TE-A.2.4.1 Integrated Cultural Resources Management Plan (ICRMP).pdf

INTEGRATED CULTURAL RESOURCES

MANAGEMENT PLAN

U.S. ARMY GARRISON

FORT CARSON, COLORADO

FISCAL YEARS 2017-2021

March 2017

TE-A.2.4.1

As of 1 Jan 2023

*THIS PAGE INTENTIONALLY LEFT BLANK*

INTEGRATED CULTURAL RESOURCES

MANAGEMENT PLAN

FOR

U.S. ARMY GARRISON

FORT CARSON, COLORADO

FISCAL YEARS 2017-2021

Prepared for:

Fort Carson Cultural Resources Management Program

NEPA & Cultural Management Branch Environmental Division, Directorate of Public Works

U.S. Army Garrison Fort Carson Fort Carson, Colorado 89013

March 2017

Integrated Cultural Resources Management Plan, Fiscal Years 2017-2021 USAG Fort Carson, Colorado i

Abbreviations and Acronyms

1SBCT 1st Stryker Brigade Combat Team, 4th Infantry Division

2IBCT 2nd Infantry Brigade Combat Team, 4th Infantry Division

3ABCT 3rd Armored Brigade Combat Team, 4th Infantry Division

4CAB 4th Combat Aviation Brigade, 4th Infantry Division

4ID 4th Infantry Division 4SB 4th Sustainment Brigade, 4th Infantry

Division AAFES Army/Air Force Exchange Service AAR After Action Report ACHP Advisory Council on Historic

Preservation A/DACG Arrival/Departure Airfield Control Group AEDB-EQ Army Environmental Database –

Environmental Quality AFSBn Army Field Support Battalion AHPA Archaeological and Historic

Preservation Act of 1974 AIRFA American Indian Religious Freedom Act of 1978 AMSL Above Mean Sea Level AR Army Regulation ARPA Archaeological Resources Protection

Act of 1979 APD Army Publishing Directorate APE Area of Potential Effect ARNG Army National Guard ASOS Air Support Operations Squadron BCT Brigade Combat Team BN Battalion B.P. Before Present (1950) BRAC Base Realignment and Closure BLM Bureau of Land Management CABN Civil Affairs Battalion CCR Code of Colorado Regulations CEMML Center for Environmental Management of Military Lands CFR Code of Federal Regulations CLEO Conservation Law Enforcement Officer cm centimeter(s) cmbs centimeter(s) below surface CRM Cultural Resources Manager CRP Cultural Resources Program CRS Colorado Revised Statute CSH Combat Support Hospital CURFAC Curation Facility, Fort Carson DASA Deputy Assistant Secretary of the Army DeCA Defense Commissary Agency DENIX DoD Environment, Safety, and

Occupational Health Network and Information Exchange

DES Directorate of Emergency Services DFMWR Directorate of Family, Morale, Welfare and Recreation DIVARTY Division Artillery, 4th Infantry Division DLA Defense Logistics Agency DoD U.S. Department of Defense

DoDI Department of Defense Instruction DOI Department of the Interior dpi Dots per Inch DPTMS Directorate of Plans, Training, Mobilization, and Security DPW Directorate of Public Works DPW-ED Directorate of Public Works –

Environmental Division DSLR Digital Single Lens Reflex DU University of Denver EA Environmental Assessment eCFR Electronic Code of Federal Regulations EIS Environmental Impact Statement EO Executive Order EPO Environmental Protection Officer ESOH Environmental Safety and Occupational

Health FCMR Fort Carson Military Reservation FC REG Fort Carson Regulation FDsys Federal Digital System FGDC Federal Geographic Data Standards FNSI Finding of No Significant Impact FPO Federal Preservation Officer FS Field Specimen FY Fiscal Year GIS Geographic Information System GPS Global Positioning System HABS Historic American Building Survey HAER Historic American Engineering Record HEMMT Heavy Expanded Mobility Truck HHBN Headquarters and Headquarters

Battalion, 4th Infantry Division HQDA Headquarters, Department of the Army ICRMP Integrated Cultural Resources

Management Plan IF Isolated Find IMCOM Installation Management Command INRMP Integrated Natural Resources

Management Plan ISR Installation Status Report ISSA Interservice Support Agreement ITAM Integrated Training Area Management JPEG Joint Photographic Experts Group MCX-CMAC Mandatory Center of Expertise for the

Curation and Management of Archaeological Collections

MFR Memorandum for Record MICC Mission and Installation Contracting

Command MILCON Military Construction MLRS Multiple Launched Rocket Systems MOA Memorandum of Agreement MOU Memorandum of Understanding MOUT Military Operations in Urban Terrain MP Military Police MPRC Multi-Purpose Range Complex MSE Mission Support Element MSR Main Supply Route NAGPRA Native American Graves Protection and

Repatriation Act of 1990 ii

NCDC National Climatic Data Center NEPA National Environmental Policy Act of

1969, as amended NHL National Historic Landmark NHPA National Historic Preservation Act of

1966, as amended NOAA National Oceanic and Atmospheric

Administration NPS National Park Service NRCS Natural Resources Conservation

Service NRHP National Register of Historic Places OACSIM Office of the Assistant Chief of Staff for

Installation Management OAHP Office of Archaeology and Historic

Preservation ODEP Office of the Director of Environmental

Programs PA Programmatic Agreement PAO Public Affairs Office PBCUA Public Buildings Cooperative Use Act of

