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Alaska Roads Alaska Roads Methodology for Assessing National Register of Historic Places Eligibility Prepared for Alaska Department of Transportation and Public Facilities December 2014 THIS PAGE INTENTIONALLY LEFT BLANK Alaska Roads Methodology for Assessing National Register of Historic Places Eligibility Prepared for Alaska Department of Transportation and Public Facilities Prepared by www.meadhunt.com December 2014 THIS PAGE INTENTIONALLY LEFT BLANK Table of Contents Table of Contents Page 1. Introduction and Applicability ........................................................... 1 1.1 Overview of Roads Methodology (Steps 1-4) ............................. 1 1.2 Relationship to the Roads Overview ......................................... 4 2. Screening Process (Step 1) ............................................................... 7 2.1 Filter 1: Connectivity ................................................................... 9 2.2 Filter 2: Age ................................................................................ 9 2.3 Filter 3: Consultation ................................................................. 10 3. Evaluating Significance (Step 2) ..................................................... 11 3.1 Criteria for evaluation ............................................................... 11 3.2 Application of Criterion A to roads ............................................ 12 3.3 Areas of significance under Criterion A .................................... 13 3.3.1 Transportation: Guidance on identifying significance .... 13 3.3.2 Agriculture: Guidance on identifying significance .......... 15 3.3.3 Community Planning and Development: Guidance on identifying significance .............................................. 16 3.3.4 Entertainment/Recreation and Conservation: Guidance on identifying significance .............................. 17 3.3.5 Exploration/Settlement: Guidance on identifying significance ..................................................................... 19 3.3.6 Industry: Guidance on identifying significance ............... 19 3.3.7 Military: Guidance on identifying significance ................ 20 3.3.8 Politics/Government: Guidance on identifying significance ..................................................................... 21 3.4 Application of Criterion C to roads ............................................ 22 3.4.1 Distinctive characteristics of a type, period, or method of construction ................................................... 22 3.4.2 Work of a master ............................................................ 22 3.4.3 High artistic value ........................................................... 22 3.5 Engineering: Guidance on identifying significance ................... 24 3.6 Defining level and period of significance .................................. 25 4. Assessing Historic Integrity (Step 3) .............................................. 27 4.1 Identifying essential physical features ...................................... 27 4.2 Aspects and determination of integrity ..................................... 29 4.3 Assessing historic integrity – Criterion A .................................. 31 4.4 Assessing historic integrity – Criterion C .................................. 34 5. Assigning National Register Eligibility (Step 4) ............................. 37 AKRoadsMethodology December 2014 i Table of Contents Appendices A Interstate Highway System Section 106 Exemption Route List within Alaska B Screening Process Worksheet (Example) Figures 1 Illustrated summary of Steps 1-4 of the Roads Methodology ......... 3 2 Illustrated summary of the screening process (Step 1 of the Roads Methodology) ....................................................................... 8 Tables 1 Evaluating historical significance under Criterion A ...................... 13 2 Evaluating historical significance under Criterion C: Engineering ................................................................................... 23 3 Relevant aspects of historic integrity under Criterion A ................ 32 4 Examples of existing alterations that may affect assessment of historic integrity under Criterion A ............................................. 32 5 Relevant aspects of historic integrity under Criterion C ................ 34 6 Examples of existing alterations that may affect assessment of historic integrity under Criterion C ................................................. 35 AKRoadsMethodology December 2014 ii List of Acronyms and Abbreviations List of Acronyms and Abbreviations AASHO American Association of State Highway Officials AASHTO American Association of State Highway and Transportation Officials Alaska Road PA Programmatic Agreement among the Federal Highway Administration, the Advisory Council on Historic Preservation, the Alaska Department of Transportation and Public Facilities, and the Alaska State Historic Preservation Officer Regarding Alaska’s Highway System Roads Affected by the Federal-Aid Highway Program in Alaska APE Area of Potential Effects ARC Alaska Board of Road Commissioners BPR Bureau of Public Roads CDS Coordinated Data System DOT&PF Alaska Department of Transportation & Public Facilities FAHA Federal-Aid Highway Act FHWA Federal Highway Administration IHS Interstate Highway System LSR&T Local Service Roads and Trails National Register National Register of Historic Places PRA Public Roads Administration Roads Methodology Methodology for Assessing National Register of Historic Places Eligibility (December 2014) Roads Overview Historic Overview of Alaska Roads (February 2014) SAFETEA-LU Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (Public Law 109-59) Section 106 Section 106 of the National Historic Preservation Act SHPO State Historic Preservation Officer AKRoadsMethodology December 2014 iii THIS PAGE INTENTIONALLY LEFT BLANK Section 1 Introduction and Applicability 1. Introduction and Applicability This Methodology for Assessing National Register of Historic Places Eligibility (Roads Methodology) supports the implementation of the Programmatic Agreement among the Federal Highway Administration, the Advisory Council on Historic Preservation, the Alaska Department of Transportation and Public Facilities, and the Alaska State Historic Preservation Officer Regarding Alaska’s Highway System Roads Affected by the Federal-Aid Highway Program in Alaska (Alaska Road PA). The Roads Methodology is the second component in the study being completed by the Alaska Department of Transportation & Public Facilities (DOT&PF), in cooperation with the Alaska Division of the Federal Highway Administration (FHWA) and the State Historic Preservation Officer (SHPO), to assist in the identification of Alaska’s historic roads as part of the environmental review process, in particular, Section 106 of the National Historic Preservation Act (Section 106).1 The Roads Methodology is applicable to vehicular roads eligible to receive FHWA Federal-Aid Highway Program funds and subject to the Alaska Road PA.2 Application of the Roads Methodology to roads not eligible for FHWA Federal-Aid Program funds or private roads should be coordinated with the agency with jurisdiction and the SHPO. Roads that fall under the Interstate Exemption adopted by the Advisory Council on Historic Preservation in 2005 are exempt from Section 106 review. The Alaska Interstate Highway System Section 106 Exemption Route List is provided in Appendix A. Roads are defined and evaluated as linear structures under the National Register of Historic Places (National Register) Criteria for Evaluation and evaluated as individual properties in this Roads Methodology. Roads may also be contributing or noncontributing resources within a historic district; however, evaluation of historic districts is beyond the scope of this study and the identification of historic districts is not addressed in this Roads Methodology. 1.1 Overview of Roads Methodology (Steps 1-4) This Roads Methodology provides a consistent process for cultural resource practitioners to apply the National Register Criteria for Evaluation to facilitate Section 106 compliance for historic roads under the Alaska Road PA. This Roads Methodology is informed by the following publications: National Register Bulletin: How to Apply the National Register Criteria for Evaluation (commonly referred to as Bulletin 15); National Register Bulletin: How to Complete the National Register Registration Form (commonly referred to as Bulletin 16A); and the Secretary of the Interior's Standards and Guidelines for Archeology and Historic Preservation, including the Standards and Guidelines for Evaluation (36 CFR 61, 1983, as amended). Outlined in steps, the Roads Methodology begins with a screening process in Step 1 to measure a given road’s potential to demonstrate individual significance without the need for extensive research. The screening process streamlines Section 106 review through early identification of roads that have potential 1 The Historic Overview of Alaska Roads (February 2014) is the first component of the study. 2 For a brief discussion of the applicability of Alaska Road PA and Federal-Aid Highway Program funding of the FHWA on Alaska’s roads see Section 1 – Introduction in the Historic Overview of Alaska Roads, prepared by Mead & Hunt, Inc. AKRoadsMethodology December 2014 1 Section 1 Introduction and Applicability for individual significance and those that have low potential for individual significance. Input provided from
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