Cultural and Historical Resources Recovery Planning in Puerto Rico Natural and Cultural Resources Sector Report, Volume II
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Cultural and Historical Resources Recovery Planning in Puerto Rico Natural and Cultural Resources Sector Report, Volume II SUSAN A. RESETAR, JAMES V. MARRONE, JOSHUA MENDELSOHN, AMY SCHWARTZMAN, DAVID M. ADAMSON HS AC HOMELAND SECURITY OPERATIONAL ANALYSIS CENTER An FFRDC operated by the RAND Corporation under contract with DHS rr2859_cover_v6.indd 1,3 9/3/20 10:01 AM Published in 2020 Preface On August 8, 2018, the government of Puerto Rico submitted to Congress its economic and disaster recovery plan, as required by the Bipartisan Budget Act of 2018. Under contract with the Federal Emergency Management Agency (FEMA), the Homeland Security Operational Analysis Center (HSOAC) provided substantial support in developing the plan by soliciting and integrating inputs from a wide variety of stakeholders, contributing analysis where needed, and drafting the plan. The plan included an overview of damage and needs, courses of action (COAs) to meet those needs, costs of the COAs, and potential funding mechanisms for those costs. To support federal agencies evaluating and funding recovery actions, HSOAC is releasing this detailed volume for the cultural resources sector. The work is based on data available during the time of the analysis, February 2018 to July 2018. The purpose of this document is to provide decisionmakers with any available information on the conditions in Puerto Rico prior to the 2017 hurricane season, damage from Hurricanes Irma and Maria, COAs that were identified to help the sector (and, more broadly, Puerto Rico) recover in a resilient manner, potential funding mechanisms, and considerations for implementers as they move forward. More information about HSOAC’s contribution to planning for recovery in Puerto Rico, along with links to other reports being published as part of this series, can be found at www.rand.org/hsoac/puerto-rico- recovery. This document will likely also be of interest to other stakeholders that are funding or implementing recovery activities in Puerto Rico, including government and local agencies, nongovernmental organizations, and the private sector. Furthermore, this body of material contributes to the larger literature about disaster recovery and resilience and may be of interest to other communities planning for or recovering from similar disasters. This research was sponsored by FEMA and conducted within the Strategy, Policy, and Operations Program of the HSOAC federally funded research and development center (FFRDC). About the Homeland Security Operational Analysis Center The Homeland Security Act of 2002 (Section 305 of Public Law 107-296, as codified at 6 U.S.C. § 185) authorizes the Secretary of Homeland Security, acting through the Under Secretary for Science and Technology, to establish one or more FFRDCs to provide independent analysis of homeland security issues. The RAND Corporation operates the HSOAC as an FFRDC for the U.S. Department of Homeland Security (DHS) under contract HSHQDC-16-D-00007. The HSOAC FFRDC provides the government with independent and objective analyses and advice in core areas important to the department in support of policy development, decisionmaking, alternative approaches, and new ideas on issues of significance. The HSOAC iii FFRDC also works with and supports other federal, state, local, tribal, and public- and private- sector organizations that make up the homeland security enterprise. The HSOAC FFRDC’s research is undertaken by mutual consent with DHS and is organized as a set of discrete tasks. This report presents the results of research and analysis conducted under Task Order 70FBR218F00000032, “Puerto Rico Economic and Disaster Recovery Plan: Integration and Analytic Support.” The results presented in this report do not necessarily reflect official DHS opinion or policy. For more information on HSOAC, see www.rand.org/hsoac. For more information on this publication, visit www.rand.org/t/RR2859. iv Contents Preface ............................................................................................................................................ iii Figures........................................................................................................................................... vii Tables ........................................................................................................................................... viii Executive Summary ....................................................................................................................... ix Acknowledgments ...................................................................................................................... xviii Abbreviations ................................................................................................................................ xx 1. Introduction and Background: Cultural Resources in Puerto Rico ............................................. 1 The Significance of Puerto Rico’s Cultural Assets .................................................................... 1 The Importance of Cultural Resources to Puerto Rico’s Economy, Resilience, and Well- Being ..................................................................................................................................... 4 A Note on Terminology .............................................................................................................. 8 The Purpose of This Volume ...................................................................................................... 9 2. Key Cultural Resources, What Recovery Entails, and How Recovery Planning Was Performed ................................................................................................................................ 11 Defining and Identifying the Universe of Cultural and Historical Resources .......................... 12 What Recovery of Cultural Resources Means .......................................................................... 28 Developing Recovery Strategies for Cultural Resources in Puerto Rico ................................. 29 Recovery Activities Are Based on Damage and Needs ............................................................ 32 3. Prestorm Risks, Assessed Damage, and Recovery Needs: Historic Sites, Cultural Institutions, and Alternative Tourism ..................................................................................... 34 Approaches Used for Quantifying Damage .............................................................................. 37 Damage and Critical Needs for Recovery ................................................................................ 46 Identifying Recovery Courses of Action for Historic Properties, Museums, Archives, and Libraries, and Potential for Economic Growth Through Alternative Tourism ................... 53 Assumptions and Data Gaps ..................................................................................................... 58 4. Prestorm Risks, Assessed Damage, and Recovery Needs: Arts Organizations, Artists, and Artisans ................................................................................................................................... 60 Prestorm Overview, Status, and Challenges ............................................................................. 60 Damage Assessment Scope, Methodology, and Protocols ....................................................... 68 Losses and Critical Needs ......................................................................................................... 70 Logic Model and Courses of Action for Artists and Artisans .................................................. 75 Assumptions and Data Gaps ..................................................................................................... 76 5. Sector Summary and Conclusions ............................................................................................ 77 Short- and Medium-Term Recovery Challenges ...................................................................... 77 Remaining Critical Needs ......................................................................................................... 78 v Cultural Resources Recovery to Date ....................................................................................... 79 Recommendations and Takeaways for Future NCR Response Efforts .................................... 81 Conclusion: Cultural Resources in the FEMA Recovery Support Function Framework ......... 83 Appendix A. A Framework for Understanding the Cultural Resources Response and Recovery Effort After Hurricanes Irma and Maria .................................................................................... 85 Appendix B. Extended Description of NCR Courses of Action ................................................... 95 NCR 1 Historic and Cultural Properties & Collections Preservation ....................................... 96 NCR 2 Arts Recovery ............................................................................................................. 104 NCR 3 General Archives Mitigation and Modernization ....................................................... 110 NCR 4 Caribbean Cultural Collections Preservation, Research, and Safe Storage Center .... 114 NCR 19 SHPO and ICP Staffing to Meet Project Review Requirements .............................. 121 NCR 22 Promote Alternative Tourism for Economic Development ...................................... 124 NCR 23 Protected Natural Area Land Management for Alternative Tourism