertaken (primarily to reduce the threat storm surges by the dune system that parallels from fire and hazard tree limbs on the historic the shoreline along the Atlantic side of Cape buildings), dense vegetation would remain Lookout. Although the overall form of the throughout most of the district, obscuring buildings remains relatively intact, natural formerly open views and the visual orientation weathering and deterioration threatens the and connection among the buildings. long-term integrity of many of the buildings, a Continuation of these current conditions situation accentuated in recent years by a lack would result in long-term minor adverse of regular maintenance. Instances of collapsed impacts on the setting of the historic district roofs and other structural problems require and contributing features of the cultural stabilization. Structural deterioration resulting landscape. However, the overall integrity of from these factors has resulted in long-term the district would remain largely intact, and minor to moderate adverse effects on the the qualities contributing to the district’s historic district’s contributing properties. national register significance would not be diminished. Several actions, while not included in this reuse plan, could contribute cumulative Installation of the two septic systems and beneficial impacts to historic properties underground utilities would negligibly affect within the historic district. Among these, the cultural landscape, including the scale and ongoing rehabilitation of the lighthouse would visual relationships among landscape features. continue, with the objective of opening the Any aboveground appurtenances associated structure to the public for interpretive with the septic systems (e.g., air vents or purposes on a daily basis (public access is manhole covers) would be painted a flat, non- limited to selected open house dates under a reflective color. Selective plantings of native reservation system). Shoreline stabilization vegetation as visual screening would further and beach renourishment measures that will permit such appurtenances to blend into the control erosion that formerly threatened the natural landscape. After underground utility stability of the lighthouse and nearby lines are installed, the trenches would be structures have been completed. Recent backfilled and the disturbed ground returned visitor use improvements in the lighthouse to its pre-construction contour and condition. area will also enhance visitor orientation, The topography, vegetation, circulation appreciation, and protection of the historic features, and land use patterns of the land- district. Also, the treatment recommendations scape would remain unaltered by such actions. presented in the “Draft Cultural Landscape Report” for the historic district would further Construction activities associated with enhance and preserve the district’s historic implementation of the no-action alternative setting and built environment. Implementing would introduce short-term visual and the above actions would have long-term atmospheric intrusions into the setting of the beneficial impacts on the historic buildings, historic district, which could affect views, structures, and cultural landscape features vistas, and the quality of the visitor experi- contributing to the historic district. ence. However, such intrusions would be localized and last only as long as construction. The impacts associated with implementing the no-action alternative would result in possible Cumulative Impacts. The structures and long-term minor adverse impacts on the buildings within the historic district are historic district as a result of not relocating particularly vulnerable to natural weathering three historic buildings to their original and the severe climatic conditions associated locations, and the retention of dense vegeta- with the Outer Banks, although they are tion that obscures historic views. However, all protected to a limited degree from winds and preservation and stabilization measures
64 Cultural Resources currently underway or planned for the there would be no impairment of the national district’s contributing buildings would be seashore’s resources or values. carried out in accordance with the Secretary of the Interior’s Standards for the Treatment of Historic Properties, and are therefore expected Alternative A to result in overall long-term beneficial impacts on historic buildings, structures, and Analysis. Under alternative A, the National cultural landscape features. Consequently, the Park Service would stabilize 13 of the former impacts of the other actions described above, residential buildings contributing to the in combination with the impacts of the no- significance of the Cape Lookout Village action alternative, would result in overall Historic District. (As stated previously, four of long-term beneficial cumulative impacts. The these buildings have been stabilized because no-action alternative would contribute a of emergency conditions.) The Park Service comparatively small component of adverse would undertake measures to preserve the impacts to the long-term minor to moderate existing form, features, and architectural beneficial and adverse cumulative impacts of detailing of these buildings in accordance with other past, present, and reasonably historic structure reports and the Secretary of foreseeable actions in the historic district. the Interior’s Standards for the Treatment of Historic Properties. With particular regard to Conclusion. Long-term beneficial impacts on the standards and guidelines for preservation, the Cape Lookout Village Historic District stabilization measures would include struc- would occur from stabilizing 13 contributing tural reinforcement, weatherization, and buildings and removal of selected noncon- actions required to correct unsafe conditions. tributing buildings. Potential long-term minor Also in keeping with the historic structure adverse impacts would occur to the district as reports and the Secretary’s Standards, more a consequence of not relocating three struc- extensive rehabilitation measures would be tures to their original site locations and undertaken for three buildings to bring them carrying out only limited protective vegetation into compliance with the residential occu- clearing. However, these adverse impacts pancy requirements for NPS staff and volun- would not diminish the overall character- teers. Three buildings would be renovated for defining features and significance of the interpretation purposes. Two noncontribu- district, including features of the cultural ting buildings, the Setzer-Dawsey House and landscape. Overall cumulative impacts would Fishing Cottage No. 1, would be demolished be long term and beneficial. This alternative and removed to enhance the setting of the would contribute a small component of historic district. Other noncontributing out- adverse impacts to the minor to moderate buildings would also be removed. The above beneficial and adverse cumulative impacts. actions would result in long-term beneficial impacts on the contributing buildings and Because there would be no adverse impacts on structures of the Cape Lookout Village a resource or value whose conservation is (1) Historic District. necessary to fulfill specific purposes identified in the establishing legislation of Cape Lookout Three buildings (the 1907 Lighthouse National Seashore, (2) key to the natural or Keeper’s Quarters, the 1887 Life-Saving cultural integrity of the national seashore or to Station, and the 1924 Life-Saving Station Boat opportunities for enjoyment of the national House) would remain at their current loca- seashore, or (3) identified as a goal in the tions near the central village portion of the national seashore’s General Management Plan historic district and would not be relocated to or other relevant NPS planning documents, their original building sites at the lighthouse station and U.S. Coast Guard areas.
65 ENVIRONMENTAL CONSEQUENCES
Consequently, the spatial arrangement of with the Outer Banks, although they are contributing buildings would not accurately protected to a limited degree from winds and reflect the arrangement that existed during the storm surges by the dune system that parallels period of historical significance. Continuation the shoreline along the Atlantic side of Cape of these current conditions would result in Lookout. Although the overall form of the long-term minor adverse impacts on the buildings remains relatively intact, natural setting of the historic district. Vegetation weathering and deterioration threatens the thinning would be undertaken in approved long-term integrity of many of the buildings, a areas to reduce the threat of fire near situation accentuated in recent years by a lack buildings selected for occupancy and enhance of regular maintenance. Instances of collapsed views and the visual orientation and connec- roofs and other structural problems require tion that historically existed among the stabilization. Structural deterioration resulting buildings and structures. The overall integrity from these factors has resulted in long-term of the district would remain largely intact, and minor to moderate adverse effects on the the qualities contributing to the district’s historic district’s contributing properties. national register significance would not be diminished. Several actions, while not included in this reuse plan, could contribute cumulative bene- Installation of the three septic systems and ficial impacts to historic properties within the underground utilities would negligibly impact historic district. Ongoing rehabilitation of the the cultural landscape, including the scale and lighthouse would continue, with the objective visual relationships among landscape features. of opening the structure to the public for Any aboveground appurtenances associated interpretive purposes on a daily basis (public with the septic systems (e.g., air vents or access is limited to selected open house dates manhole covers) would be painted a flat, non- under a reservation system). Shoreline stabi- reflective color. Selective plantings of native lization and beach renourishment measures vegetation as visual screening would further that will control erosion that formerly permit such appurtenances to blend into the threatened the stability of the lighthouse and landscape. After underground utility lines are nearby structures have been completed. installed, the trenches would be backfilled and Recent visitor use improvements in the the disturbed ground returned to its pre- lighthouse area will also enhance visitor construction contour and condition. The orientation, appreciation, and protection of topography, vegetation, circulation features, the historic district. Additionally, the treat- and land use patterns would remain unaltered ment recommendations presented in the by such actions. “Draft Cultural Landscape Report” for the historic district will enhance and preserve the Construction activities associated with district’s historic setting and built environ- implementing alternative A would introduce ment. Implementing the above actions would short-term visual and atmospheric intrusions have long-term beneficial impacts on the into the setting of the historic district, which historic buildings, structures, and cultural could affect views, vistas, and the quality of landscape features contributing to the historic the visitor experience. However, such intru- district. sions would be localized and last only as long as construction. Implementing alternative A would result in possible long-term minor adverse impacts on Cumulative Impacts. The structures and the historic district as a result of not relocating buildings within the historic district are three historic buildings to their original loca- particularly vulnerable to natural weathering tions. However, all stabilization and rehabili- and the severe climatic conditions associated tation measures currently underway or
66 Cultural Resources planned for the district’s contributing Section 106 Summary. After applying the buildings would be carried out in accordance Advisory Council on Historic Preservation’s with the Secretary of the Interior’s Standards criteria of adverse effect (36 CFR Part 800.5, for the Treatment of Historic Properties, and Assessment of Adverse Effects), the National are therefore expected to result in overall Park Service concludes that implementation long-term beneficial impacts on historic of alternative A would result in no adverse buildings, structures, and cultural landscape effect on buildings, structures, and cultural features. Consequently, the impacts of the landscape features contributing to the other actions described above, in combination significance of the Cape Lookout Village with the impacts of alternative A, would result Historic District. in overall long-term beneficial cumulative impacts. Alternative A would contribute a comparatively small component of adverse Alternative B impacts to the long-term minor to moderate beneficial and adverse cumulative impacts of Analysis. Under alternative B, the National other past, present, and reasonably Park Service would stabilize 13 of the former foreseeable actions in the historic district. residential buildings contributing to the significance of the Cape Lookout Village Conclusion. Although minor adverse impacts Historic District. (As stated previously, four of to the setting of the historic district would these buildings have been stabilized because occur as a result of not relocating three of emergency conditions.) The Park Service buildings to their original locations, the would undertake measures to preserve the overall impacts to the district under alterna- existing form, features, and architectural tive A would be long term and beneficial. The detailing of these buildings in accordance with character-defining features and qualities historic structure reports and the Secretary of contributing to the district’s significance the Interior’s Standards for the Treatment of would be enhanced. Proposed stabilization Historic Properties. With particular regard to and rehabilitation measures would help the standards and guidelines for preservation, ensure the long-term preservation of the stabilization measures would include district’s contributing properties, and selective structural reinforcement, weatherization, and vegetation removal would improve historic actions required to correct unsafe conditions. views. Overall cumulative impacts would be Also in keeping with the historic structure long term and beneficial. This alternative reports and the Secretary’s Standards, more would contribute a small component of extensive rehabilitation measures would be adverse impacts to the minor to moderate undertaken for four buildings to bring them beneficial and adverse cumulative impacts. into compliance with the residential occupancy requirements for NPS staff and Because there would be no adverse impacts on volunteers. Seven buildings would be a resource or value whose conservation is (1) renovated for interpretation to the public. necessary to fulfill specific purposes identified Two noncontributing buildings, the Setzer- in the establishing legislation of Cape Lookout Dawsey House and Fishing Cottage No. 1, National Seashore, (2) key to the natural or would be demolished and removed to cultural integrity of the national seashore or to enhance the setting of the historic district. opportunities for enjoyment of the national Other noncontributing outbuildings would seashore, or (3) identified as a goal in the also be removed. The above actions would national seashore’s General Management Plan result in long-term beneficial impacts on the or other relevant NPS planning documents, contributing buildings and structures of the there would be no impairment of the national Cape Lookout Village Historic District. seashore’s resources or values.
67 ENVIRONMENTAL CONSEQUENCES
In addition, three buildings (the 1907 the visitor experience. However, such Lighthouse Keeper’s Quarters, the 1887 Life- intrusions would be localized and last only as Saving Station, and the 1924 Life-Saving long as construction. Station Boat House) would be relocated from the central village portion of the historic Cumulative Impacts. The structures and district to their original building sites at the buildings within the historic district are lighthouse station and U.S. Coast Guard areas. particularly vulnerable to natural weathering Relocation of these buildings (contingent on and the severe climatic conditions associated the outcome of environmental and structural with the Outer Banks, although they are feasibility studies) would enhance the spatial protected to a limited degree from winds and arrangement of contributing properties to storm surges by the dune system that parallels more accurately reflect the historical context the shoreline along the Atlantic side of Cape and clustered configuration that existed Lookout. Although the overall form of the during the district’s period of significance. buildings remains relatively intact, natural Vegetation thinning would be undertaken in weathering and deterioration threatens the approved areas to reduce the threat of fire long-term integrity of many of the buildings, a near buildings selected for occupancy and to situation accentuated in recent years by a lack enhance views and the visual orientation and of regular maintenance. Instances of collapsed connection that historically existed among the roofs and other structural problems require buildings and structures. These undertakings stabilization. Structural deterioration resulting would result in long-term beneficial impacts from these factors has resulted in long-term on the setting of the historic district and minor to moderate adverse effects on the contributing features of the cultural historic district’s contributing properties. landscape. The overall integrity of the district would be enhanced, and the qualities Several actions, while not included in this contributing to the district’s national register reuse plan, could contribute cumulative significance would not be diminished. beneficial impacts on historic properties in the historic district. Ongoing rehabilitation of the Sensitive design would ensure that the lighthouse would continue, with the objective construction of the central wastewater of opening the structure to the public for treatment system would minimally affect the interpretive purposes on a daily basis (public scale and visual relationships among access is limited to selected open house dates landscape features, as well as contributing under a reservation system). Shoreline stabili- circulation features and land use patterns. zation and beach renourishment measures Although a specific location for the system is that will control erosion that formerly not yet identified, it would be sited and threatened the stability of the lighthouse and designed to avoid or minimize long-term nearby structures have been completed. adverse visual intrusions on the district. This Recent visitor use improvements in the could be accomplished by incorporating a lighthouse area will also enhance visitor low-profile structural design that would be a orientation, appreciation and protection of contemporary but compatible addition to the the historic district. Additionally, the treat- historic district — similar in massing and scale ment recommendations in the “Draft Cultural yet distinctive in building type and finish. Landscape Report” for the historic district would enhance and preserve the district’s Construction activities associated with historic setting and built environment. implementing alternative B would introduce Implementing the above actions would have short-term visual and atmospheric intrusions long-term beneficial impacts on the historic into the setting of the historic district, which buildings, structures, and cultural landscape could affect views, vistas, and the quality of features contributing to the historic district.