PCMS Piñon Canyon Maneuver Site PDF Portable Document Format PLS Planning Level Survey POA Plan of Action POC Point of Contact POW Prisoner of War PMOA Programmatic Memorandum of

Agreement PTRCI Properties of Traditional Religious and

Cultural Importance

Pub. L. Public Law RCMP Range Complex Master Plan REC Record of Environmental Consideration RFRA Religious Freedom Act of 1993 SARSA Small Arms Range Safety Area SDSFIE Spatial Data Standards for Facilities, Infrastructure, and Environment SDZ Surface Danger Zone SFG(A) Special Forces Group (Airborne) SHPO State Historic Preservation Officer SJA Staff Judge Advocate SOI Secretary of the Interior SOP Standard Operating Procedure Stat. United States Statutes TA Training Area TCP Traditional Cultural Property THPO Tribal Historic Preservation Officer UFC Unified Facilities Criteria UPH Unaccompanied Personnel Housing USACE United States Army Corps of Engineers USAG United States Army Garrison USACERL United States Army Construction

Engineering Research Laboratory USAEC United States Army Environmental

Command U.S.C. United States Code USFS United States Forest Service USGS United States Geological Survey WWII World War II iii

Integrated Cultural Resources Management Plan U.S. Army Garrison Fort Carson

Fiscal Years 2017-2021

Table of Contents

1. Introduction

1.1 Purpose and Organization

1.2 Target Audience

1.3 Mission Statement

1.4 Information Gathering, Input, and Review for the Preparation of the ICRMP

1.5 Roles and Responsibilities

2. Legislative and Regulatory Requirements

2.1 Federal Laws and Regulations

2.2 Executive Orders and Presidential Memoranda

2.3 Department of Defense and Army Regulations, Policy and Guidance, Program Comments and Agreement Documents

2.4 State Laws and Regulations

2.5 Fort Carson Regulations, Policy and Guidance, and Agreement Documents

3. Installation Overview

3.1 General Description

3.2 Environmental Setting

3.3 Historical Background

3.4 Military Operations and Activities

4. Planning Level Survey

4.1 “Cultural Resources” Defined

4.2 Cultural Setting

4.3 Archaeological Resources

4.4 Historical Architectural Resources

4.5 Properties of Traditional Religious and Cultural Importance

4.6 Paleontological Resources

5. Cultural Resources Management Strategy

5.1 Cultural Landscape Management Approach

5.2 Goals and Objectives

5.3 Roles and Responsibilities of the Cultural Resources Manager

5.4 Coordination and Staffing

5.5 Management Actions

6. Cultural Resources Program Guidance and Procedures iv

6.1 The Section 106 Review Process

6.2 Identification and Evaluation of Cultural Resources

6.3 Native American Tribal Consultation

6.4 Collections Management

6.5 Archaeological Site Monitoring Program

6.6 Protection of Cultural Resources

7. Standard Operating Procedures

7.1 SOP No. 1: Section 106 Compliance for Project Proponents

7.2 SOP No. 2: Mission Training of Military and Tenant Personnel

7.3 SOP No. 3: Emergency Operations

7.4 SOP No. 4: Inadvertent Discovery of Archaeological, Cultural, or Paleontological Materials

7.5 SOP No. 5: Discovery of an Inadvertent Entry or Other Impact to a Protected Site ... 154

7.6 SOP No. 6: Economic Analysis for Demolition of Historic Buildings

8. References Cited

List of Tables

Table 4-1. Cultural sequence for southeastern Colorado (adapted from Zier and Kalasz 1999).

Table 4-2. Summary of archaeological resources on Fort Carson and the PCMS (current as of May2018)

Table 4-3. Summary of archaeological fieldwork conducted on Fort Carson (current as of May 2018)

Table 4-4. Summary of archaeological fieldwork conducted on the PCMS (current as of May 2018)

Table 4-5. Summary of efforts to identify and evaluate historical architectural resources on Fort Carson (current as of May 2018)

Table 4-6. Summary of efforts to identify and evaluate historical architectural resources on the PCMS (current as of May 2018)

Table 4-7. Summary of efforts to identify properties of traditional religious and cultural importance on Fort Carson and the PCMS (current as of May 2018)

Table 4-8. Summary of paleontological fieldwork conducted on Fort Carson (current as of May 2018)

Table 4-9. Summary of paleontological fieldwork conducted on the PCMS (current as of May 2018)

Table 6-1. Eligibility and management recommendation criteria

Table 6-2. Unique form number designators for associated records v

List of Figures

Figure 3-1. Location of Fort Carson and the PCMS

Figure 3-2. Physiographic setting for Fort Carson and the PCMS (based on Fenneman and Johnson 1946)

Figure 3-3. Geologic map of Fort Carson (adapted from Green 1992)

Figure 3-4. Geologic map of the PCMS (adapted from Green 1992)

Figure 3-5. Central Shortgrass Prairie ecoregion

Figure 3-6. Surface water of Fort Carson (adapted from Colorado Division of Wildlife 2004). ..25

Figure 3-7. Surface water of the PCMS (adapted from Colorado Division of Wildlife 2004)

Figure 3-8. Average monthly temperature data for Fort Carson from 2004 to 2014

Figure 3-9. Average monthly precipitation totals for Fort Carson from 2004 to 2014

Figure 3-10. Average monthly temperature data for the PCMS from 2004 to 2014

Figure 3-11. Average monthly precipitation totals for the PCMS from 2004 to 2014

Figure 3-12. Land use on Fort Carson

Figure 3-13. Land use on the PCMS

Figure 4-1. Areas surveyed for archaeological resources on Fort Carson (current as of May 2018).