68 Cultural Resources
The impacts associated with implementing Section 106 Summary. After applying the alternative B would result in long-term Advisory Council on Historic Preservation’s beneficial impacts on the historic district as a criteria of adverse effect (36 CFR Part 800.5, result of relocating three government Assessment of Adverse Effects), the National buildings to their original sites, selective Park Service concludes that implementing vegetation clearing to improve views, and the alternative B would result in no adverse effect stabilization and rehabilitation of contributing on buildings, structures, and cultural buildings. Consequently, the impacts of the landscape features contributing to the other actions described above, in combination significance of the Cape Lookout Village with the impacts of alternative B, would result Historic District. in overall long-term beneficial cumulative impacts. Alternative B would contribute a comparatively large component of beneficial Alternative C impacts to the long-term minor to moderate beneficial and adverse cumulative impacts of Analysis. Under alternative C, the National other past, present, and reasonably Park Service would stabilize 13 of the former foreseeable actions in the historic district. residential buildings contributing to the significance of the Cape Lookout Village Conclusion. The overall impacts to the Historic District. (As stated previously, four of historic district under alternative B would be these buildings have been stabilized because long term and beneficial. The character- of emergency conditions.) The Park Service defining features and qualities contributing to would undertake measures to preserve the the district’s significance would be enhanced. existing form, features, and architectural Proposed stabilization, rehabilitation, and detailing of these buildings in accordance with relocation of selected structures would help historic structure reports and the Secretary of ensure the long-term preservation and spatial the Interior’s Standards for the Treatment of orientation of the district’s contributing Historic Properties. With particular regard to properties. Selective vegetation removal the standards and guidelines for preservation, would improve historic views. Overall cumu- stabilization measures would include lative impacts would be long term and bene- structural reinforcement, weatherization, and ficial. This alternative would contribute a large actions required to correct unsafe conditions. component of beneficial impacts to the minor Also in keeping with the historic structure to moderate beneficial and adverse cumulative reports and the Secretary’s Standards, more impacts. extensive rehabilitation measures would be undertaken for four buildings intended for Because there would be no adverse impacts on NPS staff and volunteer use and three a resource or value whose conservation is (1) buildings for use by private leaseholders to necessary to fulfill specific purposes identified bring the buildings into compliance with in the establishing legislation of Cape Lookout residential occupancy requirements. Eight National Seashore, (2) key to the natural or buildings would be renovated for interpreta- cultural integrity of the national seashore or to tion to the public. Two noncontributing opportunities for enjoyment of the national buildings, the Setzer-Dawsey House and seashore, or (3) identified as a goal in the Fishing Cottage No. 1, would be demolished national seashore’s General Management Plan and removed to enhance the setting of the or other relevant NPS planning documents, historic district. Other noncontributing there would be no impairment of the national outbuildings would also be removed. The seashore’s resources or values. above actions would result in long-term beneficial impacts on the contributing
69 ENVIRONMENTAL CONSEQUENCES buildings and structures of the Cape Lookout short-term visual and atmospheric intrusions Village Historic District. into the setting of the historic district, which could affect views, vistas, and the quality of In addition, three buildings (the 1907 the visitor experience during the period of Lighthouse Keeper’s Quarters, the 1887 Life- construction. However, such intrusions would Saving Station, and the 1924 Life-Saving be localized and last only as long as Station Boat House) would be relocated from construction. the central village portion of the historic district to their original building sites at the Cumulative Impacts. The structures and lighthouse station and U.S. Coast Guard areas. buildings within the historic district are Relocation of these buildings (contingent on particularly vulnerable to natural weathering the outcome of environmental and structural and the severe climatic conditions associated feasibility studies) would enhance the spatial with the Outer Banks, although they are arrangement of contributing properties to protected to a limited degree from winds and more accurately reflect the historical context storm surges by the dune system that parallels and clustered configuration that existed the shoreline along the Atlantic side of Cape during the district’s period of significance. Lookout. Although the overall form of the Vegetation thinning would be undertaken in buildings remains relatively intact, natural approved areas to reduce the threat of fire weathering and deterioration threatens the near buildings selected for occupancy and long-term integrity of many of the buildings, a enhance views and the visual orientation and situation accentuated in recent years by a lack connection that historically existed among the of regular maintenance. Instances of collapsed buildings and structures. These undertakings roofs and other structural problems require would result in long-term beneficial impacts stabilization. Structural deterioration resulting on the setting of the historic district and from these factors has resulted in long-term contributing features of the cultural minor to moderate adverse effects on the landscape. The overall integrity of the district historic district’s contributing properties. would be enhanced, and the qualities contributing to the district’s national register Several actions, while not included in this significance would not be diminished. reuse plan, could contribute cumulative beneficial impacts to historic properties Sensitive design would ensure that the within the historic district. Among these, construction of the central wastewater ongoing rehabilitation of the lighthouse would treatment system would minimally affect the continue, with the objective of opening the scale and visual relationships among structure to the public for interpretive landscape features, as well as contributing purposes on a daily basis (public access is circulation features and land use patterns. presently limited to selected open house dates Although a specific location for the system is under a reservation system). Shoreline not yet identified, it would be sited and stabilization and beach renourishment designed to avoid or minimize long-term measures that will control erosion that adverse visual intrusions on the district. This formerly threatened the stability of the could be accomplished by incorporating a lighthouse and nearby structures have been low-profile structural design that would be a completed. Recent visitor use improvements contemporary but compatible addition to the in the lighthouse area would also serve to historic district — similar in massing and scale enhance visitor orientation, appreciation, and yet distinctive in building type and finish. protection of the historic district. Also, the treatment recommendations presented in the Construction activities associated with “Draft Cultural Landscape Report” for the implementing alternative C would introduce historic district would enhance and preserve
70 Cultural Resources the district’s historic setting and built opportunities for enjoyment of the national environment. Implementing the above actions seashore, or (3) identified as a goal in the would have long-term beneficial impacts on national seashore’s General Management Plan the historic buildings, structures, and cultural or other relevant NPS planning documents, landscape features contributing to the historic there would be no impairment of the national district. seashore’s resources or values.
The impacts associated with implementing Section 106 Summary. After applying the alternative C would result in long-term Advisory Council on Historic Preservation’s beneficial impacts on the historic district as a criteria of adverse effect (36 CFR Part 800.5, result of relocation of three government Assessment of Adverse Effects), the National buildings to their original sites, selective Park Service concludes that implementation vegetation clearing to improve views, and the of alternative C would result in no adverse stabilization and rehabilitation of contributing effect on buildings, structures, and cultural buildings. Consequently, the impacts of the landscape features contributing to the other actions described above, in combination significance of the Cape Lookout Village with the impacts of alternative C, would result Historic District. in overall long-term beneficial cumulative impacts. Alternative C would contribute a comparatively large component of beneficial Alternative D impacts to the long-term minor to moderate beneficial and adverse cumulative impacts of Analysis. Under alternative D, the National other past, present, and reasonably Park Service would stabilize 13 of the former foreseeable actions in the historic district. residential buildings contributing to the significance of the Cape Lookout Village Conclusion. The overall impacts to the Historic District. (As stated previously, four of historic district under alternative C would be these buildings have been stabilized because long-term and beneficial as a result of the of emergency conditions.) The Park Service proposed preservation undertakings. The would undertake measures to preserve the character-defining features and qualities existing form, features, and architectural contributing to the district’s significance detailing of these buildings in accordance with would be enhanced. Proposed stabilization, historic structure reports and the Secretary of rehabilitation, and relocation of selected the Interior’s Standards for the Treatment of structures would help ensure the long-term Historic Properties. With particular regard to preservation and spatial orientation of the the standards and guidelines for preservation, district’s contributing properties. Selective stabilization measures would include vegetation removal would improve historic structural reinforcement, weatherization, and viewsheds. Overall cumulative impacts would actions required to correct unsafe conditions. be long term and beneficial. This alternative Also in keeping with the historic structure would contribute a large component of reports and the Secretary’s Standards, more beneficial impacts to the minor to moderate extensive rehabilitation measures would be beneficial and adverse cumulative impacts. undertaken for up to four buildings intended for NPS staff and volunteer use and a Because there would be no adverse impacts on minimum of eight buildings for use by a a resource or value whose conservation is (1) concessions operator to bring the buildings necessary to fulfill specific purposes identified into compliance with residential occupancy in the establishing legislation of Cape Lookout requirements. Eight buildings would be National Seashore, (2) key to the natural or renovated for interpretation to the public. cultural integrity of the national seashore or to Two noncontributing buildings, the Setzer-
71 ENVIRONMENTAL CONSEQUENCES
Dawsey House and Fishing Cottage No. 1, contemporary but compatible addition to the would be demolished and removed to historic district — similar in massing and scale enhance the setting of the historic district. yet distinctive in building type and finish. Other noncontributing outbuildings would also be removed. The above actions would Construction activities associated with result in long-term beneficial impacts on the implementing alternative D would introduce contributing buildings and structures of the short-term visual and atmospheric intrusions Cape Lookout Village Historic District. into the setting of the historic district, which could affect views, vistas, and the quality of In addition, three buildings (the 1907 the visitor experience. However, such Lighthouse Keeper’s Quarters, the 1887 Life- intrusions would be localized and last only as Saving Station, and the 1924 Life-Saving long as construction. Station Boat House) would be relocated from the central village portion of the historic Cumulative Impacts. The structures and district to their original building sites at the buildings within the historic district are lighthouse station and U.S. Coast Guard areas. particularly vulnerable to natural weathering Relocation of these buildings (contingent on and the severe climatic conditions associated the outcome of environmental and structural with the Outer Banks, although they are feasibility studies) would enhance the spatial protected to a limited degree from winds and arrangement of contributing properties to storm surges by the dune system that parallels more accurately reflect the historical context the shoreline along the Atlantic side of Cape and clustered configuration that existed Lookout. Although the overall form of the during the district’s period of significance. buildings remains relatively intact, natural Vegetation thinning would be undertaken in weathering and deterioration threatens the approved areas to reduce the threat of fire long-term integrity of many of the buildings, a near buildings selected for occupancy and situation accentuated in recent years by a lack enhance views and the visual orientation and of regular maintenance. Instances of collapsed connection that historically existed among the roofs and other structural problems require buildings and structures. These undertakings stabilization. Structural deterioration resulting would result in long-term beneficial impacts from these factors has resulted in long-term on the setting of the historic district and minor to moderate adverse effects on the contributing features of the cultural historic district’s contributing properties. landscape. The overall integrity of the district would be enhanced, and the qualities Several actions, while not included in this contributing to the district’s national register reuse plan, could contribute cumulative significance would not be diminished. beneficial impacts to historic properties within the historic district. Ongoing rehabili- Sensitive design would ensure that the tation of the lighthouse would continue, with construction of the central wastewater the objective of opening the structure to the treatment system would minimally affect the public for interpretive purposes on a daily scale and visual relationships among basis (public access is presently limited to landscape features, as well as contributing selected open house dates under a reservation circulation features and land use patterns. system). Shoreline stabilization and beach Although a specific location for the system is renourishment measures that will control not yet identified, it would be sited and erosion that formerly threatened the stability designed to avoid or minimize long-term of the lighthouse and nearby structures have adverse visual intrusions on the district. This been completed. Recent visitor use improve- could be accomplished by incorporating a ments in the lighthouse area would also low-profile structural design that would be a enhance visitor orientation, appreciation, and
72 Cultural Resources protection of the historic district. Also, the necessary to fulfill specific purposes identified treatment recommendations presented in the in the establishing legislation of Cape Lookout “Draft Cultural Landscape Report” for the National Seashore, (2) key to the natural or historic district would further enhance and cultural integrity of the national seashore or to preserve the district’s historic setting and built opportunities for enjoyment of the national environment. Implementing the above actions seashore, or (3) identified as a goal in the would have long-term beneficial impacts on national seashore’s General Management Plan the historic buildings, structures, and cultural or other relevant NPS planning documents, landscape features contributing to the historic there would be no impairment of the national district. seashore’s resources or values.
The impacts associated with implementation Section 106 Summary. After applying the of alternative D would result in long-term Advisory Council on Historic Preservation’s beneficial impacts to the historic district as a criteria of adverse effect (36 CFR Part 800.5, result of relocating three government Assessment of Adverse Effects), the National buildings to their original sites, selective Park Service concludes that implementation vegetation clearing to improve views, and the of alternative D would result in no adverse stabilization and rehabilitation of contributing effect on buildings, structures, and cultural buildings. Consequently, the impacts of the landscape features contributing to the other actions described above, in combination significance of the Cape Lookout Village with the impacts of alternative D, would result Historic District. in overall long-term beneficial cumulative impacts. Alternative D would contribute a comparatively large component of beneficial Alternative E impacts to the long-term minor to moderate beneficial and adverse cumulative impacts of Analysis. Under alternative E, the National other past, present, and reasonably Park Service would stabilize 13 of the former foreseeable actions in the historic district. residential buildings contributing to the significance of the Cape Lookout Village Conclusion. The overall impacts on the Historic District. (As stated previously, four of historic district under alternative D would be these buildings have been stabilized because long term and beneficial as a result of the of emergency conditions.) The Park Service proposed preservation undertakings. The would undertake measures to preserve the character-defining features and qualities existing form, features, and architectural contributing to the district’s significance detailing of these buildings in accordance with would be enhanced. Proposed stabilization, historic structure reports and the Secretary of rehabilitation, and relocation of selected the Interior’s Standards for the Treatment of structures would help ensure the long-term Historic Properties. With particular regard to preservation and spatial orientation of the the standards and guidelines for preservation, district’s contributing properties. Selective stabilization measures would include struc- vegetation removal would improve historic tural reinforcement, weatherization, and views. Overall cumulative impacts would be actions required to correct unsafe conditions. long term and beneficial. This alternative Also in keeping with the historic structure would contribute a large component of reports and the Secretary’s Standards, more beneficial impacts to the minor to moderate extensive rehabilitation measures would be beneficial and adverse cumulative impacts. undertaken for up to four buildings intended for NPS staff and volunteer use and a mini- Because there would be no adverse impacts on mum of eight buildings for use by a conces- a resource or value whose conservation is (1) sions operator or private leaseholders to bring
73 ENVIRONMENTAL CONSEQUENCES the buildings into compliance with residential designed to avoid or minimize long-term occupancy requirements. Eight buildings adverse visual intrusions on the district. This would be renovated for interpretation to the could be accomplished by incorporating a public. Two noncontributing buildings, the low-profile structural design that would be a Setzer-Dawsey House and Fishing Cottage contemporary but compatible addition to the No. 1, would be demolished and removed to historic district — similar in massing and scale enhance the setting of the historic district. yet distinctive in building type and finish. Other noncontributing outbuildings would also be removed. The above actions would Construction activities associated with result in long-term beneficial impacts on the implementing alternative E would introduce contributing buildings and structures of the short-term visual and atmospheric intrusions Cape Lookout Village Historic District. into the setting of the historic district, which could affect views, vistas, and the quality of In addition, three buildings (the 1907 the visitor experience during the period of Lighthouse Keeper’s Quarters, the 1887 Life- construction. However, such intrusions would Saving Station, and the 1924 Life-Saving be localized and last only as long as Station Boat House) would be relocated from construction. the central village portion of the historic district to their original building sites at the Cumulative Impacts. The structures and lighthouse station and U.S. Coast Guard areas. buildings within the historic district are Relocation of these buildings (contingent on particularly vulnerable to natural weathering the outcome of environmental and structural and the severe climatic conditions associated feasibility studies) would enhance the spatial with the Outer Banks, although they are arrangement of contributing properties to protected to a limited degree from winds and more accurately reflect the historical context storm surges by the dune system that parallels and clustered configuration that existed the shoreline along the Atlantic side of Cape during the district’s period of significance. Lookout. Although the overall form of the Vegetation thinning would be undertaken in buildings remains relatively intact, natural approved areas to reduce the threat of fire weathering and deterioration threatens the near buildings selected for occupancy and long-term integrity of many of the buildings, a enhance views and the visual orientation and situation accentuated in recent years by a lack connection that historically existed among the of regular maintenance. Instances of collapsed buildings and structures. These undertakings roofs and other structural problems require would result in long-term beneficial impacts stabilization. Structural deterioration resulting on the setting of the historic district and from these factors has resulted in long-term contributing features of the cultural minor to moderate adverse effects on the landscape. The overall integrity of the district historic district’s contributing properties. would be enhanced, and the qualities contributing to the district’s national register Several actions, while not included in this significance would not be diminished. reuse plan, could contribute cumulative beneficial impacts to historic properties Sensitive design would ensure that the within the historic district. Ongoing rehabili- construction of the central wastewater tation of the lighthouse would continue, with treatment system would minimally affect the the objective of opening the structure to the scale and visual relationships among public for interpretive purposes on a daily landscape features, as well as contributing basis (public access is presently limited to circulation features and land use patterns. selected open house dates under a reservation Although a specific location for the system is system). Shoreline stabilization and beach not yet identified, it would be sited and renourishment measures that will control
74 Cultural Resources erosion that formerly threatened the stability beneficial impacts to the minor to moderate of the lighthouse and nearby structures have beneficial and adverse cumulative impacts. been completed. Recent visitor use improve- ments in the lighthouse area would also Because there would be no adverse impacts on enhance visitor orientation, appreciation, and a resource or value whose conservation is (1) protection of the historic district. Also, the necessary to fulfill specific purposes identified treatment recommendations presented in the in the establishing legislation of Cape Lookout “Draft Cultural Landscape Report” for the National Seashore, (2) key to the natural or historic district would further enhance and cultural integrity of the national seashore or to preserve the district’s historic setting and built opportunities for enjoyment of the national environment. Implementation of the above seashore, or (3) identified as a goal in the actions would have long-term beneficial national seashore’s General Management Plan impacts on the historic buildings, structures, or other relevant NPS planning documents, and cultural landscape features contributing there would be no impairment of the national to the historic district. seashore’s resources or values.
The impacts associated with implementing Section 106 Summary. After applying the alternative E would result in long-term minor Advisory Council on Historic Preservation’s to moderate beneficial impacts to the historic criteria of adverse effect (36 CFR Part 800.5, district as a result of relocating three govern- Assessment of Adverse Effects), the National ment buildings to their original sites, selective Park Service concludes that implementation vegetation clearing to improve views, and the of Alternative E would result in no adverse stabilization and rehabilitation of contributing effect on buildings, structures, and cultural buildings. Consequently, the impacts of the landscape features contributing to the other actions described above, in combination significance of the Cape Lookout Village with the impacts of alternative E, would result Historic District. in overall long-term beneficial cumulative impacts. Alternative E would contribute a comparatively large component of beneficial ARCHEOLOGICAL RESOURCES impacts to the long-term minor to moderate beneficial and adverse cumulative impacts of Definitions of Intensity Levels other past, present, and reasonably foreseeable actions in the historic district. Negligible: Impact is at the lowest levels of detection with neither adverse nor Conclusion. The overall impacts to the beneficial consequences. The historic district under alternative E would be determination of effect for Section106 long-term and beneficial as a result of the would be no adverse effect. proposed preservation undertakings. The Minor: Adverse impact — disturbance of a character-defining features and qualities site(s) results in little, if any, loss of contributing to the district’s significance integrity. The determination of effect for would be enhanced. Proposed stabilization, Section 106 would be no adverse effect. rehabilitation, and relocation of selected Moderate: Adverse impact — disturbance of a structures would help ensure the long-term site(s) results in loss of integrity. The preservation and spatial orientation of the determination of effect for Section 106 district’s contributing properties. Selective would be adverse effect. A memorandum vegetation removal would improve historic of agreement is executed among the views. Overall cumulative impacts would be National Park Service and applicable long term and beneficial. This alternative state or tribal historic preservation officer would contribute a large component of and, if necessary, the Advisory Council
75 ENVIRONMENTAL CONSEQUENCES
on Historic Preservation in accordance impacts on archeological resources would be with 36 CFR 800.6(b). Measures long term or permanent and minor to identified in the memorandum of moderate in intensity. agreement to minimize or mitigate adverse impacts reduce the intensity of If during construction previously undiscov- impact under the National ered archeological resources were uncovered, Environmental Policy Act from major to all work in the immediate vicinity of the dis- moderate. covery would be halted until the resources Major: Adverse impact — disturbance of a could be identified and documented and an site(s) results in loss of integrity. The appropriate mitigation strategy developed in determination of effect for Section 106 consultation with the state historic preserva- would be adverse effect. Measures to tion officer. Any adverse impacts on archeo- minimize or mitigate adverse impacts logical resources associated with inadvertent cannot be agreed upon and the National discoveries would be long term or permanent Park Service and applicable state or tribal and minor to moderate in intensity. historic preservation officer and/or Advisory Council are unable to negotiate Cumulative Impacts. Archeological and execute a memorandum of resources in the barrier islands are particularly agreement in accordance with 36 CFR prone to disturbance due to the dynamic 800.6(b). natural processes of shifting landforms and the continual reconfiguration of sand and soil strata. Although artifacts are occasionally No-Action Alternative identified, it is rare for archeological sites to have retained sufficient stratigraphy and Analysis. Although no national register listed integrity under these environmental condi- or eligible archeological resources have been tions to meet the criteria of national register identified in the project area, ground eligibility. Subsequent ground-disturbing disturbance associated with project-related development activities and operations of the undertakings could impact unknown national seashore have likely further contri- archeological resources associated with both buted to the inadvertent disturbance of prehistoric and historic period occupation. archeological resources. The potential minor Archeological resources associated with the to moderate adverse impacts associated with historic settlement of Cape Lookout Village project undertakings would contribute a small may have the greatest probability for component of adverse impacts to the overall occurrence in the project area, although such minor to moderate adverse cumulative im- resources have likely been disturbed by pacts of other past, present, and reasonably construction activities and the dynamic nature foreseeable actions affecting archeological of the barrier islands. resources.
As appropriate, archeological surveys and/or Conclusion. As appropriate, archeological monitoring would precede any ground- surveys and/or monitoring would precede any disturbing activity (e.g., installation of ground-disturbing activities. In the unlikely electrical lines, construction of septic event that national register-eligible or listed system(s), and vegetation clearing). In the archeological resources could not be avoided, unlikely event that national register-eligible or an appropriate mitigation strategy would be listed archeological resources could not be developed in consultation with the state avoided, an appropriate mitigation strategy historic preservation officer. Any adverse would be developed in consultation with the impacts on archeological resources would be state historic preservation officer. Any adverse long term or permanent and minor to
76 Cultural Resources moderate in intensity. The no-action alter- If during construction previously undiscov- native would contribute a small component of ered archeological resources were uncovered, adverse impacts to the overall minor to all work in the immediate vicinity of the dis- moderate adverse cumulative impacts. covery would be halted until the resources could be identified and documented and an Because there would be no adverse impacts on appropriate mitigation strategy developed in a resource or value whose conservation is (1) consultation with the state historic preserva- necessary to fulfill specific purposes identified tion officer. Any adverse impacts on archeo- in the establishing legislation of Cape Lookout logical resources associated with inadvertent National Seashore, (2) key to the natural or discoveries would be long term or permanent cultural integrity of the national seashore or to and minor to moderate in intensity. opportunities for enjoyment of the national seashore, or (3) identified as a goal in the Cumulative Impacts. Archeological national seashore’s General Management Plan resources in the barrier islands are particularly or other relevant NPS planning documents, prone to disturbance due to the dynamic there would be no impairment of the national natural processes of shifting landforms and seashore’s resources or values. the continual reconfiguration of sand and soil strata. Although artifacts are occasionally identified, it is rare for archeological sites to Alternative A have retained sufficient stratigraphy and integrity under these environmental condi- Analysis. Although no national register-listed tions to meet the criteria of national register or eligible archeological resources have been eligibility. Subsequent ground-disturbing identified in the project area, ground development activities and operations of the disturbance associated with project-related national seashore have likely further contri- undertakings could impact unknown buted to the inadvertent disturbance of arche- archeological resources associated with both ological resources. The potential minor to prehistoric and historic period occupation. moderate adverse impacts associated with Archeological resources associated with the project undertakings would contribute a small historic settlement of Cape Lookout Village component of adverse impacts to the overall may have the greatest probability for minor to moderate adverse cumulative occurrence in the project area, although such impacts of other past, present, and reasonably resources have likely been disturbed by foreseeable actions affecting archeological subsequent construction activities and the resources. dynamic nature of the barrier islands. Conclusion. As appropriate, archeological As appropriate, archeological surveys and/or surveys and/or monitoring would precede any monitoring would precede any ground- ground-disturbing activities. In the unlikely disturbing activity (e.g., installation of water event that national register-eligible or listed and electrical lines, construction of septic archeological resources could not be avoided, system(s), and vegetation clearing). In the an appropriate mitigation strategy would be unlikely event that national register-eligible or developed in consultation with the state listed archeological resources could not be historic preservation officer. Any adverse avoided, an appropriate mitigation strategy impacts on archeological resources would be would be developed in consultation with the long term or permanent and minor to state historic preservation officer. Any adverse moderate in intensity. Alternative A would impacts on archeological resources would be contribute a small component of adverse long term or permanent and minor to impacts to the overall minor to moderate moderate in intensity. adverse cumulative impacts.
77 ENVIRONMENTAL CONSEQUENCES
Because there would be no adverse impacts on vation officer. Any adverse impacts on arche- a resource or value whose conservation is (1) ological resources would be long term or necessary to fulfill specific purposes identified permanent and minor to moderate in in the establishing legislation of Cape Lookout intensity. National Seashore, (2) key to the natural or cultural integrity of the national seashore or to Before the relocation of contributing national opportunities for enjoyment of the national register-listed structures to their original site seashore, or (3) identified as a goal in the locations, a survey for archeological resources national seashore’s General Management Plan in the general vicinity of the relocation sites or other relevant NPS planning documents, would be conducted. The excavation, there would be no impairment of the national recordation, and mapping of any significant seashore’s resources or values. cultural remains (if present) would be comple- ted before relocation to ensure that important Section 106 Summary. After applying the archeological data that would be lost is re- Advisory Council on Historic Preservation’s covered and documented. Any impacts on criteria of adverse effect (36 CFR Part 800.5, archeological resources would be adverse, mi- Assessment of Adverse Effects), the National nor to moderate in intensity, and permanent. Park Service concludes that implementation of alternative A would result in no adverse If during construction previously undiscov- effect on archeological resources. ered archeological resources were uncovered, all work in the immediate vicinity of the dis- covery would be halted until the resources Alternative B could be identified and documented and an appropriate mitigation strategy developed in Analysis. Although no national register-listed consultation with the state historic preserva- or eligible archeological resources have been tion officer. Any adverse impacts on archeo- identified in the project area, ground distur- logical resources associated with inadvertent bance associated with project-related under- discoveries would be long term or permanent takings have the potential to impact yet and minor to moderate in intensity. unknown archeological resources associated with both prehistoric and historic period Cumulative Impacts. Archeological occupation. Archeological resources associ- resources in the barrier islands are particularly ated with the historic settlement of Cape prone to disturbance due to the dynamic Lookout Village may have the greatest natural processes of shifting landforms and probability for occurrence in the project area, the continual reconfiguration of sand and soil although such resources have likely been dis- strata. Although artifacts are occasionally turbed by subsequent construction activities identified, it is rare for archeological sites to and the dynamic nature of the barrier islands. have retained sufficient stratigraphy and integrity under these environmental condi- As appropriate, archeological surveys and/or tions to meet the criteria of national register monitoring would precede any ground- eligibility. Subsequent ground-disturbing disturbing activity (e.g., installation of water development activities and operations of the and electrical lines, construction of a central national seashore have likely further contri- wastewater treatment system, and vegetation buted to the inadvertent disturbance of clearing). In the unlikely event that national archeological resources. The potential minor register-eligible or listed archeological to moderate adverse impacts associated with resources could not be avoided, an appro- project undertakings would contribute a small priate mitigation strategy would be developed component of adverse impacts to the overall in consultation with the state historic preser- minor to moderate adverse cumulative
78 Cultural Resources impacts of other past, present, and reasonably prehistoric and historic period occupation. foreseeable actions affecting archeological Archeological resources associated with the resources. historic settlement of Cape Lookout Village may have the greatest probability for Conclusion. As appropriate, archeological occurrence in the project area, although such surveys and/or monitoring would precede any resources have likely been disturbed by ground disturbing activities. In the unlikely subsequent construction activities and the event that national register-eligible or listed dynamic nature of the barrier islands. archeological resources could not be avoided, an appropriate mitigation strategy would be As appropriate, archeological surveys and/or developed in consultation with the state monitoring would precede any ground- historic preservation officer. Any adverse disturbing activity (e.g., installation of water impacts on archeological resources would be and electrical lines, construction of a central long term or permanent and minor to wastewater treatment system, and vegetation moderate in intensity. Alternative B would clearing). In the unlikely event that national contribute a small component of adverse register-eligible or listed archeological impacts to the overall minor to moderate resources could not be avoided, an appro- adverse cumulative impacts. priate mitigation strategy would be developed in consultation with the state historic Because there would be no adverse impacts on preservation officer. Any adverse impacts on a resource or value whose conservation is (1) archeological resources would be long term or necessary to fulfill specific purposes identified permanent and minor to moderate in in the establishing legislation of Cape Lookout intensity. National Seashore, (2) key to the natural or cultural integrity of the national seashore or to Before the relocation of contributing national opportunities for enjoyment of the national register-listed structures to their original site seashore, or (3) identified as a goal in the locations, a survey for archeological resources national seashore’s General Management Plan in the general vicinity of the relocation sites or other relevant NPS planning documents, would be conducted. The excavation, there would be no impairment of the national recordation, and mapping of any significant seashore’s resources or values. cultural remains (if present) would be completed before relocation to ensure that Section 106 Summary. After applying the important archeological data that would be Advisory Council on Historic Preservation’s lost is recovered and documented. Any criteria of adverse effect (36 CFR Part 800.5, impacts on archeological resources would be Assessment of Adverse Effects), the National adverse, minor to moderate in intensity, and Park Service concludes that implementing permanent. alternative B would result in no adverse effect on archeological resources. If during construction previously undiscov- ered archeological resources were uncovered, all work in the immediate vicinity of the dis- Alternative C covery would be halted until the resources could be identified and documented and an Analysis. Although no national register-listed appropriate mitigation strategy developed in or eligible archeological resources have been consultation with the state historic preserva- identified in the project area, ground tion officer. Any adverse impacts on archeo- disturbance associated with project-related logical resources associated with inadvertent undertakings could impact unknown discoveries would be long term or permanent archeological resources associated with both and minor to moderate in intensity.
79 ENVIRONMENTAL CONSEQUENCES
Cumulative Impacts. Archeological there would be no impairment of the national resources in the barrier islands are particularly seashore’s resources or values. prone to disturbance due to the dynamic natural processes of shifting landforms and Section 106 Summary. After applying the the continual reconfiguration of sand and soil Advisory Council on Historic Preservation’s strata. Although artifacts are occasionally criteria of adverse effect (36 CFR Part 800.5, identified, it is rare for archeological sites to Assessment of Adverse Effects), the National have retained sufficient stratigraphy and Park Service concludes that implementation integrity under these environmental condi- alternative C would result in no adverse effect tions to meet the criteria of national register on archeological resources. eligibility. Subsequent ground-disturbing development activities and operations of the national seashore have likely further contri- Alternative D buted to the inadvertent disturbance of archeological resources. The potential minor Analysis. Although no national register-listed to moderate adverse impacts associated with or eligible archeological resources have been project undertakings would contribute a small identified in the project area, ground component of adverse impacts to the overall disturbance associated with project-related minor to moderate adverse cumulative undertakings could impact unknown impacts of other past, present, and reasonably archeological resources associated with both foreseeable actions affecting archeological prehistoric and historic period occupation. resources. Archeological resources associated with the historic settlement of Cape Lookout Village Conclusion. As appropriate, archeological may have the greatest probability for surveys and/or monitoring would precede any occurrence in the project area, although such ground-disturbing activities. In the unlikely resources have likely been disturbed by event that national register-eligible or listed subsequent construction activities and the archeological resources could not be avoided, dynamic nature of the barrier islands. an appropriate mitigation strategy would be developed in consultation with the state As appropriate, archeological surveys and/or historic preservation officer. Any adverse monitoring would precede any ground- impacts on archeological resources would be disturbing activity (e.g., installation of water long term or permanent and minor to and electrical lines, construction of a central moderate in intensity. Alternative C would wastewater treatment system, and vegetation contribute a small component of adverse clearing). In the unlikely event that national impacts to the overall minor to moderate register-eligible or listed archeological adverse cumulative impacts. resources could not be avoided, an appro- priate mitigation strategy would be developed Because there would be no adverse impacts on in consultation with the state historic preser- a resource or value whose conservation is (1) vation officer. Any adverse impacts on arche- necessary to fulfill specific purposes identified ological resources would be long term or per- in the establishing legislation of Cape Lookout manent and minor to moderate in intensity. National Seashore, (2) key to the natural or cultural integrity of the national seashore or to Before the relocation of contributing national opportunities for enjoyment of the national register-listed structures to their original site seashore, or (3) identified as a goal in the locations, a survey for archeological resources national seashore’s General Management Plan in the general vicinity of the relocation sites or other relevant NPS planning documents, would be conducted. The excavation, recordation, and mapping of any significant
80 Cultural Resources cultural remains (if present) would be developed in consultation with the state completed before relocation to ensure that historic preservation officer. Any adverse important archeological data that would be impacts on archeological resources would be lost is recovered and documented. Any long term or permanent and minor to impacts on archeological resources would be moderate in intensity. Alternative D would adverse, minor to moderate in intensity, and contribute a small component of adverse permanent. impacts to the overall minor to moderate adverse cumulative impacts. If during construction previously undiscov- ered archeological resources were uncovered, Because there would be no adverse impacts on all work in the immediate vicinity of the dis- a resource or value whose conservation is (1) covery would be halted until the resources necessary to fulfill specific purposes identified could be identified and documented and an in the establishing legislation of Cape Lookout appropriate mitigation strategy developed in National Seashore, (2) key to the natural or consultation with the state historic preserva- cultural integrity of the national seashore or to tion officer. Any adverse impacts on archeo- opportunities for enjoyment of the national logical resources associated with inadvertent seashore, or (3) identified as a goal in the discoveries would be long term or permanent national seashore’s General Management Plan and minor to moderate in intensity. or other relevant NPS planning documents, there would be no impairment of the national Cumulative Impacts. Archeological seashore’s resources or values. resources in the barrier islands are particularly prone to disturbance due to the dynamic Section 106 Summary. After applying the natural processes of shifting landforms and Advisory Council on Historic Preservation’s the continual reconfiguration of sand and soil criteria of adverse effect (36 CFR Part 800.5, strata. Although artifacts are occasionally Assessment of Adverse Effects), the National identified, it is rare for archeological sites to Park Service concludes that implementing have retained sufficient stratigraphy and alternative D would result in no adverse effect integrity under these environmental condi- on archeological resources. tions to meet the criteria of national register eligibility. Subsequent ground-disturbing development activities and operations of the Alternative E national seashore have likely further contri- buted to the inadvertent disturbance of Analysis. Although no national register-listed archeological resources. The potential minor or eligible archeological resources have been to moderate adverse impacts associated with identified in the project area, ground project undertakings would contribute a small disturbance associated with project-related component of adverse impacts to the overall undertakings could impact unknown minor to moderate adverse cumulative archeological resources associated with both impacts of other past, present, and reasonably prehistoric and historic period occupation. foreseeable actions affecting archeological Archeological resources associated with the resources. historic settlement of Cape Lookout Village may have the greatest probability for Conclusion. As appropriate, archeological occurrence in the project area, although such surveys and/or monitoring would precede any resources have likely been disturbed by ground-disturbing activities. In the unlikely subsequent construction activities and the event that national register-eligible or listed dynamic nature of the barrier islands. archeological resources could not be avoided, an appropriate mitigation strategy would be
81 ENVIRONMENTAL CONSEQUENCES
As appropriate, archeological surveys and/or tions to meet the criteria of national register monitoring would precede any ground- eligibility. Subsequent ground-disturbing disturbing activity (e.g., installation of water development activities and operations of the and electrical lines, construction of a central national seashore have likely further contri- wastewater treatment system, and vegetation buted to the inadvertent disturbance of clearing). In the unlikely event that national archeological resources. The potential minor register-eligible or listed archeological to moderate adverse impacts associated with resources could not be avoided, an appro- project undertakings would contribute a small priate mitigation strategy would be developed component of adverse impacts to the overall in consultation with the state historic pre- minor to moderate adverse cumulative servation officer. Any adverse impacts on impacts of other past, present, and reasonably archeological resources would be long term or foreseeable actions affecting archeological permanent and minor to moderate in resources. intensity. Conclusion. As appropriate, archeological Before the relocation of contributing national surveys and/or monitoring would precede any register-listed structures to their original site ground-disturbing activities. In the unlikely locations, a survey for archeological resources event that national register-eligible or listed in the general vicinity of the relocation sites archeological resources could not be avoided, would be conducted. The excavation, an appropriate mitigation strategy would be recordation, and mapping of any significant developed in consultation with the state cultural remains (if present) would be com- historic preservation officer. Any adverse pleted before relocation to ensure that im- impacts on archeological resources would be portant archeological data that would be lost long term or permanent and minor to is recovered and documented. Any impacts on moderate in intensity. Alternative E would archeological resources would be adverse, mi- contribute a small component of adverse nor to moderate in intensity, and permanent. impacts to the overall minor to moderate adverse cumulative impacts. If during construction previously undiscov- ered archeological resources were uncovered, Because there would be no adverse impacts on all work in the immediate vicinity of the dis- a resource or value whose conservation is (1) covery would be halted until the resources necessary to fulfill specific purposes identified could be identified and documented and an in the establishing legislation of Cape Lookout appropriate mitigation strategy developed in National Seashore, (2) key to the natural or consultation with the state historic preserva- cultural integrity of the national seashore or to tion officer. Any adverse impacts on archeo- opportunities for enjoyment of the national logical resources associated with inadvertent seashore, or (3) identified as a goal in the discoveries would be long term or permanent national seashore’s General Management Plan and minor to moderate in intensity. or other relevant NPS planning documents, there would be no impairment of the national Cumulative Impacts. Archeological seashore’s resources or values. resources in the barrier islands are particularly prone to disturbance due to the dynamic Section 106 Summary. After applying the natural processes of shifting landforms and Advisory Council on Historic Preservation’s the continual reconfiguration of sand and soil criteria of adverse effect (36 CFR Part 800.5, strata. Although artifacts are occasionally Assessment of Adverse Effects), the National identified, it is rare for archeological sites to Park Service concludes that implementing have retained sufficient stratigraphy and alternative E would result in no adverse effect integrity under these environmental condi- on archeological resources.