Figure 4-2. Areas surveyed and exempted from survey on Fort Carson

Figure 4-3. Areas surveyed for archaeological resources on the PCMS (current as of May 2018).

Figure 6-1. How the Seibert marker shall be assembled

Figure 6-2. Example of digital maps for use in military vehicle and aircraft GPS systems. Red polygons with yellow outlines are marked protected sites. Red polygons with no outline are the unmarked protected site. White lines transecting the red polygon denote that passage through the site is allowed on the existing roadway

Figure 7-1. Flowchart for Section 106 compliance for project proponents

Figure 7-2. Flowchart for mission training of military and tenant personnel

Figure 7-3. Flowchart for emergency operations

Figure 7-4. Flowchart for the inadvertent discovery of archaeological, cultural, or paleontological remains

Figure 7-5. Flowchart for the discovery of an inadvertent entry or other impact to protected sites by non-professional archaeologists

Figure 7-6. Flowchart for the discovery of an inadvertent entry or other impact to protected sites by a professional archaeologist file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305815 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305819 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305826 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305831 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305833 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305834 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305835 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305836 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305836 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305837 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305837 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305838 file://carsnecxa7x0001/shares/groups/IMCOM/DPW/WF/ENV/CUL/Share/ICRMP%20-%20Annual%20Review/Final%20ICRMP%20-%2020180517.docx#_Toc514305838 vi

Appendices

Appendix A – Glossary of Commonly Used Terms Appendix B – Points of Contacts for Consulting Parties Appendix C – NEPA Documentation Appendix D – Fort Carson-specific Agreement Documents Appendix E – Culture History for Fort Carson and the PCMS Appendix F – List of all Known Cultural Resources on USAG Fort Carson-managed Lands Appendix G – ICRMP Annual Reviews Appendix H – Fort Carson Archaeological Site Monitoring Form

1. INTRODUCTION

Army Regulation (AR) 200-1 requires the preparation and implementation of an Integrated Cultural Resources Management Plan (ICRMP), which serves as the primary tool for the implementation of an installation’s cultural resources management program. Department of Defense Instruction (DoDI) 4715.16 provides guidance and instructions for the preparation of ICRMPs. The ICRMP is a five-year plan that supports the military training mission by ensuring that mission-related activities address cultural resources management issues and legal compliance requirements. This ICRMP represents an instruction manual for the U.S. Army Garrison (USAG) Fort Carson for fiscal years (FY) 2017-2021.

This introductory chapter describes the purpose and organization of the ICRMP, the mission and goals of the Fort Carson Cultural Resources Program (CRP), and roles and responsibilities of both military and non-military stakeholders.

1.1 Purpose and Organization

This ICRMP provides a framework to integrate the legal requirements for cultural resources management into the everyday operation of the USAG Fort Carson military mission and supporting activities. The main purpose of an ICRMP is to establish cultural resources goals, objectives, and policies that the USAG Fort Carson will use to identify and manage its cultural resources. The ICRMP also guides the Garrison Commander, the Cultural Resources Manager (CRM), and other key personnel in carrying out their responsibilities and in their decision-making regarding the management of cultural resources. It serves as a funding identification document for the management of cultural resources on military lands.

The ICRMP is organized as follows:

Introduction (Chapter 1) provides information regarding the Army mission, the goals of the CRP and major components of the plan. It also outlines the roles and responsibilities of stakeholders and partnerships, both internal and external, which are involved in the cultural resources compliance process.

Legislative and Regulatory Requirements (Chapter 2) provides a brief summary of the cultural resource-related laws and regulations, Department of Defense (DoD) and Army policies, and agreement documents.

Installation Overview (Chapter 3) describes the installation and its infrastructure, including a brief description of types of military training and operational support activities that occur on USAG Fort Carson-managed lands. It also includes a discussion of the natural environment and an overview of the development of the installation.

Planning Level Survey (Chapter 4) provides a review of existing cultural resources, including archaeological resources; historical buildings, structures, objects; traditional cultural properties, sacred sites, and Tribal sites of concern; and paleontological resources. Additionally, summaries of previous archaeological and architectural surveys and evaluations, studies, and management plans are provided.

Cultural Resources Management Strategy (Chapter 5) describes the objectives, priorities, policies, and methods that will be relied upon and utilized to accomplish the legal compliance requirements for the management of cultural resources. It summarizes the USAG Fort Carson’s accomplishments since the inception of the CRP, and provides management actions over the next five years to accomplish their goals and objectives.

Fort Carson Cultural Resources Program Procedures (Chapter 6) provides guidance and procedures that are used by the CRP to fulfill cultural resources management tasks, such as Section 106 compliance, cultural resources investigations, archaeological site monitoring, protection of cultural resources, and Tribal consultation.

Standard Operating Procedures (Chapter 7) includes the standard operating procedures (SOPs) to be used by Soldiers, DoD civilian employees, contractors, tenants, and other users, whose mission and responsibility is not the management of cultural resources, but who could come into contact with and potentially affect these resources in the course of their work. These SOPs aid such personnel in identifying those situations and guiding their actions to ensure compliance and the protection of cultural resources.