82
NATURAL RESOURCES
VEGETATION No-Action Alternative
Definitions of Intensity Levels Analysis. Under the no-action alternative, some vegetation would be removed from the Impacts were assessed qualitatively. Site- historic district particularly around the village specific information on the historic district structures. Selected trees and shrubs would be was gathered from general documents such as removed to create defensible space around the national seashore’s Resource Management the structures and reduce the potential for Plan, and the “Draft Cultural Landscape damage from fire or storms. Best management Report.” practices would be employed during the removal process to limit soil disturbance. Negligible: The impact on vegetation Creating defensible space would affect the (individuals and/or communities) would distribution of some species within the not be measurable. The abundance or district, but would be unlikely to adversely distribution of individuals would not be impact ecological processes or biological affected or would be slightly affected. productivity. The short-term adverse impact Ecological processes and biological on vegetation in the district resulting from the productivity would not be affected. creation of defensible space around the his- Minor: An action would not necessarily toric structures would be negligible. The com- decrease or increase the area’s overall plete removal of vegetation near the structures biological productivity. An action would might not be required in all cases, but could be affect the abundance or distribution of limited to thinning and removal of hazard tree individuals in a localized area but would limbs and other aged, diseased, or invasive not affect the viability of local or regional vegetation. These activities would have a long- populations or communities. term beneficial impact on the health of the Moderate: An action would result in a change remaining vegetation. Long-term negligible in overall biological productivity in a adverse impacts on vegetation would result in small area. An action would affect a local those instances requiring complete vegetation population sufficiently to cause a change removal for defensible space. in abundance or distribution, but it would not affect the viability of the regional Electrical service would be provided to all the population or communities. Changes to structures for emergency and operational ecological processes would be of limited purposes, and two septic systems would also extent. be installed within the district. It is unlikely Major: An action would result in overall that any vegetation would be disturbed during biological productivity in a relatively installation of the septic systems so both the large area. An action would affect a short and long-term adverse impacts associ- regional or local population of a species ated with installation of the systems would be sufficiently to cause a change in negligible. During installation of the electrical abundance or in distribution to the extent system, some vegetation disturbance could be that the population or communities required. However, the extent of disturbance would not be likely to return to its/their would be localized, and short-term adverse former level. Important ecological impacts would be negligible. Because the processes would be altered. electrical lines would be buried, the long-term adverse impacts on vegetation from
83 ENVIRONMENTAL CONSEQUENCES maintenance activities would also be amount of vegetation practicable during negligible. installation. In addition, best management practices would be used to prevent the Cumulative Impacts. There are no past, introduction or spread of invasive species in present, or reasonably foreseeable future newly disturbed areas as well as to reduce soil actions at the national seashore that would erosion. Although some vegetation would be impact vegetation on South Core Banks. disturbed or removed, it is unlikely to impact the abundance and distribution of individual Conclusion. Implementation of the no-action species within the village vegetation alternative would have some adverse impacts community. Consequently, ecological on vegetation in the historic district. Short- processes or biological productivity of term negligible adverse impacts would result vegetation would not likely be adversely from limited vegetation removal to provide impacted. Both the short-term and long-term defensible space around the historic adverse impacts on vegetation from structures. However, the long-term impacts of installation of the water system would be removing and thinning hazard tree limbs and negligible. As with the no-action alternative, it other aged, diseased, or invasive vegetation is unlikely that an appreciable amount of around the structures would be beneficial for vegetation would be disturbed during the remaining vegetation, and negligibly installation of the septic systems, and adverse for vegetation completely removed. therefore installation would result in both Some vegetation would also be disturbed or short- and long-term negligible adverse removed to install electric lines to each of the impacts. Installation of the electrical system structures. The extent of disturbance would could result in some vegetation disturbance, be localized, and the long-term adverse although the extent of disturbance would impacts of installing the electric lines would similarly be minimal and the short-term be negligible. These impacts would not result adverse impacts associated with installation in impairment of national seashore resources. would be negligible. Because the electrical lines would be buried, the long-term adverse impacts on vegetation from maintenance Alternative A activities would also be negligible.
Analysis. Under this alternative there would Selective vegetation removal would be under- be greater adverse impacts on vegetation than taken in the district to provide a semblance of under the no-action alterative. In common the more open views that existed during the with the no-action alternative, the adverse district’s period of significance. Before impacts on vegetation associated with creating removing any vegetation, NPS staff would defensible space around the historic analyze the potential adverse impacts from structures would be short-term and negligible. vegetation removal relative to storm / These activities would have a long-term hurricane impacts such as storm surge, waves, beneficial impact on the health of the and overwash as well as the impacts on remaining vegetation, and negligible adverse wildlife habitat. Vegetation removal would be impacts on vegetation completely removed. carried out in stages to support reestablish- ment of the historic views while potentially Three of the historic structures would be retaining some vegetation to provide shade in rehabilitated for occupancy and would be the village. During the initial stage, only aged, provided with potable water. Installation of diseased, and invasive plant species would be the water system could require disturbance or removed. If additional work was required to removal of some vegetation, although the Park re-create the historic views, NPS staff would Service would seek to remove the least consider removing tree limbs and thinning
84 Natural Resources remaining vegetation before complete Some vegetation would also be disturbed or removal. Preference would be given to removed to install electrical lines to each of removing foundation plantings and shrubs the structures. The extent of disturbance before shade trees, particularly in the village. would be localized, and the long-term adverse impacts of installing the electrical lines would Efforts to restore historic views and the be negligible. Installing septic systems and character of the district’s setting would potable water lines would have long-term adversely impact the abundance and negligible adverse impacts on vegetation in the distribution of some species, but would have village. Although some vegetation would be minimal impact on vegetation across the disturbed or removed, these systems are South Core Banks as a whole. The short-term unlikely to impact the ecological processes or adverse impacts on vegetation from efforts to biological productivity of vegetation in the restore the historic views would be negligible village. Efforts to restore historic views in the to minor. The long-term impacts would be village would have long-term beneficial both adverse and beneficial. The adverse cumulative impacts on the remaining impacts on abundance and distribution of vegetation because the overall health of the some species would be negligible and would community would be improved and native continue long term. The removal of aged and species would be encouraged in disturbed diseased vegetation material and thinning areas. These impacts would not result in remaining vegetation would have a beneficial impairment of national seashore resources. impact on the health of the remaining vegetation, and negligible adverse impacts on vegetation completely removed. Alternative B
Cumulative Impacts. There are no past, Analysis. The adverse impacts on vegetation present, or reasonably foreseeable future in the historic district would be greater under actions at the national seashore that would alternative B than alternative A. The greater impact vegetation in South Core Banks. adverse impacts would result from the installation of a central wastewater treatment Conclusion. Implementation of alternative A system and the relocation of three of the would have greater adverse impacts on historic structures. All other impacts would vegetation in the historic district than the no- remain the same as described under action alternative because additional alternative A. vegetation would be disturbed or removed to install potable water lines to three of the Four of the structures would be rehabilitated historic structures. Negligible short-term for occupancy and would have potable water. adverse impacts on vegetation would result The degree of disturbance would be compar- from removal of some vegetation to provide able to alternative A and the same mitigation defensible space around the historic measures would be employed. Centralized structures and to partially restore the wastewater treatment would be installed to character and views associated with the treat all wastewater from the village. Develop- district’s period of significance. However, the ment of this infrastructure would require the long-term impacts of removing aged, diseased removal of some vegetation to accommodate and hazard tree limbs and other vegetation the treatment system as well as the distur- materials, thinning remaining vegetation, and bance or removal of some vegetation during removing invasive species, would be beneficial installation of the water lines. Although some for the remaining vegetation, and negligibly vegetation would be disturbed or removed, it adverse for vegetation completely removed. is unlikely to impact the abundance and distribution of individual species within the
85 ENVIRONMENTAL CONSEQUENCES village vegetation community. Consequently, relocated to. These impacts would be limited the installation of the water system and the because the relocation sites have been centralized wastewater treatment system are previously disturbed and the vegetation unlikely to impact the ecological processes or consists primarily of grasses. The impacts biological productivity of vegetation in the would be negligible because the abundance village. The short- and long-term adverse and distribution of individual species, impacts on vegetation from water system ecological processes, and biological installation would be negligible. productivity would not be appreciably affected at the site During installation of the electrical system, some vegetation disturbance could be Selective vegetation removal would be under- required. However, the extent of disturbance taken in the district to provide a semblance of would be no greater (and likely less) than the the more open views that existed during the disturbance associated with creating defen- district’s period of significance. Before sible space around the historic structures. The removing any vegetation, NPS staff would short-term adverse impacts associated with analyze the potential adverse impacts from installation of the electrical system would be vegetation removal relative to storm / negligible. Because the electrical lines would hurricane impacts such as storm surge, waves, be buried, the long-term adverse impacts on and overwash, as well as the impacts on vegetation from maintenance activities would wildlife habitat. Vegetation removal would be also be negligible. carried out in stages to support reestablish- ment of the historic views while potentially Under this alternative, three structures (the retaining some vegetation to provide shade in 1887 Life-Saving Station, the 1924 Life-Saving the village. During the initial stage, only aged, Station Boat House, and the 1907 Lighthouse diseased, and invasive plant species would be Keeper’s Quarters) would be relocated to removed. If additional work was required to their original site locations. These actions re-create the historic views, NPS staff would would require removal and disturbance of consider removing tree limbs and thinning vegetation within the historic district. To remaining vegetation before complete reduce the adverse impacts of these actions, removal. Preference would be given to NPS staff would seek to remove the least removing foundation plantings and shrubs amount of vegetation practicable during before shade trees, particularly in the village. structure relocation. In addition, best manage- ment practices would be used to prevent the Under this alternative, the adverse impacts introduction or spread of invasive species in from restoring the historic views and newly disturbed areas as well as to reduce the character of the district’s setting would be the potential for soil erosion. Once the structures same as for alternative A. There would be an have been moved, the areas that were former- impact to the abundance and distribution of ly occupied would be revegetated with native some species within the district, but this species. The short-term adverse impacts on would have minimal impact on the vegetation vegetation in the historic district would be across the South Core Banks as a whole. The minor because the impacts would be localized short-term adverse impacts on vegetation and would not impact the viability of the from efforts to restore the historic views vegetation community on South Core Banks would be negligible to minor. The long-term as a whole. There would be beneficial long- impacts would be both adverse and beneficial. term impacts because of the increase in total The adverse impacts on abundance and distri- coverage of native vegetation in the district. bution of some species would be negligible There would be adverse long-term impacts on and would continue long term. The removal vegetation on the sites the structures would be of aged and diseased vegetation material and
86 Natural Resources thinning the remaining vegetation would have result in impairment of national seashore a long-term beneficial impact on the health of resources. the remaining vegetation, and negligible adverse impact on vegetation completely removed. Alternative C
Cumulative Impacts. There are no past, Analysis. The adverse impacts on vegetation present, or reasonably foreseeable future in the historic district would be slightly more actions at the national seashore that would than the adverse impacts from alternative B. impact vegetation in South Core Banks. Under this alternative, 12 structures would be rehabilitated for occupancy, which would Conclusion. Implementation of alternative B require a larger water and wastewater treat- would have greater adverse impacts on vege- ment infrastructure than would be necessary tation in the historic district than the no- under alternative B. In addition, three of the action alternative because additional vegeta- historic structures would be relocated back to tion would be disturbed or removed to install their original site locations. All other impacts potable water lines to four of the historic would be as described under alternative B. structures, install a centralized wastewater treatment system, and relocate three historic Seven of the structures would be rehabilitated structures back to their original site locations. for occupancy and would have potable water. Negligible short-term adverse impacts on The degree of disturbance would be greater vegetation would result from removing some than for alternative B because of the increased vegetation to provide defensible space around number of structures that would require water the historic structures and to partially restore and wastewater connections. The same miti- the character and views associated with the gation measures described under alternative A district’s period of significance. However, the would be used for alternative C. Although the long-term impacts of removing aged, diseased adverse impacts on vegetation would be and hazard tree limbs and other vegetation concentrated in the same geographic area of materials, thinning remaining vegetation, and the village, the degree of disturbance would be removing invasive species, would be beneficial greater under this alternative. These actions for the remaining vegetation, and negligibly could impact the abundance and distribution adverse for vegetation completely removed. of individual species within the village, but would be unlikely to impact the overall Vegetation would be disturbed or removed to viability of the village vegetation community. install electrical lines, potable water lines, and Short-term adverse impacts on vegetation the wastewater treatment system. However, would be negligible to minor. The long-term the extent of disturbance would be localized, adverse impacts of installing the water and and the long-term adverse impacts of instal- wastewater system would be negligible. ling this infrastructure would be negligible. It would be unlikely to impact the ecological During installation of the electrical system, processes or biological productivity of some vegetation disturbance could be vegetation in the village. Efforts to restore required. Even though more of the structures historic views in the village would have long- would be occupied, the level of disturbance term beneficial cumulative impacts on the required to install electricity in the occupied remaining vegetation because the overall structures would be no greater than under the health of the community would be improved no-action alternative. The short-term adverse and native species would be encouraged in impacts associated with installing the electri- disturbed areas. These impacts would not cal system would be negligible. Because the electrical lines would be buried, the long-term
87 ENVIRONMENTAL CONSEQUENCES adverse impacts on vegetation from main- impacts on vegetation in the historic district tenance activities would also be negligible. would be minor because the impacts would still be localized and would not impact the Installing a central wastewater treatment viability of the vegetation community on system would require the removal of some South Core Banks as a whole. The long-term vegetation to accommodate the system as well impacts would be beneficial because of the as the disturbance or removal of some increase in total coverage of native vegetation vegetation during installation of the water in the district, and negligibly adverse at the lines. These actions would have a localized locations where structures are relocated. impact on the abundance or distribution of There would be beneficial long-term impacts some species, but the adverse impacts would because of the increase in total coverage of not be so great that the viability of the vegeta- native vegetation in the district. There would tion community in the historic district would be adverse long-term impacts on vegetation decrease. To reduce the adverse impacts of on the sites the structures would be relocated these actions, NPS staff would seek to remove to. These impacts would be limited because the least amount of vegetation practicable the relocation sites have been previously during installation of the wastewater and disturbed and the vegetation consists water distribution systems. In addition, best primarily of grasses. The impacts would be management practices would be used to negligible because the abundance and prevent the introduction or spread of invasive distribution of individual species, ecological species in newly disturbed areas, as well as to processes, and biological productivity would reduce the potential for soil erosion. Because not be appreciably affected at the site. the area impacted would be larger than the area in alternative B, the impacts would Selective vegetation removal would be increase (even with mitigation) such that the undertaken in the district to provide a short-term adverse impacts would be semblance of the more open views that existed negligible to minor. during the district’s period of significance. Before removing any vegetation, NPS staff Under this alternative, three historic would analyze the potential adverse impacts structures (the 1887 Life-Saving Station, the from vegetation removal relative to storm / 1924 Life-Saving Station Boat House, and the hurricane impacts such as storm surge, waves, 1907 Lighthouse Keeper’s Quarters) would be and overwash as well as the impacts on relocated to their original site locations. The wildlife habitat. Vegetation removal would be adverse impacts of relocating the historic carried out in stages to support reestablish- structures on vegetation in the historic district ment of the historic views while potentially would be the same as for alternative B. These retaining some vegetation to provide shade in actions would require removal and the village. During the initial stage, only aged, disturbance of vegetation within the historic diseased, and invasive plant species would be district. To reduce the adverse impacts of removed. If additional work was required to these actions, NPS staff would seek to remove re-create the historic views, NPS staff would the least amount of vegetation practicable consider removing tree limbs and thinning during structure relocation. In addition, best remaining vegetation before complete management practices would be used to removal. Preference would be given to prevent the introduction or spread of invasive removing foundation plantings and shrubs species in newly disturbed areas as well as to before shade trees, particularly in the village. reduce the potential for soil erosion. Once the structures have been moved, the areas that Under this alternative, the adverse impacts were formerly occupied would be revegetated from restoring the historic views and with native species. The short-term adverse character of the district’s setting would be the
88 Natural Resources same as for alternatives A and B. There would treatment system. The extent of disturbance be an impact to the abundance and distribu- for the electrical lines would be localized, and tion of some species within the district, but the long-term adverse impacts would be this would have minimal impact on the negligible. Installing the potable water lines vegetation across the South Core Banks as a and the infrastructure for the centralized whole. The short-term adverse impacts on wastewater treatment system would disturb vegetation from efforts to restore the historic vegetation in the village over a larger area. The viewshed would be negligible to minor. The long-term adverse impacts of these actions long- term impacts would be both adverse and would be negligible to minor. beneficial. The adverse impacts on abundance and distribution of some species would be Efforts to restore historic views in the village negligible and would continue long term. The would have long-term beneficial cumulative removal of aged and diseased vegetation impacts on the remaining vegetation because material and thinning the remaining vegeta- the overall health of the community would be tion would have a long-term beneficial impact improved and native species would be on the health of the remaining vegetation, and encouraged in disturbed areas. These impacts negligible adverse impact on vegetation would not result in impairment of national completely removed. seashore resources.
Cumulative Impacts. There are no past, present, or reasonably foreseeable future Alternative D actions at the national seashore that would impact vegetation in South Core Banks. Analysis. The adverse impacts on vegetation in the historic district would be the same as Conclusion. Implementation of alternative C the adverse impacts from alternative C. The would have greater adverse impacts on same mitigation measures described under vegetation in the historic district than the no- alternative A would be used for alternative D. action alternative because additional vegeta- Twelve of the historic structures would be tion would be disturbed or removed to install rehabilitated for occupancy and would have potable water lines to seven of the historic potable water. Although the adverse impacts structures, install a centralized wastewater on vegetation would be concentrated in the treatment system, and relocate three historic same geographic area of the village, the degree structures back to their original site locations. of disturbance would be greater under this Negligible short-term adverse impacts to alternative than for alternative B because the vegetation would result from removal of some water and wastewater infrastructure necessary vegetation to provide defensible space around to support occupancy of 12 structures would the historic structures and to partially restore be larger. These actions could impact the the character and views associated with the abundance and distribution of individual district’s period of significance. However, the species within the village but would be long-term impacts of removing aged, diseased unlikely to impact the overall viability of the and hazard tree limbs and other vegetation village vegetation community. Short-term materials, thinning remaining vegetation, and adverse impacts on vegetation would be removing invasive species would be beneficial negligible to minor. The long-term adverse for the remaining vegetation, and negligibly impacts of installing the water and wastewater adverse for vegetation completely removed. systems would be negligible.
Some vegetation would be disturbed or During installation of the electrical system, removed to install electrical lines, potable some vegetation disturbance could be water lines, and the central wastewater required. Even though more of the structures
89 ENVIRONMENTAL CONSEQUENCES would be occupied, the extent of disturbance prevent the introduction or spread of invasive required to install electricity in the occupied species in newly disturbed areas as well as to structures would be no greater than under the reduce the potential for soil erosion. Once the no-action alternative. The short-term adverse structures have been moved, the areas that impacts associated with installation of the were formerly occupied would be revegetated electrical system would be negligible. Because with native species. The short-term adverse the electrical lines would be buried, the long- impacts on vegetation in the historic district term adverse impacts on vegetation from would be minor because the impacts would maintenance activities would be negligible. still be localized and would not impact the viability of the vegetation community on Installing a central wastewater treatment South Core Banks as a whole. There would be system would require the removal of some beneficial long-term impacts because of the vegetation to accommodate the system as well increase in total coverage of native vegetation as the disturbance or removal of some vegeta- in the district. There would be adverse long- tion during installation of the water lines. term impacts on vegetation at the sites the Development of the central treatment system structures would be relocated to. These and installation of the water lines would have impacts would be limited because the reloca- a localized impact on the abundance or tion sites have been previously disturbed and distribution of some species, but the adverse the vegetation consists primarily of grasses. impacts would not be so great that the viability The impacts would be negligible because the of the vegetation community in the historic abundance and distribution of individual district would decrease. To reduce the adverse species, ecological processes, and biological impacts of these actions, NPS staff would seek productivity would not be appreciably to remove the least amount of vegetation affected at the site. practicable during installation of the water system. In addition, best management prac- Selective vegetation removal would be tices would be used to prevent the introduc- undertaken in the district to provide a tion or spread of invasive species in newly semblance of the more open views that existed disturbed areas as well as to reduce the during the district’s period of significance. potential for soil erosion. The impacts (even Before removing any vegetation, NPS staff with mitigation) would increase such that the would analyze the potential adverse impacts short-term adverse impacts would be from vegetation removal relative to storm / negligible to minor. hurricane impacts such as storm surge, waves, and overwash as well as the impacts on Under this alternative, three structures (the wildlife habitat. Vegetation removal would be 1887 Life-Saving Station, the 1924 Life-Saving carried out in stages to support reestablish- Station Boat House, and the 1907 Lighthouse ment of the historic views while potentially Keeper’s Quarters) would be relocated to retaining some vegetation to provide shade in their original site locations. The adverse the village. During the initial stage, only aged, impacts of relocating the historic structures diseased, and invasive plant species would be on vegetation in the historic district would be removed. If additional work is required to the same as for alternative B. These actions recreate the historic views, NPS staff would would require removal and disturbance of consider removing tree limbs and thinning vegetation within the historic district. To remaining vegetation before complete reduce the adverse impacts of these actions, removal. Preference would be given to NPS staff would seek to remove the least removing foundation plantings and shrubs amount of vegetation practicable during before shade trees, particularly in the village. structure relocation. In addition, best management practices would be used to
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Under this alternative, the adverse impacts Some vegetation would be disturbed or from restoring the historic views and the removed to install electrical lines, potable character of the district’s setting would be the water lines, and the wastewater treatment same as for the action alternatives. There system. The extent of disturbance for the would be an impact on the abundance and electric lines would be localized and the long- distribution of some species within the district term adverse impacts would be negligible. but this would have minimal impact on the Installing the potable water lines and the vegetation across the South Core Bank as a infrastructure for the central wastewater whole. The short-term adverse impacts on treatment system would disturb vegetation in vegetation from efforts to re-create the the village over a larger area than alternative B. historic views would be negligible to minor. The long-term adverse impacts of these The long-term impacts would be both adverse actions would be negligible to minor. and beneficial. The adverse impacts on abundance and distribution of some species Efforts to restore historic views in the village would be negligible and would continue long would have long term beneficial cumulative term. The removal of aged and diseased impacts on the remaining vegetation because vegetation material and thinning the the overall health of the community would be remaining vegetation would have a beneficial improved and native species would be impact on the health of the remaining encouraged in disturbed areas. These impacts vegetation, and negligible adverse impacts on would not result in impairment of national vegetation completely removed. seashore resources.
Cumulative Impacts. There are no past, present, or reasonably foreseeable future Alternative E actions at the national seashore that would impact vegetation in South Core Banks. Analysis. The adverse impacts on vegetation in the historic district would be the same as Conclusion. Implementation of alternative D those anticipated for alternative D. The same would have greater adverse impacts on mitigation measures described under vegetation in the historic district than the no- alternative A would be used for alternative E. action alternative because additional Twelve of the historic structures would be vegetation would be disturbed or removed to rehabilitated for occupancy and would have install potable water lines to 12 of the historic potable water. Although the adverse impacts structures, install a central wastewater on vegetation would be concentrated in the treatment system, and relocate three historic same geographic area of the village, the degree structures back to their original site locations. of disturbance would be greater under this alternative than for alternative B because the Negligible short-term adverse impacts on water and wastewater infrastructure necessary vegetation would result from removing some to support occupancy of 12 structures would vegetation to provide defensible space around be larger. These actions could impact the the historic structures and to partially restore abundance and distribution of individual the character and views associated with the species within the village, but would be district’s period of significance. However, the unlikely to impact the overall viability of the long-term impacts of removing aged, diseased village vegetation community. Short-term and hazard tree limbs and other vegetation adverse impacts on vegetation would be materials, thinning remaining vegetation, and negligible to minor. The long-term adverse removing invasive species would be beneficial impacts of installing the water and wastewater for the remaining vegetation, and negligibly system would be negligible. adverse for vegetation completely removed.
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During installation of the electrical system, disturbance of vegetation within the historic some vegetation disturbance could be district. To reduce the adverse impacts of required. Even though more of the structures these actions, NPS staff would seek to remove would be occupied, the extent of disturbance the least amount of vegetation practicable required to install electricity in the occupied during structure relocation. In addition, best structures would be no greater than under the management practices would be used to no-action alternative. The short-term adverse prevent the introduction or spread of invasive impacts associated with installing the species in newly disturbed areas as well as to electrical system would be negligible. Because reduce the potential for soil erosion. Once the the electrical lines would be buried, the long- structures have been moved, the areas that term adverse impacts on vegetation from were formerly occupied would be revegetated maintenance activities would also be with native species. The short-term adverse negligible. impacts on vegetation in the historic district would be minor because the impacts would Installing a central wastewater treatment still be localized and would not impact the system would require the removal of some viability of the vegetative community on South vegetation to accommodate the system as well Core Banks as a whole. There would be as the disturbance or removal of some beneficial long-term impacts because of the vegetation during installation of the water increase in total coverage of native vegetation lines. Development of the central treatment in the district. There would be adverse long- system and installation of the water lines term impacts on vegetation at the sites the would have a localized impact on the structures would be relocated to. These abundance or distribution of some species, impacts would be limited because the reloca- but the adverse impacts would not be so great tion sites have been previously disturbed and that the viability of the vegetative community the vegetation consists primarily of grasses. in the historic district would decrease. To The impacts would be negligible because the reduce the adverse impacts of these actions, abundance and distribution of individual NPS staff would seek to remove the least species, ecological processes, and biological amount of vegetation practicable during productivity would not be appreciably installation of the water system. In addition, affected at the site. best management practices would be used to prevent the introduction or spread of invasive Selective vegetation removal would be species in newly disturbed areas as well as to undertaken in the district to provide a reduce the potential for soil erosion. Because semblance of the more open views that existed the area impacted would be larger than the during the district’s period of significance. area in alternative B, the adverse impacts Before removing any vegetation, NPS staff (even with mitigation) would increase such would analyze the potential adverse impacts that the short-term adverse impacts would be from vegetation removal relative to storm / negligible to minor. hurricane impacts such as storm surge, waves, and overwash, as well as the impacts on Under this alternative three historic structures wildlife habitat. Vegetation removal would be (the 1887 Life-Saving Station, the 1924 Life- carried out in stages to support reestablish- Saving Station Boat House, and the 1907 ment of the historic views while potentially Lighthouse Keeper’s Quarters) would be retaining some vegetation to provide shade in relocated to their original site locations. The the village. During the initial stage, only aged, adverse impacts of relocating the historic diseased, and invasive plant species would be structures on the vegetation in the historic removed. If additional work was required to district would be the same as for alternative B. re-create the historic views, NPS staff would These actions would require removal and consider removing tree limbs and thinning
92 Natural Resources remaining vegetation before complete materials, thinning remaining vegetation, and removal. Preference would be given to removing invasive species would be beneficial removing foundation plantings and shrubs for the remaining vegetation, and negligibly before shade trees, particularly in the village. adverse for vegetation completely removed.
Under this alternative, the adverse impacts Some vegetation would be disturbed or from restoring the historic views and removed to install electrical lines, potable character of the district’s setting would be the water lines, and the wastewater treatment same as for the action alternatives. There system. The extent of disturbance for the would be an impact to the abundance and electrical lines would be localized, and the distribution of some species within the long-term adverse impacts would be district, but this would have minimal impact negligible. Installing the potable water lines on vegetation across the South Core Banks as and the infrastructure for the central a whole. The short-term adverse impacts on wastewater treatment system would disturb vegetation from efforts to restore the historic vegetation in the village over a larger area than views would be negligible to minor. The long- alternative B. The long-term adverse impacts term impacts would be both adverse and of these actions would be negligible to minor. beneficial. The adverse impacts on abundance Efforts to restore historic views in the village and distribution of some species would would have long-term beneficial cumulative continue long term. The removal of aged and impacts on the remaining vegetation because diseased vegetation material and thinning the the overall health of the community would be remaining vegetation would have a beneficial improved and native species would be impact on the health of the remaining encouraged in disturbed areas. These impacts vegetation, and negligible adverse impacts on would not result in impairment of national vegetation completely removed. seashore resources.
Cumulative Impacts. There are no past, present, or reasonably foreseeable future WATER QUALITY actions at the national seashore that would impact vegetation in South Core Banks. Definitions of Intensity Levels
Conclusion. Implementation of alternative E The relationship of pollution sources to exist- would have greater adverse impacts on ing water quality at Cape Lookout National vegetation in the historic district than the no- Seashore has not been sufficiently studied and action alternative because additional modeled to quantitatively assess impacts. In vegetation would be disturbed or removed to addition, potential impacts of actions com- install potable water lines to 12 of the historic prising the alternatives for the most part can- structures, install a central wastewater not be defined relative to site-specific loca- treatment system, and relocate three historic tions. Consequently, water quality impacts of structures back to their original site locations. the alternatives were assessed qualitatively.