References Cited (Chapter 8) includes references and resources used to support the development of the ICRMP and the implementation of the Fort Carson CRP.

Appendices (A through F) have been added to supplement the report sections presented in the body of the ICRMP. Appendix A provides a glossary of the important terms used in the ICRMP.

Appendix B contains a list of the USAG Fort Carson’s external stakeholders and current points of contact (POC) information. Appendix C includes the appropriate-level documentation required under the National Environmental Policy Act (NEPA) in support of the development and implementation of this ICRMP. Appendix D includes copies of relevant agreement documents, summarized in Chapter 2. Appendix E provides a chronological historical framework for USAG Fort Carson-managed lands, which emphasizes the social, economic, and technological developments that have changed the human relationship with the natural environment over time.

Appendix F provides a list of all cultural resources that have been recorded on USAG Fort Carson-managed lands, including resource name, site type and theme, National Register of Historic Places (NRHP) determination of eligibility, and current protection status.

1.2 Target Audience

The Garrison Commander is the approving authority for this ICRMP. The main target audience of the ICRMP is the Fort Carson CRP within the NEPA & Cultural Management Branch, Environmental Division, Directorate of Public Works (DPW). Other installation organizations that regularly or occasionally coordinate with the CRP and use the ICRMP as a reference tool include:

⇒ Directorate of Plans, Training, Mobilization, and Security (DPTMS) → DPTMS – Training Division

⇒ Directorate of Public Works (DPW) → DPW – Engineering Division → DPW – Environmental Division → DPW – Master Planning Division → DPW – Operations & Maintenance Division → DPW – Housing

⇒ Directorate of Emergency Services (DES) → DES – Law Enforcement Division

⇒ Installation Legal Office

⇒ Public Affairs Office

1.3 Mission Statement

1.3.1 Army Mission Statement

The U.S. Army’s mission is to “fight and win our Nation’s wars by providing prompt, sustained land dominance across the full range of military operations and spectrum of conflict in support of combatant commanders.” This mission is accomplished through 1) the execution of Title 10 and Title 32 United States Code directives, which includes the organizing, equipping, and training of forces for the conduct of prompt and sustained combat operations on land; and 2) the accomplishment of missions assigned by the President, the Secretary of Defense, and combatant commanders, and transforming for the future.

The Army also has an environmental mission to sustain the environment to enable the military training and mission readiness in support of the men and women of our armed forces and secure the future.

1.3.2 4th Infantry Division & Fort Carson Mission Statement

The mission of the 4th Infantry Division (4ID) and Fort Carson is to prepare “trained and ready expeditionary forces for deployment in support of Combatant Commander requirements,” to provide “first class support to Soldiers and families,” and to enable “unified action with community, state, and interagency partners for the greater good of our Soldiers and their mission.”

1.3.3 USAG Fort Carson Mission Statement

The USAG Fort Carson mission is to provide “mission readiness, support and services for Fort Carson Soldiers, Families, and the Community to fight and win our nation’s wars.”

1.3.4 Fort Carson Cultural Resources Program’s Mission and Goals

The primary mission of the Fort Carson CRP is to support military training requirements, achieve regulatory compliance, and ensure that stewardship responsibilities are met. Fundamental to this mission is the identification of cultural resources and evaluation of their eligibility for listing in the NRHP (or National Register). A successful cultural resources management program requires projects to identify and evaluate resources, implement protection and compliance actions, and collaborate with internal (i.e. military) and external (i.e. non-military) stakeholders to advance awareness and preservation. Therefore, the goals for the CRP are as follows:

1. Support sustainable training;

2. Reduce/eliminate access restrictions due to resource protection;

3. Protect historic properties from adverse effects;

4. Conserve cultural resources and their information for future generations;

5. Increase cultural resource appreciation; and

6. Contribute to our understanding of culture, history, and archaeology at the local, regional, and national levels.

The CRP has established measurable objectives to accomplish over the five-year period covered by this ICRMP; these are discussed in greater detail in Chapter 5.

1.4 Information Gathering, Input, and Review for the Preparation of the ICRMP

The ICRMP is the Garrison Commander’s decision document for cultural resources management and specific compliance procedures. It is an internal Army compliance and management plan that integrates the entirety of the USAG Fort Carson’s cultural resources program requirements with ongoing mission activities. This ICRMP allows for the identification of potential conflicts between the military mission and cultural resources management by analyzing impacts from known mission actions and identifying compliance actions necessary to maintain the availability of mission-essential properties and acreage.

1.5 Roles and Responsibilities

The Fort Carson CRP staff communicates with internal (military) and external (non-military) stakeholders to preserve and manage cultural resources in support of the military mission.

Through consultation with these internal and external stakeholders, the CRP can ensure that impacts to cultural resources are considered early in the project planning process, thus preventing delays to projects and military training activities, litigation by external stakeholders, and loss of or damage to irreplaceable cultural resources.

This section lists the internal stakeholders that are responsible for the implementation of the Army’s and the USAG Fort Carson’s CRP and the external stakeholders that also have responsibilities to the program.