Negligible short-term adverse impacts on Negligible: An action would have no vegetation would result from removing some measurable or detectable effect on water vegetation to provide defensible space around quality. the historic structures and to partially restore Minor: An action would have measurable the character and views associated with the effects on water quality. Water quality district’s period of significance. However, the effects could include but would not be long-term impacts of removing aged, diseased limited to increased or decreased and hazard tree limbs and other vegetation concentrations of chemical or toxic
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substances or pathogenic organisms. likely appreciably affect terrestrial, estuarine, Effects could also include changes in or marine habitats. The long-term adverse habitat. impact on water quality from this volume of Moderate: An action would have clearly fresh water would be negligible. detectable effects on water quality and potentially would affect organisms or Cumulative Impacts. There are no past, natural ecological processes. present, or reasonably foreseeable future Alternatively, an impact would be visible actions at the national seashore that would to visitors. impact water resources on South Core Banks. Major: An action would have substantial effects on water quality and potentially Conclusion. Under the no-action alternative, would affect organisms or natural the long-term adverse impacts on water ecological processes. Alternatively, an quality from use of two septic systems would impact would be easily visible to visitors. be negligible. The impacts on water quality would be minimized through the use of systems that are designed to provide some No-Action Alternative pretreatment of effluent. The long-term impacts on habitats from changes in water Analysis. Under this alternative, two new quality would be negligible because so little septic systems would be installed in the water would be introduced into the environ- historic village. Because there would be no on- ment. There would be no cumulative impacts site interpretation related to the village, use of on water quality from implementing this the septic systems would be expected to be alternative. The adverse impacts from low. The type of septic system used would be implementing this alternative would not appropriate for low use conditions and would constitute impairment of national seashore be sited to maximize the distance from the resources. water table to the tank and the leachfield. Because the soils on the island would provide little natural attenuation of nitrogen in the Alternative A effluent, the septic system would also include some form of pretreatment to minimize the Analysis. Under this alternative, the impacts final nitrogen concentration in the effluent. on water quality would be greater than in the Nitrogen is typically in limited supply in no-action alternative because three of the coastal systems, so an increase in the nitrogen structures would be rehabilitated for use by concentration could contribute to an increase NPS staff and volunteers. With residential use, in productivity within a localized area of the the volume of effluent from the septic systems Sound. The short-term impacts on water would be greater. The long-term adverse quality from the installation of the septic impacts on water quality would be negligible systems would be negligible because of the because the systems would be designed to design characteristics of the system. Because minimize the concentration of nitrogen in the visitor use of the systems would be expected effluent. Under this alternative, the long-term to be low, the impacts of the two septic adverse impacts of the freshwater effluent systems on water quality in the national would be negligible because the volume seashore would be adverse but negligible in generated would not be expected to adversely the long term. Because use of the septic affect seashore habitats. The adverse impacts systems would be expected to be low, the from implementing this alternative would not volume of fresh water that would be constitute impairment of national seashore introduced into the environment at the resources. seashore would be low and so would not
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Cumulative Impacts. There are no past, in the field would be employed to the extent present, or reasonably foreseeable future practicable. These efforts could include a actions at the national seashore that would vegetative cover over the area where the impact water resources on South Core Banks. treated effluent is discharged. The short-term adverse impacts on water quality from central- Conclusion. Under alternative A, the long- ized treatment would be negligible because all term adverse impacts on water quality from construction would occur above the water use of two septic systems would be negligible. table. The impacts on water quality would be mini- mal because systems would be designed to Although some soil disturbance would occur, provide some pretreatment of effluent. The the likelihood of impacting water quality from long-term impacts on habitats from changes in runoff is very low because the disturbance water quality would be negligible because so would not be in the vicinity of the coast or little water would be introduced into the surface water sources on the island. The long- environment. There would be no cumulative term adverse impacts on water quality in the impacts on water quality from implementing surficial aquifer associated with occupancy of this alternative. The adverse impacts from the structures would be negligible because the implementing this alternative would not wastewater would be treated to meet state constitute impairment of national seashore standards. Over the long term, the volume of resources. effluent discharged into the aquifer would have a beneficial impact on terrestrial systems by increasing the amount of fresh water avail- Alternative B able to vegetation and potentially to wildlife through the freshwater wetlands. The volume Analysis. Under alternative B, four of the of effluent discharged would be unlikely to historic structures would be rehabilitated for change the freshwater / saltwater interface use by NPS staff and volunteers. The potential and volume of freshwater discharge into the adverse impacts on water quality from the estuarine or marine systems. Therefore, the increased number of NPS staff and volunteers adverse impacts would be negligible. that could be accommodated in the village would be similar to alternative A because the Cumulative Impacts. There are no past, volume of wastewater generated would not present, or reasonably foreseeable future substantially increase over the volume actions at the national seashore that would generated under alternative A. Under this impact water resources on South Core Banks. alternative, the structures would be connected to a central wastewater treatment system Conclusion. The adverse water quality designed to meet applicable state wastewater impacts from alternative B would be greater quality standards. Like the septic systems, than the no-action alternative because struc- central wastewater treatment would require tures in the village would be occupied. The development of an infiltration / evaporation long-term adverse impacts on water quality system to dispose of the treated effluent. The from the increased number of NPS staff and size of the infiltration / evaporation system volunteers that could be accommodated in the would be determined by the number of staff village would be negligible. In the long term, and volunteers expected to use the structures the volume of effluent discharged into the at any one time. Because the water table is aquifer would have a beneficial impact on relatively high and there is little organic matter terrestrial systems by increasing the amount of in the soil, the travel time for the discharge to fresh water available to island vegetation and reach the aquifer would be relatively short. potentially to wildlife through the freshwater Efforts to increase the time that the effluent is wetlands. The volume of effluent discharged
95 ENVIRONMENTAL CONSEQUENCES would be unlikely to change the freshwater / under this alternative would be greater than saltwater interface and the volume of fresh- under alternative B. In the long term, the water discharge into the estuarine or marine effluent discharged into the aquifer would systems. Therefore, the adverse impacts have a beneficial impact on terrestrial systems would be negligible. There would be no by increasing the amount of fresh water cumulative impacts on water quality from available to vegetation and potentially to implementing this alternative. The adverse wildlife through the freshwater wetlands. The impacts from implementing this alternative volume of effluent discharged would be would not constitute impairment of national unlikely to change the fresh water / salt water seashore resources. interface and volume of freshwater discharge into the estuarine or marine systems. Therefore, the adverse impacts would be Alternative C negligible.
Analysis. Under alternative C, seven Cumulative Impacts. There are no past, structures would be rehabilitated for use by present, or reasonably foreseeable future NPS staff and volunteers and private lease- actions at the national seashore that would holders. The seven structures would be impact water resources on South Core Banks. connected to the potable water system and proposed central wastewater treatment Conclusion. The volume of wastewater system. The centralized wastewater treatment generated under alternative C would increase system would be designed to meet applicable over the volume generated under alternative B state wastewater quality standards. More because additional structures would be wastewater would be generated under this occupied. The long-term adverse impacts on alternative than alternative B because a greater water quality in the surficial aquifer associated number of structures would likely be with occupancy of the structures would be occupied at any given time. The size of the negligible because the effluent from the infiltration / evaporation system would likely centralized treatment would be treated to be larger than the one developed under meet state standards. In the long term, the alternative B to handle a greater volume of volume of effluent discharged into the aquifer effluent. Because the water table is relatively would have a beneficial impact on terrestrial high and there is little organic matter in the systems by increasing the amount of fresh soil, the travel time for the discharge to reach water available to island vegetation and the aquifer would be relatively short. Efforts potentially to wildlife through the freshwater to increase the time that the effluent is in the wetlands. The volume of effluent discharged field would be employed to the extent would be unlikely to change the freshwater / practicable. These efforts could include a saltwater interface and the volume of vegetative cover over the area where the freshwater discharge into the estuarine or treated effluent is discharged. marine systems. Therefore, the adverse impacts would be negligible. There would be The short-term adverse impacts on water no cumulative impacts on water quality from quality during construction of the system implementing this alternative. The adverse would be the same as for alternative B and impacts from implementing alternative C would be negligible. The long-term adverse would not constitute impairment of national impacts on water quality in the surficial seashore resources. aquifer associated with occupancy of the structures would be negligible because the wastewater would be treated to meet state standards. The volume of effluent discharged
96 Natural Resources
Alternative D amount of fresh water available to vegetation and potentially to wildlife through the Analysis. The potential impacts on water freshwater wetlands. If the volume of effluent quality under alternative D would be greater discharged is greater than can be assimilated than for alternative B because 12 of the by the aquifer, the freshwater / saltwater structures would be rehabilitated for occu- interface and volume of freshwater discharge pancy. The 12 structures would be connected into the estuarine or marine systems would to the potable water system and proposed increase and have an adverse impact on these central wastewater treatment system. The habitats. The adverse impacts would be centralized wastewater treatment system localized and negligible to minor depending would be designed to meet applicable state on the volume of fresh water discharged. wastewater quality standards. The eight structures not used by NPS staff and volun- Cumulative Impacts. There are no past, teers would be managed by a concessioner. present, or reasonably foreseeable future The structures used by the concessioner actions at the national seashore that would would likely see nearly continuous use impact water resources on South Core Banks. throughout the April to November visitation season. Consequently, the wastewater treat- Conclusion. The volume of wastewater ment system and the infiltration / evaporation generated under alternative D would increase system would need to be larger than in alter- over the volume generated under alternative native B to accommodate the volume of waste B. The long-term adverse impacts on water and effluent generated. The long-term adverse quality in the surficial aquifer associated with impacts on water quality in the surficial occupancy of the structures would be aquifer associated with occupancy of the negligible because the wastewater would be structures would be negligible because the treated to meet state standards. In the long wastewater would be treated to meet state term, the volume of effluent discharged into standards. Because the water table is relatively the aquifer could have both beneficial and high and there is little organic matter in the adverse impacts on seashore habitats. The soil, the travel time for the discharge to reach impact on terrestrial systems would be the aquifer would be relatively short. Efforts beneficial because of the increased amount of to increase the time that the effluent is in the fresh water available to island vegetation and field would be employed to the extent potentially to wildlife through the freshwater practicable. These efforts could include a wetlands. If the volume of effluent discharged vegetative cover over the area where the exceeds the assimilative capacity of the treated effluent is discharged. The short-term aquifer, there could be a long-term adverse adverse impacts on water quality during con- impact on estuarine and marine systems. The struction of the system would be the same as adverse impacts would be localized and for alternative B, negligible. The long-term negligible to minor. There would be no adverse impacts on water quality in the sur- cumulative impacts on water quality from ficial aquifer associated with occupancy of the implementing this alternative. The adverse structures would be negligible because the impacts from implementing alternative D wastewater would be treated to meet state would not constitute impairment of national standards. seashore resources.
In the long term, the volume of effluent discharged into the aquifer could have both Alternative E beneficial and adverse impacts on seashore habitats. The impact on terrestrial systems Analysis. The potential impacts on water would be beneficial because of the increased quality under alternative E would be about the
97 ENVIRONMENTAL CONSEQUENCES same as for alternative D because 12 of the fresh water available to vegetation and structures would be rehabilitated for occu- potentially to wildlife through the freshwater pancy. The 12 structures would be connected wetlands. If the volume of effluent discharged to the potable water system and proposed is greater than can be assimilated by the central wastewater treatment system. The aquifer, the freshwater / saltwater interface centralized wastewater treatment system and volume of freshwater discharge into the would be designed to meet applicable state estuarine or marine systems would increase wastewater quality standards. The eight and have an adverse impact on these habitats. structures not used by NPS staff and volun- The impacts would be localized and negligible teers would be managed either by a conces- to minor. sioner or through a long-term lease. Although the expected occupancy rate could vary more Cumulative Impacts. There are no past, under this alternative than under alternative present, or reasonably foreseeable future D, this variation would not likely change the actions at the national seashore that would infrastructure requirements for centralized impact water resources on South Core Banks. wastewater treatment or the volume of effluent generated. The long-term adverse Conclusion. The volume of wastewater impacts on water quality in the surficial generated under alternative E would be about aquifer associated with occupancy of the the same as for alternative D. The long-term structures would be negligible because the adverse impacts on water quality in the wastewater would be treated to meet state surficial aquifer associated with occupancy of standards. The volume of effluent discharged the structures would be negligible because the under this alternative would be greater than wastewater would be treated to meet state under alternative B because a greater number standards. In the long term, the volume of of structures would likely be occupied at any effluent discharged into the aquifer could given time. The size of the infiltration / have both beneficial and adverse impacts on evaporation system would be larger than the seashore habitats. The impact on terrestrial one developed under alternative B in order to systems would be beneficial because of the handle a greater volume of effluent. Because increased amount of fresh water available to the water table is relatively high and there is island vegetation and potentially to wildlife little organic matter in the soil, the travel time through the freshwater wetlands. If the for the discharge to reach the aquifer would volume of effluent discharged exceeds the be relatively short. Efforts to increase the time assimilative capacity of the aquifer, there that the effluent is in the field would be could be a long-term adverse impact on employed to the extent practicable. These estuarine and marine systems. The adverse efforts could include a vegetative cover over impacts would be localized and negligible to the area where the treated effluent is minor. There would be no cumulative impacts discharged. on water quality from implementing this alternative. The adverse impacts from In the long term, the volume of effluent implementing alternative E would not discharged into the aquifer could have both constitute impairment of national seashore beneficial and adverse impacts on seashore resources. habitats. The impact on terrestrial systems would be beneficial because of the increase in
98
NATIONAL SEASHORE OPERATIONS
DEFINITIONS OF INTENSITY LEVELS construction of two new septic systems for the district. The maintenance staff would oversee Negligible: NPS operations would not be the above undertakings and would retain affected or the effect would be at or ongoing maintenance responsibility for opera- below the lower levels of detection and tion of the district’s infrastructure, repair of would not have an appreciable effect on historic structures, and management of the NPS operations. cultural landscape. Implementation of these Minor: The effects would be detectable, but actions would result in long-term minor to would be of a magnitude that would not moderate adverse impacts on NPS facilities have an appreciable effect on NPS operations. operations. Moderate: The effects would be readily The expense associated with delivering apparent and would result in a substantial construction materials to the cape would be change in NPS operations in a manner anticipated to increase the initial capital outlay noticeable to staff and the public. for construction as compared with similar Major: The effects would be readily apparent construction on the mainland. The costs and would result in a substantial change associated with implementing the above in NPS operations in a manner noticeable actions would need to be addressed by to staff and the public and be markedly additional funding allocations to the national different from existing operations. seashore’s budget for short-term capital improvements and long-term operations. The adverse impacts on the national seashore’s NO-ACTION ALTERNATIVE budgetary allocations for maintenance opera- tions would be both short term and long term, Analysis and minor to moderate.
Stabilization of 13 structures in the Cape Lookout Village Historic District would Cumulative Impacts require NPS facilities and maintenance staff to undertake substantial management of Other projects either underway or proposed construction activities necessary to make the that would have a cumulative impact on properties safe, weather resistant, and national seashore operations are facility structurally sound. In addition to addressing improvements for visitor use in the vicinity of standard construction practices, NPS staff the lighthouse, rehabilitation of the light- would have the further responsibilities of house, implementation of recommendations ensuring that approved stabilization measures from the “Draft Cultural Landscape Report,” are carried out in accordance with the and potential facility / visitor use improve- Secretary’s Standards to avoid the loss or ments resulting from implementing the damage of historic fabric and character- commercial services plan (in progress). These defining features. Additional actions placing projects would enhance the long-term demands on the limited facilities management protection and integrity of the historic district, staff would be removal of two noncontribu- and improve the visitor experience. However, ting properties, renovation of space in the they entail additional expenses and demands 1873 Lighthouse Keeper’s Quarters for NPS on the budget and staff, thereby having long- staff and volunteers, connection of village term, minor to moderate adverse cumulative structures to upgraded electrical service, and impacts on national seashore operations.
99 ENVIRONMENTAL CONSEQUENCES
Consequently, the impacts of the other oversee these undertakings, and would retain actions described above, in combination with ongoing maintenance responsibility for opera- the impacts of the no-action alternative, tion of the district’s infrastructure, repair of would result in minor to moderate adverse historic structures, and management of the cumulative impacts on national seashore cultural landscape. Implementation of these operations. actions would result in long-term minor to moderate adverse impacts on NPS facilities operations Conclusion The expense associated with delivering con- Long-term minor to moderate adverse struction materials to the cape would increase impacts on national seashore operations the initial capital outlay for construction com- would be anticipated from the no-action alter- pared with similar construction on the main- native as a result of the increased expense and land. The costs associated with implementing requirements for facilities management staff the above actions would need to be addressed to stabilize and maintain historic structures by additional funding allocations to the and carry out other proposed undertakings. national seashore’s budget for short-term The overall cumulative impacts on national capital improvements and long-term opera- seashore operations would also be long-term, tions. The adverse impacts on the national minor to moderate, and adverse. seashore’s budgetary allocations for maintenance operations would be both short term and long term, and minor to moderate. ALTERNATIVE A
Analysis Cumulative Impacts
Stabilization of 13 structures and rehabilita- Other projects either underway or proposed tion of 3 structures in the Cape Lookout that would have a cumulative impact on Village Historic District would require NPS national seashore operations are facility facilities and maintenance staff to undertake improvements for visitor use in the vicinity of substantial management of construction the lighthouse, rehabilitation of the activities necessary to make the properties lighthouse, implementation of recommenda- safe, weather resistant, structurally sound, and tions from the “Draft Cultural Landscape suited for adaptive use. In addition to addres- Report,” and potential facility / visitor use sing standard construction practices, NPS improvements resulting from the Commercial staff would have to ensure that approved Services Plan (in progress). These projects stabilization and rehabilitation measures were would enhance the long-term protection and carried out in accordance with the Secretary’s integrity of the historic district and improve Standards to avoid the loss or damage of the visitor experience. However, they entail historic fabric and character-defining features. additional expenses and demands on the Additional actions placing demands on the budget and staff of the national seashore’s limited facilities management staff would be facilities management division for construc- removal of two noncontributing properties, tion and maintenance, thereby having long- renovation of space in the 1873 Lighthouse term, minor to moderate adverse cumulative Keeper’s Quarters for NPS staff and volun- impacts on national seashore operations. teers, connection of village structures to Consequently, the impacts of the other upgraded electrical service and potable water, actions described above, in combination with and construction of three new septic systems the impacts of the alternative A, would result for the district. The maintenance staff would
100 National Seashore Operations in minor to moderate adverse cumulative retain ongoing maintenance responsibility for impacts on national seashore operations. operation of the district’s infrastructure, repair of historic structures, and management of the cultural landscape. Implementing these Conclusion actions would result in long-term minor to moderate adverse impacts on the national Long-term minor to moderate adverse seashore’s facilities operations. impacts on national seashore operations would be anticipated from implementing The expense associated with delivering con- alternative A as a result of the increased struction materials to the cape would increase expense and requirements for facilities the initial capital outlay for construction management staff to stabilize, rehabilitate, and compared with similar construction on the maintain historic structures and carry out mainland. The costs associated with imple- other proposed undertakings. The overall menting the above actions would need to be cumulative impacts on national seashore addressed by additional funding allocations to operations would also be long term, minor to the national seashore’s budget for short-term moderate, and adverse. capital improvements and long-term opera- tions. Additional staff might be needed in the maintenance division, such as a wastewater ALTERNATIVE B facilities technician to manage the wastewater treatment system. The adverse impacts on the Analysis national seashore’s budgetary allocations for maintenance operations and staffing would be Stabilization of 13 structures and rehabilita- both short term and long term, and minor to tion of 4 structures in the Cape Lookout moderate. Village Historic District would require national seashore facilities and maintenance staff to undertake substantial management of Cumulative Impacts construction activities necessary to make the properties safe, weather resistant, structurally Other projects either underway or proposed sound, and suited for adaptive use. In addition that would have a cumulative impact on to addressing standard construction practices, national seashore operations are facility staff would have to ensure that approved improvements for visitor use in the vicinity of stabilization and rehabilitation measures were the lighthouse, rehabilitation of the carried out in accordance with the Secretary’s lighthouse, implementation of recommenda- Standards to avoid the loss or damage of tions from the “Draft Cultural Landscape historic fabric and character-defining features. Report,” and potential facility / visitor use Additional actions placing demands on the improvements resulting from the Commercial limited facilities management staff would be Services Plan (in progress). These projects removal of two noncontributing properties, would enhance the long-term protection and renovation of space in the 1873 Lighthouse integrity of the historic district and improve Keeper’s Quarters for NPS staff and volun- the visitor experience. However, they would teers, connection of village structures to entail additional expenses and demands on upgraded electrical service and potable water, the budget and staff of the national seashore’s and construction of a central waste water facilities management division for construc- treatment system for the district. Three tion and maintenance, thereby having long- historic structures would be relocated to their term, minor to moderate adverse cumulative original site locations. The maintenance staff impacts on national seashore operations. would oversee these undertakings, and would Consequently, the impacts of the other
101 ENVIRONMENTAL CONSEQUENCES actions described above, in combination with be relocated to their original site locations. the impacts of alternative B, would result in The maintenance staff would oversee these minor to moderate adverse cumulative undertakings, and would retain ongoing impacts on national seashore operations. maintenance responsibility for operation of the district’s infrastructure, substantial repair of historic structures, and management of the Conclusion cultural landscape. Leaseholders selected for use of rehabilitated structures would be Long-term minor to moderate adverse responsible for routine maintenance and impacts on national seashore operations furnishings (but not for items anticipated to be would be anticipated from implementing used for interpretive purposes). Implementa- alternative B as a result of the increased tion of these actions would result in long-term expense and requirements for facilities moderate adverse impacts on national management staff to stabilize, rehabilitate, seashore facilities operations. relocate, and maintain historic structures and carry out other proposed undertakings. The The expense associated with delivering con- overall cumulative impacts on national struction materials to the cape would increase seashore operations would be long term, the initial capital outlay for construction minor to moderate, and adverse. compared with similar construction on the mainland. The costs associated with imple- menting the above actions would need to be ALTERNATIVE C addressed by additional funding allocations to the national seashore’s budget for short-term Analysis capital improvements and long-term opera- tions. It might be necessary to hire additional Stabilization of 13 structures and staff in the maintenance division (e.g., waste- rehabilitation of 7 structures in the Cape water facilities technician) and/or that Lookout Village Historic District would increased NPS law enforcement or inter- require national seashore facilities and pretive ranger presence be provided in the maintenance staff to undertake substantial historic district to address the greater levels of management of construction activities visitor use. The adverse impacts on the necessary to make the properties safe, weather national seashore’s budgetary allocations for resistant, structurally sound, and suited for maintenance operations and staffing would be adaptive use. In addition to addressing both short term and long term, and moderate. standard construction practices, staff would have to ensure that approved stabilization and rehabilitation measures were carried out in Cumulative Impacts accordance with the Secretary’s Standards to avoid the loss or damage of historic fabric and Other projects either underway or proposed character-defining features. Additional that would have a cumulative impact on actions placing demands on the limited national seashore operations are facility facilities management staff would be removal improvements for visitor use in the vicinity of of two noncontributing properties, renovation the lighthouse, rehabilitation of the light- of space in the 1873 lighthouse keeper’s house, implementation of recommendations quarters for NPS staff and volunteers, connec- from the “Draft Cultural Landscape Report,” tion of village structures to upgraded electrical and potential facility / visitor use improve- service and potable water, and construction of ments resulting from the Commercial Services a central waste water treatment system for the Plan (in progress). These projects would district. Also, three historic structures would enhance the long-term protection and
102 National Seashore Operations integrity of the historic district and improve actions placing demands on the limited the visitor experience. However, they entail facilities management staff would be removal additional expenses and demands on the of two noncontributing properties, renovation budget and staff of the national seashore’s of space in the 1873 Lighthouse Keeper’s facilities management division for con- Quarters for NPS staff and volunteers, struction and maintenance, thereby having connection of village structures to upgraded long-term, minor to moderate adverse electrical service and potable water, and cumulative impacts on national seashore construction of a central waste water treat- operations. Consequently, the impacts of the ment system for the district. Three historic other actions described above, in combination structures would be relocated to their original with the impacts of alternative C, would result site locations. The maintenance staff would in minor to moderate adverse cumulative oversee these undertakings and would retain impacts on national seashore operations. ongoing maintenance responsibility for operation of the district’s infrastructure, substantial repair of historic structures, and Conclusion management of the cultural landscape. Concessions operators selected for use of Long-term moderate adverse impacts on rehabilitated structures would be responsible national seashore operations would be for routine maintenance and furnishings (but anticipated from implementing alternative C not for items anticipated to be used for as a result of the increased expense and interpretive purposes). Implementation of requirements for facilities management staff these actions would result in long-term to stabilize, rehabilitate, relocate, and moderate adverse impacts on national maintain historic structures and carry out seashore facilities operations. other proposed undertakings. The overall cumulative impacts on national seashore The expense associated with delivering operations would be long term, minor to construction materials to the cape would be moderate, and adverse. anticipated to increase the initial capital outlay for construction compared with similar con- struction on the mainland. The costs associa- ALTERNATIVE D ted with implementing the above actions would need to be addressed by additional Analysis funding allocations to the national seashore’s budget for short-term capital improvements Stabilization of 13 structures and rehabilita- and long-term operations. It might be neces- tion of approximately 12 structures in the sary to hire additional staff in the maintenance Cape Lookout Village Historic District would division (e.g., wastewater facilities technician) require national seashore facilities and and/or that increased NPS law enforcement maintenance staff to undertake substantial or interpretive ranger presence be provided in management of construction activities the historic district to address the greater necessary to make the properties safe, weather levels of visitor use. The adverse impacts on resistant, structurally sound, and suited for the national seashore’s budgetary allocations adaptive use. In addition to addressing for maintenance operations and staffing standard construction practices, staff would would be both short term and long term, and have to ensure that approved stabilization and moderate. rehabilitation measures were carried out in accordance with the Secretary’s Standards to avoid the loss or damage of historic fabric and character-defining features. Additional
103 ENVIRONMENTAL CONSEQUENCES
Cumulative Impacts Cape Lookout Village Historic District would require national seashore facilities and main- Other projects either underway or proposed tenance staff to undertake substantial manage- that would have a cumulative impact on ment of construction activities necessary to national seashore operations are facility make the properties safe, weather resistant, improvements for visitor use in the vicinity of structurally sound, and suited for adaptive the lighthouse, rehabilitation of the light- use. In addition to addressing standard house, implementation of recommendations construction practices, staff would have to from the “Draft Cultural Landscape Report,” ensure that approved stabilization and and potential facility / visitor use improve- rehabilitation measures were carried out in ments resulting from the Commercial Services accordance with the Secretary’s Standards to Plan (in progress). These projects would avoid the loss or damage of historic fabric and enhance the long-term protection and character-defining features. Additional integrity of the historic district and improve actions placing demands on the limited the visitor experience. However, they would facilities management staff would be removal entail additional expenses and demands on of two noncontributing properties, renovation the budget and staff of the national seashore’s of space in the 1873 Lighthouse Keeper’s facilities management division for construc- Quarters for NPS staff and volunteers, tion and maintenance, thereby having long- connection of village structures to electrical term, minor to moderate adverse cumulative service and potable water, and construction of impacts on national seashore operations. a central waste water treatment system for the Consequently, the impacts of the other district. Three historic structures would be actions described above, in combination with relocated to their original site locations. The the impacts of alternative D, would result in maintenance staff would oversee these minor to moderate adverse cumulative undertakings, and would retain ongoing impacts on national seashore operations. maintenance responsibility for operation of the district’s infrastructure, substantial repair of historic structures, and management of the Conclusion cultural landscape. Concessions operators or leaseholders selected for use of rehabilitated Long-term moderate adverse impacts on structures would be responsible for routine national seashore operations would be maintenance and furnishings (but not for anticipated from implementing alternative D items anticipated to be used for interpretive as a result of the increased expense and purposes). Implementing these actions would requirements for facilities management staff result in long-term moderate adverse impacts to stabilize, rehabilitate, relocate, and on national seashore facilities operations. maintain historic structures and carry out other proposed undertakings. The overall The expense associated with delivering con- cumulative impacts on national seashore struction materials to the cape would increase operations would be long-term, minor to the initial capital outlay for construction moderate, and adverse. compared with similar construction on the mainland. The costs associated with imple- menting the above actions would need to be ALTERNATIVE E addressed by additional funding allocations to the national seashore’s budget for short-term Analysis capital improvements and long-term opera- tions. It might be necessary to hire additional Stabilization of 13 structures and rehabilita- staff in the maintenance division (e.g., tion of approximately 12 structures in the wastewater facilities technician) and/or that
104 National Seashore Operations increased NPS law enforcement or budget and staff of the facilities management interpretive ranger presence be provided in division for construction and maintenance, the historic district to address the greater thereby having long-term, minor to moderate levels of visitor use. The adverse impacts on adverse cumulative impacts on national sea- the national seashore’s budgetary allocations shore operations. Consequently, the impacts for maintenance operations and staffing of the other actions described above, in would be both short term and long term, and combination with the impacts of alternative E, moderate. would result in minor to moderate adverse cumulative impacts on national seashore operations. Cumulative Impacts
Other projects either underway or proposed Conclusion that would have a cumulative impact on national seashore operations are facility Long-term moderate adverse impacts on improvements for visitor use in the vicinity of national seashore operations would be the lighthouse, rehabilitation of the light- anticipated from implementing alternative E house, implementation of recommendations as a result of the increased expense and from the “Draft Cultural Landscape Report,” requirements for facilities management staff and potential facility / visitor use to stabilize, rehabilitate, relocate, and improvements resulting from the Commercial maintain historic structures and carry out Services Plan (in progress). These projects other proposed undertakings. The overall would enhance the long-term protection and cumulative impacts on national seashore integrity of the historic district and improve operations would be long term, minor to the visitor experience. However, they entail moderate, and adverse. additional expenses and demands on the
105
VISITOR USE AND EXPERIENCE
METHODOLOGY NO-ACTION ALTERNATIVE
NPS Management Policies 2006 state that the Analysis enjoyment of park resources and values is part of the fundamental purpose of all parks, and Under the no-action alternative, visitors to the that the National Park Service is committed to Cape Lookout Village Historic District would providing appropriate, high-quality have day-use opportunities to explore the opportunities for visitor enjoyment. district and see the outside of the stabilized historic structures. Limited vegetation Two of the national seashore’s long-term clearing would be undertaken. Although no goals include (1) determining alternative on-site interpretation would be provided, methods for providing visitor facilities given visitors would be able to gain some the difficulty of maintaining existing facilities appreciation of the district’s architectural with increased visitation, and (2) providing styles and spatial arrangement by observing information, interpretation, and education the structures. This would have a long-term (if that assists visitors in achieving a better limited) beneficial impact on visitor use and understanding of the unique natural and experience. Noise and other disruptions cultural history of the barrier islands. associated with construction activities in the historic district might introduce short-term Observation of visitation patterns combined minor to moderate adverse impacts on visitor with assessment of what is currently available use and experience, but these impacts would was used to estimate the impacts of the actions last only as long as the construction. under the various alternatives.
Cumulative Impacts. DEFINITIONS OF INTENSITY LEVELS Other projects either underway or proposed Negligible: The impact would be at or below that would have an impact on visitor use and the lower levels of detection and would experience are facility improvements in the not have an appreciable effect on visitors. vicinity of the lighthouse, rehabilitation of the Minor: The impact would be slight but lighthouse, and implementation of recom- detectable, would not occur in primary mendations from the “Draft Cultural resource areas, or would affect few Landscape Report” and Commercial Services visitors. Plan. The visitor experience in the lighthouse Moderate: The impact would be readily area of the historic district would be enhanced apparent, would occur in primary by the construction of new restrooms, resource areas, or would affect many removal of public vehicle parking to a location visitors. The impact would be clearly north of the district, and new facilities that detectable by visitors and could have an provide better visitor orientation and inter- appreciable effect on visitor experiences. pretation of the historic district’s significant Major: The impact would be severely adverse resources. Eventual rehabilitation and or exceptionally beneficial, would occur opening of the lighthouse to regular visitor in primary resource areas, or would affect access would further increase opportunities the majority of visitors. for more visitors to experience this iconic structure and its relationship to other portions of the district and the South Core Banks.
106 Visitor Use and Experience
Implementing recommendations for enhanc- to provide visitors a greater sense of the more ing the integrity of the district’s cultural open viewsheds that existed during the landscape (preserving historic patterns of district’s period of significance, would have circulation, spatial relationships among the long-term beneficial impacts on visitor use structures, etc.) would also improve the visitor and experience. Noise and other disruptions experience, along with other anticipated associated with construction activities in the improvements resulting from the Commercial historic district may introduce short-term Services Plan (in process). The above actions minor to moderate adverse impacts on visitor would have long-term beneficial impacts on use and experience, but these impacts would visitor use and experience. Consequently, the last only as long as the period of construction. beneficial impacts of the other actions described above, in combination with the adverse and beneficial impacts of the no- Cumulative Impacts action alternative, would result in overall beneficial cumulative impacts on visitor use Other projects either underway or proposed and experience. The no-action alternative that would have a cumulative impact on would contribute a small component of visitor use and experience are facility adverse impacts to the beneficial cumulative improvements in the vicinity of the lighthouse, impacts. rehabilitation of the lighthouse, and imple- mentation of recommendations from the “Draft Cultural Landscape Report” and Conclusion Commercial Services Plan. The visitor experience in the lighthouse area of the Long-term beneficial impacts would occur to historic district would be enhanced by the visitor use and experience under the no- construction of new restrooms, removal of action alternative because visitors would have public vehicle parking to a location north of day use opportunities to see and receive some the district, and new facilities that provide appreciation of the stabilized structures in the better visitor orientation and interpretation of historic district. Short-term minor to the historic district’s significant resources. moderate adverse impacts would occur to Eventual rehabilitation and opening of the visitor use and experience during construc- lighthouse to regular visitor access would tion. The overall cumulative impacts on visitor further increase opportunities for greater use and experience would be beneficial. numbers of visitors to experience this iconic structure, and its relationship to other portions of the district and the South Core ALTERNATIVE A Banks. Implementation of recommendations for enhancing the integrity of the district’s Analysis cultural landscape (e.g. preserving historic patterns of circulation, spatial relationships Under Alternative A, visitors to the Cape among the structures, etc.) would also serve to Lookout Village historic district would have improve the visitor experience, along with day use opportunities to explore the district other anticipated improvements resulting and see the outside of the stabilized and from the commercial services plan (in rehabilitated historic structures. Three process). The above actions would have long- structures would be renovated for inter- term beneficial impacts on visitor use and pretation which would further visitor experience. Consequently, the beneficial understanding of the Cape’s social and impacts of the other actions described above, architectural history. Enhanced interpreta- in combination with the adverse and tion, along with selective vegetation clearing beneficial impacts of alternative A, would
107 ENVIRONMENTAL CONSEQUENCES result in overall beneficial cumulative impacts Cumulative Impacts on visitor use and experience. Alternative A would contribute a small component of Other projects either underway or proposed adverse impacts to the beneficial cumulative that would have a cumulative impact on impacts. visitor use and experience are facility improvements in the vicinity of the lighthouse, rehabilitation of the lighthouse, and Conclusion implementation of recommendations from the “Draft Cultural Landscape Report” and Long-term beneficial impacts would occur to Commercial Services Plan. The visitor visitor use and experience under alternative A experience in the lighthouse area of the because visitors would have day use oppor- historic district would be enhanced by the tunities to view and receive interpretation of construction of new restrooms, removal of selected stabilized structures in the historic public vehicle parking to a location north of district. Selective vegetation clearing would the historic district, and new facilities that provide visitors a greater sense of the more provide better visitor orientation and inter- open viewsheds that existed during the pretation of the historic district’s significant district’s period of significance. Short-term resources. Eventual rehabilitation and minor to moderate adverse impacts would opening of the lighthouse to regular visitor occur to visitor use and experience during access would further increase opportunities construction. The overall cumulative impacts for more visitors to experience this iconic on visitor use and experience would be structure and its relationship to other portions beneficial. of the historic district and the South Core Banks. Implementing recommendations for enhancing the integrity of the district’s cul- ALTERNATIVE B tural landscape (preserving historic patterns of circulation, spatial relationships among the Analysis structures, etc.) would also improve the visitor experience, along with other anticipated Under alternative B, visitors to the Cape improvements resulting from the Commercial Lookout Village historic district would have Services Plan (in process). The above actions day use opportunities to explore the district would have long-term beneficial impacts on and see the outside of some stabilized and visitor use and experience. Consequently, the rehabilitated historic structures. Seven struc- beneficial impacts of the other actions tures would be renovated for interpretation, described above, in combination with the which would greatly enhance visitor under- adverse and beneficial impacts of alternative standing of the cape’s social and architectural B, would result in overall beneficial cumula- history. Enhanced interpretation, along with tive impacts on visitor use and experience. selective vegetation clearing to provide Alternative B would contribute a small visitors a greater sense of the more open views component of adverse impacts to the that existed during the district’s period of beneficial cumulative impacts. significance, would have long-term beneficial impacts on visitor use and experience. Noise and other disruptions associated with con- Conclusion struction activities in the historic district might introduce short-term minor to There would be long-term beneficial impacts moderate adverse impacts on visitor use and on visitor use and experience under alterna- experience, but these impacts would last only tive B because visitors would have day use as long as the construction. opportunities to see and receive interpretation
108 Visitor Use and Experience of selected stabilized structures in the historic implementation of recommendations from the district. Selective vegetation clearing would “Draft Cultural Landscape Report” and provide visitors a greater sense of the more Commercial Services Plan. The visitor open views that existed during the district’s experience in the lighthouse area of the period of significance. Short-term minor to historic district would be enhanced by the moderate adverse impacts would occur to construction of new restrooms, removal of visitor use and experience during construc- public vehicle parking to a location north of tion. The overall cumulative impacts on visitor the district, and new facilities that provide use and experience would be beneficial. better visitor orientation and interpretation of the historic district’s significant resources. Eventual rehabilitation and opening of the ALTERNATIVE C lighthouse to regular visitor access would further increase opportunities for more Analysis visitors to experience this iconic structure and its relationship to other portions of the his- Under alternative C, visitors to the Cape toric district and the South Core Banks. Lookout Village historic district would have Implementing recommendations for opportunities to explore the district and see enhancing the integrity of the district’s stabilized and rehabilitated historic structures. cultural landscape (preserving historic Three structures would be rehabilitated for patterns of circulation, spatial relationships use by private leaseholders, which would among the structures, etc.) would also provide overnight / extended-stay opportuni- improve the visitor experience, along with ties for a limited number of visitors. Most other anticipated improvements resulting visitors would still visit the historic district on from the Commercial Services Plan (in a day use basis. Eight structures would be process). The above actions would have long- renovated for interpretation, which would term beneficial impacts on visitor use and greatly enhance visitor understanding of the experience. Consequently, the beneficial cape’s social and architectural history. impacts of the other actions described above, Enhanced interpretation, along with selective in combination with the adverse and bene- vegetation clearing to provide visitors a ficial impacts of alternative C, would result in greater sense of the more open views that overall beneficial cumulative impacts on visi- existed during the district’s period of tor use and experience. Alternative C would significance, would have long-term beneficial contribute a small component of adverse impacts on visitor use and experience. Noise impacts to the beneficial cumulative impacts. and other disruptions associated with con- struction activities in the historic district might introduce short-term minor to Conclusion moderate adverse impacts on visitor use and experience, but these impacts would last only Long-term beneficial impacts would occur to as long as the construction. visitor use and experience due to substantially improved interpretive opportunities, selective vegetation clearing to enhance views, and the Cumulative Impacts limited availability of historic structures to private leaseholders for overnight or Other projects either underway or proposed extended-stay occupancy. Short-term minor that would have a cumulative impact on visi- to moderate adverse impacts would result tor use and experience are facility improve- from construction-related noise and dis- ments in the vicinity of the lighthouse, ruption in the district. Overall beneficial rehabilitation of the lighthouse, and cumulative impacts would be anticipated.