1.5.1 Internal Stakeholders

The Army and USAG Fort Carson personnel have vital responsibilities for the implementation and success of the cultural resources program. Internal stakeholders include the following:

Deputy Assistant Secretary of the Army (Environment, Safety, and Occupational Health) [DASA (ESOH)]: The DASA (ESOH) is the Army’s Federal Preservation Officer (FPO) pursuant to designation by the Assistant Secretary of the Army (Installations, Logistics, and Environment) on behalf of the Secretary of the Army. As the FPO, the DASA (ESOH) is responsible for oversight of the Army’s activities under the National Historic Preservation Act (NHPA).

Office of the Assistant Chief of Staff for Installation Management (OACSIM): The office of the OACSIM is the Headquarters Department of the Army (HQDA) staff proponent for the military Cultural Resources Program. It establishes priorities, guidance, and procedures for installation operations, real property management, and environmental stewardship for all activities and functions within Army garrisons. The OACSIM incorporates cultural resource-related requirements into the appropriate regulations, guidance documents, and procedures to support environmental stewardship, and issues programming and funding guidance.

Office of the Director of Environmental Programs (ODEP): The ODEP carries out the OACSIM Army staff function for the Army’s cultural resources program by promulgating cultural resources policies and guidance; identifying, supporting, and defending cultural resources requirements;

and directing and coordinating Army staff cultural resources program requirements.

U.S. Army Environmental Command (USAEC): The USAEC is responsible for a broad range of technical support and oversight services for the execution of the Army’s cultural resources management program. The USAEC supports the HQDA, Installation Management Command (IMCOM), and the USAG Fort Carson’s cultural resources compliance activities and programs.

The USAEC provides technical oversight and review of the cultural resources programs within the Army through the review of agreement documents, such as programmatic agreements (PAs), memoranda of agreement (MOAs), memoranda of understanding (MOUs), comprehensive agreements (CAs), plans of action (POAs), et cetera, and nominations to the NRHP. In addition, the USAEC identifies and implements actions to address Army-wide cultural resource requirements and shortfalls through analysis of Army programming data, emerging statutory and regulatory requirements, and the Army Environmental Strategic Action Plan, and develops, executes, and manages programs and initiatives to address these shortfalls and requirements.

Installation Management Command (IMCOM): IMCOM directs and assists installations in the conduct of installation cultural resources management programs. IMCOM ensures that cultural resources management responsibilities are implemented across all installations; monitors installation cultural resources management programs; reviews ICRMPs, National Register nominations, and agreement documents, and forwards agreement documents to USAEC for review; implements HQDA cultural resources management policies and guidelines set forth in AR 200-1 at their respective installations; provides cultural resources reporting information to HQDA, such as the Installation Status Report (ISR) and the Army Environmental Database – Environmental Quality (AEDB-EQ); assists Garrison Commanders in establishing reasonable funding priorities and meeting pertinent milestones in program development and implementation in accordance with AR 200-1; and ensures that installation cultural resources management programs are accurately evaluated during environmental compliance assessments pursuant to

AR 200-1.

Senior Mission Commander: In accordance with AR 200-1, the Senior Mission Commander ensures compliance with installation policies; applicable environmental legislation, and signed agreement documents. The Senior Mission Commander designates a representative to the Installation’s Environmental Quality Control Committee (EQCC), appoints trained environmental officers to ensure operational compliance and coordination with USAG Fort Carson environmental staff, and ensures personnel receive appropriate environmental training. The Senior Mission Commander also participates in the development of the ICRMP to ensure its compatibility with and support of the installation mission. The Senior Mission Commander for Fort Carson is the Commanding General of the 4ID and Fort Carson.

Garrison Commander: The Garrison Commander serves as the agency official, as defined in 36 Code of Federal Regulations (CFR) Part 800, with responsibility for installation compliance with the NHPA; serves as the federal agency official, as defined in 43 CFR Part 10, with responsibility for installation compliance with the Native American Graves Protection and Repatriation Act (NAGPRA); serves as the federal land manager, as defined in 32 CFR Part 229, with responsibility for installation compliance with the Archaeological Resources Protection Act (ARPA); and serves as the federal agency official, as defined in 36 CFR Part 79, with management authority over archaeological collections. As summarized in AR 200-1, the Garrison Commander is responsible for establishing a cultural resources management program and designating, as appropriate, a CRM to coordinate the installation’s cultural resources management program. The Garrison Commander shall establish government-to-government relationships with federally-recognized Native American Tribes (Tribes) that have a cultural affiliation with USAG Fort Carson-managed lands, and shall designate, as appropriate, an Installation Tribal Liaison. The Garrison Commander is also responsible for establishing a process that requires installation staff elements, support components, and other interested parties to coordinate with the CRM early in the project and/or training planning to determine if any cultural resources may be present that could be directly or indirectly affected by a project or activity. The Garrison Commander establishes the funding priorities and program funds for cultural resource compliance. In addition, the Garrison Commander has signatory authority for all agreement documents.

Director of Public Works (PW): The Director of PW is responsible for maintaining compliance with environmental laws and regulations and managing the cultural resources on USAG Fort Carson-managed lands. The Director of PW is primarily responsible for: managing and implementing all facility and infrastructure improvements; advising the Garrison Commander on all aspects of planning, engineering, maintenance, housing, and environmental (which includes cultural resources) programs, and implementing command policies and decisions in these areas;

providing services to various mission partners; undertaking minor construction projects; planning and programming major construction; coordinating contractors involved in maintenance and operations; providing services to privatized housing; and managing the installation’s environmental program through the Environmental Division (DPW-ED).

Cultural Resources Manager (CRM): The CRM, who is designated by the Garrison Commander in accordance with AR 200-1, is the program manager responsible for compliance with cultural resource-related legislation, policy, and guidance. Per AR 200-1, the CRM will be a Department of the Army Civilian (DAC) employee, and shall possess the appropriate knowledge, skills, and professional training and education to carry out the CRP’s responsibilities. As such, the CRM provides day-to-day management of cultural resources; ensures that all USAG Fort Carson activities are in compliance with applicable cultural resources laws, regulations, and other requirements; serves as a liaison between internal and external stakeholders; and updates and implements the ICRMP. For the USAG Fort Carson, the CRM also serves as the Installation Tribal Liaison.

Directorate of Plans, Training, Mobilization, and Security (DPTMS): The DPTMS allocates and schedules access to training areas and ranges to accomplish provisions of this ICRMP, assists in enforcing range regulations, repairs maneuver damage through the Integrated Training Area Management (ITAM) program, and evaluates how this ICRMP affects training. The DPTMS communicates the location of limited-use and/or restricted areas within training areas to all involved organizations in an effort to prevent damage from military training to historic properties and other categories of protected properties. The DPTMS prepares and updates the Range Complex Master Plan (RCMP), regarding the operation of existing ranges and planning for future range needs. The RCMP also includes analyses of cultural resource management activities as it relates to live fire ranges.

Directorate of Family, Morale, Welfare, and Recreation (DFMWR): The DFMWR establishes procedures and develops projects pertaining to various aspects of Installation morale, welfare, and recreation activities, such as picnicking, camping, archery, bird watching, wildlife photography, and other outdoor sports activities.

Directorate of Emergency Services (DES): The Fort Carson Conservation Law Enforcement Program, which falls under the DES, is responsible for actively enforcing local, state, and federal environmental, natural and cultural resource laws and regulations. The Conservation Law Enforcement Officers (CLEOs) are responsible for investigating reported incidences of looting, vandalism or other violations of the ARPA, as well as monitoring significant cultural resources for ARPA violations.

Public Affairs Office (PAO): The PAO is responsible for promoting USAG Fort Carson activities to the public and providing professional public relations advice and support to installation leaders and activities. The PAO assists in distributing information related to the CRP’s initiatives and public outreach opportunities.

Staff Judge Advocate (SJA): The SJA provides legal advice, counsel and services to command, staff and subordinate elements of the USAG Fort Carson. With regards to cultural resources management, the responsibilities of the SJA include conducting legal research and preparing legal opinions that pertain to the interpretation and application of laws, regulations, statutes, and other directives; coordinating with the Department of Justice, Environmental Law Division of the Office of the Judge Advocate General, and other agencies on litigation matters; advising the DPW on compliance with cultural resources and environmental legislation; and advising the G3 and DPTMS on laws and regulations that affect training land use, management and compliance.

4th Infantry Division (4ID): The 4ID is the major command that is stationed at Fort Carson to whom garrison support is provided. The 4ID is divided into three Brigade Combat Teams (BCTs):

1st Stryker BCT (1SBCT), the “Raider” Brigade; the 2nd Infantry BCT (2IBCT), the “Warhorse” Brigade; and the 3rd Armored BCT (3ABCT), the “Iron” Brigade. The 4ID also includes the 4th Combat Aviation Brigade (4CAB), the “Iron Eagles.” Other division units include the Division Artillery (DIVARTY), the 4th Sustainment Brigade (4SB), and the Headquarters and Headquarters Battalion (HHBN). The Commanding General of the 4ID is the Senior Mission Commander for Fort Carson, and as such, has responsibilities for the management of cultural resources per AR 200-1 and discussed above. The 4ID must inform the CRM of proposed actions, receive annual resources awareness training, and follow the SOPs contained in this ICRMP.

The G3, an element of the 4ID, is responsible for planning military training and operations. It also provides military training requirements for ranges and training areas. The G3 coordinates with the DPTMS, as required, to ensure proper consideration of training requirements in all aspects of planning and execution of programs associated with cultural resources management.

Mission Partners: In addition to the 4ID, the USAG Fort Carson provides logistical and administrative support to other mission partners. These mission partners include other military tenant units, such as the 440th Civil Affairs Battalion (CABN); the 4th Engineer Battalion (BN); the 10th Combat Support Hospital (CSH); the 10th Special Forces Group (Airborne) [SFG(A)], 1st Special Forces; the 13th Air Support Operations Squadron (ASOS); the 71st Ordnance Group; the 423rd Transportation Company; the 743rd Military Intelligence BN; the 759th Military Police (MP) BN; the Army Field Support Battalion (AFSBn) – Carson; and the Mission Support Element (MSE).

Other mission partners include, but are not limited to, the Army/Air Force Exchange Service (AAFES), the Defense Commissary Agency (DeCA), Mission and Installation Contracting Command (MICC), Evans Community Hospital, Defense Logistics Agency (DLA), and the Colorado Army National Guard (ARNG). To support their respective missions, mission partners perform or request a wide range of activities that may affect cultural resources, such as military training; facilities maintenance, repair, renovation, demolition, and/or new construction; and other undertakings. As stipulated in AR 200-1 and federal laws and regulation, the ultimate responsibility for protecting and managing cultural resources falls upon the Garrison Commander and the designated CRM, not on the mission partners. Interservice support agreements (ISSAs) have been signed with a majority of the mission partners, stating that the USAG Fort Carson is responsible for compliance with cultural resources legislation. The mission partners must inform the CRM of proposed actions, receive annual cultural resources awareness training, and follow the SOPs contained in this ICRMP.