109 ENVIRONMENTAL CONSEQUENCES
ALTERNATIVE D lighthouse to regular visitor access would further increase opportunities for more Analysis visitors to experience this iconic structure and its relationship to other portions of the district Under alternative D, visitors to the Cape and the South Core Banks. Implementing Lookout Village historic district would have recommendations for enhancing the integrity opportunities to explore the district and see of the district’s cultural landscape (preserving stabilized and rehabilitated historic structures. historic patterns of circulation, spatial A minimum of eight structures would be relationships among the structures, etc.) rehabilitated for use by a concessions would also improve the visitor experience, operator, which would provide overnight / along with other anticipated improvements extended-stay opportunities for a larger resulting from the Commercial Services Plan number of visitors than alternative C. Visitors (in process). The above actions would have would still be able to visit the district on a day long-term beneficial impacts on visitor use use basis. Eight structures would be renovated and experience. Consequently, the beneficial for interpretation, which would greatly impacts of the other actions described above, enhance visitor understanding of the cape’s in combination with the adverse and bene- social and architectural history. Enhanced ficial impacts of alternative D, would result in interpretation, along with selective vegetation overall beneficial cumulative impacts on visi- clearing to provide visitors a greater sense of tor use and experience. Alternative D would the more open views that existed during the contribute a small component of adverse district’s period of significance, would have impacts to the beneficial cumulative impacts. long-term beneficial impacts on visitor use and experience. Noise and other disruptions associated with construction activities in the Conclusion historic district might introduce short-term minor to moderate adverse impacts on visitor Long-term beneficial impacts would occur to use and experience, but these impacts would visitor use and experience under alternative D last only as long as the construction. because of substantially enhanced interpretive opportunities, selective vegetation clearing to improve historic viewsheds, and the greater Cumulative Impacts availability of structures to more of the visiting public under a concessions operation for Other projects either underway or proposed overnight or extended-stay occupancy. There that would have a cumulative impact on would be short-term minor to moderate ad- visitor use and experience are facility verse impacts on visitor use and experience improvements in the vicinity of the lighthouse, during construction. The overall cumulative rehabilitation of the lighthouse, and imple- impacts on visitor use and experience would mentation of recommendations from the be beneficial. “Draft Cultural Landscape Report” and Commercial Services Plan. The visitor experi- ence in the lighthouse area of the historic ALTERNATIVE E district would be enhanced by the construc- tion of new restrooms, removal of public Analysis vehicle parking to a location north of the historic district, and new facilities that provide Under alternative E, visitors to the Cape better visitor orientation and interpretation of Lookout Village historic district would have the historic district’s significant resources. opportunities to explore the district and see Eventual rehabilitation and opening of the stabilized and rehabilitated historic structures.
110 Visitor Use and Experience
A minimum of eight structures would be the district, and new facilities that provide rehabilitated for use by a concessions operator better visitor orientation and interpretation of or by private leaseholders. This would provide the historic district’s significant resources. overnight / extended-stay opportunities for Eventual rehabilitation and opening of the larger numbers of visitors than under lighthouse to regular visitor access would alternative C if a concessions operator were to further increase opportunities for more manage most of the rehabilitated properties. visitors to experience this iconic structure and Opportunities for more of the visiting public its relationship to other portions of the district to have overnight experiences would be and the South Core Banks. Implementing correspondingly reduced by the number of recommendations for enhancing the integrity properties held by private leaseholders. of the district’s cultural landscape (preserving Visitors would still be able to visit the district historic patterns of circulation, spatial on a day use basis. relationships among the structures, etc.) would also improve the visitor experience, Eight structures would be renovated for along with other anticipated improvements interpretation, which would greatly further resulting from the Commercial Services Plan visitor understanding of the cape’s social and (in process). The above actions would have architectural history. Enhanced interpreta- long-term beneficial impacts on visitor use tion, along with selective vegetation clearing and experience. Consequently, the beneficial to provide visitors a greater sense of the more impacts of the other actions described above, open views that existed during the district’s in combination with the adverse and bene- period of significance, would have long-term ficial impacts of alternative E, would result in beneficial impacts on visitor use and experi- overall beneficial cumulative impacts on visi- ence. Noise and other disruptions associated tor use and experience. Alternative E would with construction activities in the historic contribute a small component of adverse district might introduce short-term minor to impacts to the beneficial cumulative impacts. moderate adverse impacts on visitor use and experience, but these impacts would last only as long as the construction. Conclusion
Long-term beneficial impacts would occur to Cumulative Impacts visitor use and experience under alternative E because of substantially enhanced interpretive Other projects either underway or proposed opportunities, selective vegetation clearing to that would have a cumulative impact on visi- improve historic views, and the availability of tor use and experience are facility improve- structures to visitors under a concessions ments in the vicinity of the lighthouse, operation or to private leaseholders for rehabilitation of the lighthouse, and overnight or extended-stay occupancy. There implementation of recommendations from the would be short-term minor to moderate “Draft Cultural Landscape Report” and adverse impacts on visitor use and experience Commercial Services Plan. The visitor during construction. The overall cumulative experience in the lighthouse area of the impacts on visitor use and experience would historic district would be enhanced by the be beneficial. construction of new restrooms, removal of public vehicle parking to a location north of
111
CONSULTATION AND COORDINATION, APPENDIX, GLOSSARY, SELECTED REFERENCES, AND PREPARERS
CONSULTATION AND COORDINATION
During the preparation of this reuse plan and Consultation with the U.S. Fish and Wildlife environmental assessment, the National Park Service took place on July 16, 2004 and in July Service has consulted with public agencies, 2006. The National Oceanic and Atmospheric organizations, and individuals having a stake Administration (Habitat Conservation in the project. Division) was sent a letter dated July 16, 2004. The North Carolina Department of Environ- Internal NPS scoping was conducted at the ment and Natural Resources (Division of national seashore headquarters on February Coastal Management) was sent a letter during 10-11, 2004. National seashore, NPS scoping dated July 20, 2004. The National Southeast Regional Office (SER), and NPS Park Service will seek a coastal zone Denver Service Center (DSC) staff conducted consistency determination concurrent with a public scoping workshop on April 24, 2004. the review of this document.
National seashore, SER, and DSC staff also A representative from the North Carolina conducted work sessions at the national Division of Archives and History, State seashore on June 22-23, 2004, and November Historic Preservation Office, has visited the 8-10, 2004, to develop plan alternatives. A historic district and participated in planning “Choosing by Advantages” workshop was meetings with NPS staff to provide input on subsequently held March 1-2, 2005, to select treatment options. In a letter dated October the preferred alternative. 30, 2006, the National Park Service notified the North Carolina Division of Archives and Public meetings on the preferred alternative History, State Historic Preservation Office, were conducted on January 25-26, 2005. about the current project, and the intent to evaluate impacts on cultural resources in Presentations on the plan have been made by accordance with the requirements of Section national seashore Superintendent Bob Vogel 106 of the National Historic Preservation Act to the following groups: and the National Environmental Policy Act. The National Park Service will provide the • North Carolina Maritime Museum, state historic preservation officer with a copy (Director, Beaufort, NC). of this plan and environmental assessment for • Cape Lookout Environmental Education compliance review. Center, (Board). • Friends of Cape Lookout, (Board, Information about this project was placed on Moorhead City, NC). the NPS planning website in 2004. A draft of this document is on the national seashore’s website for public review.
115
APPENDIX: BUILDINGS IN THE HISTORIC DISTRICT
116 Appendix
117 APPENDIX
118 Appendix
119 APPENDIX
120
GLOSSARY
Cultural Landscape — A reflection of human Defensible Space — An area (either man- adaptation and use of natural resources, often made or natural) around structures where expressed in the way land is organized and vegetation is modified to slow the rate and divided, patterns of settlement, land use, intensity of an advancing wildfire, or to systems of circulation, and the types of reduce the threat of structural damage due to structures that are built. The character of a falling tree limbs and other vegetation as a cultural landscape is defined both by physical result of storms and other natural events. materials such as roads, buildings, walls, and vegetation, and by use reflecting cultural Ethnographic Resource — A site, structure, values and traditions. object, landscape, or natural resource feature assigned traditional legendary, religious, Historic Properties — All cultural resources, subsistence, or other significance in the including archeological resources, cultural cultural system of a group traditionally landscapes, ethnographic resources, and associated with it. historic structures/buildings that are eligible for or listed in the National Register of Historic Places.
121
SELECTED REFERENCES
BHATE Environmental Engineers and 1995 The Secretary of the Interior’s Scientists Standards for the Treatment of 2004 “Preliminary Site Investigation Historic Properties(with Guidelines Report, Area of Concern 1 and 2, for Preserving, Rehabilitating, Cape Lookout National Seashore, Restoring and Reconstructing Historic Harkers Island, North Carolina.” Buildings). Kay D. Weeks and Anne Prepared for National Park Service, E. Grimmer. Cultural Resource Southeast Regional Office. Copy Stewardship and Partnerships, available at national seashore Heritage Preservation Services. headquarters. Washington, D.C. 1996 The Secretary of the Interior’s Dornbusch Associates Standards for the Treatment of 2005 “Economic Feasibility Study of Historic Properties (with Guidelines Potential Commercial Services at for the Treatment of Cultural Cape Lookout Village.” Copy Landscapes). Edited by Charles A. available at national seashore Birnbaum with Christine Capella headquarters. Peters. Cultural Resource Stewardship and Partnerships, Longleaf Historic Resources Heritage Preservation Services, 2000 National Register of Historic Places Historic Landscape Initiative. Registration Form: Cape Lookout Washington, D.C. Village Historic District. Form 2001 Amendment to General Management prepared by Ruth Little (Longleaf Plan and Environmental Assessment. Historic Resources, Raleigh, NC) Cape Lookout National Seashore, and amended by Claudia Brown North Carolina. Copy available at (North Carolina State Historic national seashore headquarters Preservation Office). Copy available 2004a “Cape Lookout National Seashore, at national seashore headquarters. Historic Structure Reports {1907 Keeper’s Dwelling, Coca-Cola National Park Service House, Gaskill-Guthrie House, 1976 “Cape Lookout National Seashore: Guthrie-Ogilvie House, Fishing Assessment of Archeological and Cottage No.2, O’Boyle-Bryant Historical Resources,” by John E. House, Lewis-Davis House, Coast Ehrenhard, Southeast Archeological Guard Station Boat House, Life- Center, Tallahassee, Florida. Copy Saving Station}.” Historical available at national seashore Architecture, Cultural Resources headquarters. Division, Southeast Regional Office 1982 General Management Plan / (Dan Scheidt, project manager; Development Concept Plan. Cape Tommy H. Jones, report author). Lookout National Seashore, North 2004b Personal Watercraft Use, Carolina. Copy available at national Environmental Assessment. Cape seashore headquarters. Lookout National Seashore, North Carolina. Denver Service Center. Copy available at national seashore headquarters.
122 Selected References
2005 Cape Lookout National Seashore, United States Department of Agriculture, Soil Cape Lookout Visitor Orientation Conservation Service Area DCP/EA. Denver Service 1977 “Soil Survey of the Outer Banks, Center, Denver, CO. Copy available North Carolina.” Copy available at at national seashore headquarters. national seashore headquarters. 2006 “Interim Protected Species Management Plan / Environmental Wiss, Janney, Elstner Associates, Inc. and John Assessment.” Cape Lookout Milner Associates, Inc. National Seashore, North Carolina. 2005 “Cape Lookout Village Cultural Copy available at national seashore Landscape Report (draft)” Cape headquarters. Lookout National Seashore, Carteret n.d. Lighthouse History, Cape Lookout County, North Carolina.” Prepared National Seashore, park website: for the National Park Service http://www.nps.gov/calo/lhouse.htm (Southeast Regional Office). Copy available at national seashore North Carolina State Historic Preservation headquarters. Office 2005 Letter to Superintendent Vogel from Peter Sandbeck regarding Cape Lookout Proposed Comfort Station and Visitor Orientation Area Environmental Assessment, Carteret County, ER05-1168. Copy available at national seashore headquarters.
123
PREPARERS
NPS DENVER SERVICE CENTER, CONTRIBUTORS PLANNING DIVISION Cape Lookout National Seashore B.J. Johnson, Section Chief Bob Vogel, Superintendent Carla McConnell, Project Manager Michael Rikard, Resource Management Erin Flanagan, Natural Resources Specialist Specialist Steve Whissen, Cultural Resources Specialist Wouter Ketel, Chief Park Ranger Mike McGee, Facility Manager
Southeast Regional Office Amy Wirsching, Outdoor Recreation Planner Rich Sussman, Chief of Planning
124 As the nation’s principal conservation agency, the Department of the Interior has the responsibility for most of our nationally owned public lands and natural resources. This includes fostering sound use of our land and water resources; protecting our fish, wildlife, and biological diversity; preserving the environmental and cultural values of our national parks and historical places; and providing for the enjoyment of life through outdoor recreation. The department assesses our energy and mineral resources and works to ensure that their development is in the best interests of all our people by encouraging stewardship and citizen participation in their care. The department also has a major responsibility for American Indian reservation communities and for people who live in island territories under U.S. administration.
NPS D-82 / February 2007 / Printed on recycled paper