1.5.2 External Stakeholders

This section summarizes the roles of the following external stakeholders, or non-military participants. Appendix B lists the current POCs for each of the following external stakeholders.

Advisory Council on Historic Preservation (ACHP): The NHPA established the ACHP to act as the independent federal agency to comment on federal undertakings and to encourage federal agencies to consider historic properties in their project planning. The ACHP issues the regulations (i.e. 36 CFR Part 800) to implement Section 106 of the NHPA; oversees the operation of the Section 106 process; and approves federal agency procedures for substitution for the regulations. The ACHP contributes to the Fort Carson CRP by participating on an as-needed basis in undertaking reviews and in the development of NHPA-related agreement documents, such as PAs and MOAs.

National Park Service (NPS): Acting on behalf of the Secretary of the Interior (SOI), the NPS administers the National Historic Landmarks (NHLs) and National Register programs. NHLs are nationally significant historic places that possess exceptional value or quality in illustrating or interpreting the heritage of the United States and have been designated as such by the SOI. The NRHP is the nation’s official list of historic properties, and includes districts, sites, buildings, structures, and objects that are significant on a local, state or national level. The Keeper of the National Register has the final authority regarding a cultural resource’s determination of eligibility.

Colorado State Historic Preservation Officer (SHPO): The SHPO reflects the interests of the State of Colorado and its citizens in the preservation of their cultural heritage. In accordance with Section 101(b)(3) of the NHPA, the SHPO advises and assists the USAG Fort Carson in carrying out their historic preservation responsibilities. The SHPO also advises and consults in the development of an ICRMP.

Tribal Historic Preservation Officer (THPO): A THPO that is appointed or designated in accordance with the NHPA is the official representative of a Tribe for the purposes of Section 106.

If a Tribe has assumed the responsibilities of the SHPO for Section 106 on tribal lands under Section 101(d)(2) of the NHPA, the USAG Fort Carson shall consult with the THPO, in lieu of the SHPO, regarding undertakings occurring on or affecting historic properties on tribal lands. The SHPO may participate as a consulting party if the Tribe agrees to include the SHPO. If a Tribe has not assumed the responsibilities of the SHPO for Section 106 on tribal lands under Section 101(d)(2) of the NHPA, the USAG Fort Carson shall consult with the Tribe in addition to the SHPO regarding undertakings on or affecting historic properties on tribal lands.

Tribes: Section 101(d)(6)(B) of the NHPA requires the USAG Fort Carson to consult with any Tribe that attaches religious and cultural significance to historic properties that could be affected by an undertaking. Such consultation shall be on a government-to-government basis and shall occur through the provisions of the NHPA and 36 CFR Part 800. It is the responsibility of the USAG Fort Carson to identify federally-recognized Tribes that shall be consulted pursuant to Section 106 of the NHPA. Appendix B lists the Tribes, who have indicated that USAG Fort Carson-managed lands lie within their area of interest, as well as the current POCs for each Tribe.

Interested Parties and the Public: The USAG Fort Carson shall seek and consider the views of the general public and any other interested parties, such as certified local governments, other local county and city governments, and historic preservation organizations, regarding the development and implementation of the ICRMP. Appendix B lists the organizations and individuals who have expressed interest in consulting on USAG Fort Carson actions.

2. LEGISLATIVE AND REGULATORY REQUIREMENTS

Cultural resources include historic properties, as defined in the NHPA; archaeological resources, as defined in the ARPA; cultural items, as defined in the NAGPRA; sacred sites, as defined in Executive Order (EO) 13007, access to which is afforded under the American Indian Religious Freedom Act (AIRFA); archaeological collections, as defined in 36 CFR Part 79; and significant paleontological resources, as defined in the Antiquities Act of 1906. Requirements set forth in the NEPA, NHPA, ARPA, NAGPRA, AIRFA, and their implementing regulations; various EOs and Presidential Memoranda; and DoD and Army regulations, policies, and guidance define the USAG Fort Carson’s compliance responsibilities for the management of cultural resources.

The following is a brief overview of the federal statutes and regulations; EOs and Presidential Memoranda; DoD-specific and Army-specific regulations, policies and guidance; and state legislation that is applicable to the management of cultural resources on USAG Fort Carson-managed lands.

2.1 Federal Laws and Regulations

The following list of federal statutes and regulations are applicable to the management of cultural resources by the USAG Fort Carson. Statutes can be researched online at Cornell University Law School’s Legal Information Institute website (http://www.law.cornell.edu/). Regulations can be researched online at U.S. Government Publishing Office’s Electronic Code of Federal Regulations (eCFR) website (http://www.ecfr.gov/). In addition, online versions of government publications can be located through the U.S. Government Publishing Office’s Federal Digital System (FDsys) (http://www.gpo.gov/fdsys/search/home.action).

2.1.1 National Environmental Policy Act of 1969, as amended [Public Law (Pub. L.) 91- 190; 83 Statute (Stat.) 852; 42 U.S. Code (U.S.C.) § 4321 et seq.]

The NEPA sets forth a broad national policy to protect the human environment, including physical, natural, cultural, and social aspects. The NEPA requires federal agencies to analyze, consider, and disclose environmental factors as part of their decision-making process. NEPA procedures require that environmental information is available to public officials and citizens before decisions are made and before actions are taken. The NEPA process is intended to help public officials make decisions that are based on an understanding of environmental consequences and take actions that protect, restore, and enhance the environment. This Act also provides opportunities for input from Tribes and the public into the decision-making process. Regulation 40 CFR 1500– 1518 establishes the policy requirements that are binding on all federal agencies for implementing NEPA. Regulation 32 CFR 651, Environmental Analysis of Army Actions (AR 200-2), sets forth the Army’s requirements for implementing the NEPA. This ICRMP is subject to NEPA analysis and documentation requirements. The Environmental Assessment (EA) and Finding of No Significant Impact (FNSI) has been completed; and are available from the Fort Carson NEPA Program Manager and are included in Appendix C.

2.1.2 National Historic Preservation Act of 1966, as amended (Pub. L. 89-665; 80 Stat. 915;

54 U.S.C. § 300101 et seq.)

The NHPA establishes the federal government’s policy to provide leadership in the preservation of historic properties and to administer federally-owned or –controlled historic properties in the spirit of stewardship. It also establishes the NRHP, the official inventory of the Nation’s significant cultural resources; the ACHP, which advises the President and Congress on historic preservation http://www.law.cornell.edu/ http://www.ecfr.gov/ http://www.gpo.gov/fdsys/search/home.action matters and provides guidance to federal agencies; the SHPO, who administers the state’s historic preservation programs; and the THPO, who administers the Tribal historic preservation programs. The two key elements of the NHPA that are of importance to the Fort Carson CRP are Sections 106 and 110.

Section 106 requires federal agencies to consider the effects of federal actions on historic properties and to afford the ACHP a reasonable opportunity to comment on those actions prior to the approval of the expenditure of any federal funds. Regulation 36 CFR 800, Protection of Historic Properties, sets forth the procedural requirements to identify, evaluate, and determine effects of all undertakings on historic properties (i.e. the Section 106 process). The Section 106 process ensures that the USAG Fort Carson has considered the effects of its actions on historic properties and has consulted with the SHPO and/or THPO, Tribes, and other interested parties on its determination of effect. Section 106 does not require the preservation of historic properties;

it also does not automatically stop a project from moving forward. Both of these beliefs are common misconceptions.

Section 110 requires federal agencies to establish a historic preservation program; to designate a FPO; to affirm their stewardship responsibilities; to locate, inventory, and nominate all historic properties under its control, and document properties to be altered or demolished; and to minimize, to the extent possible, any harm to NHLs.

In addition to Sections 106 and 110, other sections that help inform the Fort Carson CRP include:

Section 111, which encourages the adaptive reuse of historic properties, and the lease or exchange of historic properties that are not need for current or projected agency purposes;

Section 112, which states that historic preservation activities shall be conducted by persons who meet the professional qualification standards published by the SOI; and Section 304, which authorizes the withholding of information from public disclosure on the location, character, and/or ownership of a historic property, if that disclosure may cause invasion of privacy, harm to the resource, or impede the use of a traditional religious site by practitioners.

In addition to 36 CFR 800, other regulations, implementing the NHPA, that are of importance to the USAG Fort Carson include:

⇒ 36 CFR 60, National Register of Historic Places, establishes the NRHP, which is administered by the Department of the Interior (DOI). The NRHP lists districts, sites, buildings, structures, and objects significant in American history, architecture, archaeology, engineering, and culture. It also sets forth the procedures for listing properties in the NRHP.

⇒ 36 CFR 63, Determinations of Eligibility for Inclusion in the National Register of Historic Places, assists federal agencies in identifying and evaluating a property’s eligibility for inclusion in the NRHP. It sets forth the procedures for requesting determinations of eligibility.

⇒ 36 CFR 68, The Secretary of the Interior’s Standards for the Treatment of Historic Properties, establishes the guidelines for the treatment of historic properties, including standards for preservation, rehabilitation, restoration, and reconstruction.

⇒ 36 CFR 78, Waiver of Federal Agency Responsibilities under Section 110 of the National Historic Preservation Act, sets forth the procedures whereby federal agencies (in consultation with the DOI) can waive Section 110 responsibilities in response to a major natural disaster or an imminent threat to national security.

2.1.3 Archaeological Resources Protect Act of 1979 (Pub. L. 96-95; 93 Stat. 721; 16 U.S.C.

§§ 470aa-470mm)

The ARPA provides for the protection of archaeological resources that are on public and Tribal lands, and fosters increased cooperation and exchange of information. Regulation 32 CFR 229, Protection of Archaeological Resources: Uniform Regulations, sets forth the requirements and procedures implemented by the DoD to carry out the provisions of the ARPA.

2.1.4 Native American Graves Protection and Repatriation Act of 1990, as amended (Pub.

L. 101-601; 104 Stat. 3048; 25 U.S.C. §§ 3001-3013)

The NAGPRA provides guidelines on the ownership or control of Native American cultural items (i.e. funerary objects, sacred objects, and objects of cultural patrimony) and human remains that are excavated or discovered on federal or Tribal lands after 16 November 1990.