Tech_Exhibit_0004_Integrated_Cultural_Resources_Management_Plan.pdf

U.S. ARMY GARRISON FORT HAMILTON

Brooklyn, Kings County, New York

INTEGRATED CULTURAL RESOURCES

MANAGEMENT PLAN (ICRMP)

FOR FORT HAMILTON

BROOKLYN, KINGS COUNTY, NEW YORK

February 2001 (Revision: September 2011 by DPW)

PREPARED FOR:

Directorate of Public Works (DPW) U.S. Army Garrison Fort Hamilton Brooklyn, New York

Under a Cooperative Agreement with:

U.S. Army Medical Research and Materiel Command Fort Detrick, MD

Award # DAMD17-00-2-0006, Work Order #1

Panamerican Consultants, Inc.

Buffalo Branch Office 2390 Clinton Street Buffalo, New York 14227-1735

Panamerican Consultants, Inc. Fort Hamilton ICRMP ii

Executive Summary

Project Name. Integrated Cultural Resources Management Plan (ICRMP) for Fort

Hamilton, Brooklyn, Kings County, New York.

Project Location and Environmental Setting. Fort Hamilton is situated at the far western end of Long Island and on the eastern shore of the Narrows (at the foot of Verrazano-Narrows Bridge) directly across from Staten Island, in Brooklyn, Kings County, New York. While the area's location near the Atlantic Ocean and its proximity to New York Harbor were essential factors in the decision to erect a fort on the site, Fort Hamilton's historic frontage with the Narrows has been interrupted by construction of the bridge and the construction of major highways beginning in the late 1930s.

Purpose and Goals. The ICRMP is the fort’s protection and compliance plan for cultural resources within the 177-acre (71.6-hectare) military reservation. It will aid facility personnel in incorporating cultural resources treatment measures into facility planning of capital projects, such as new construction and major additions, as well as structure rehabilitation, building maintenance, mothballing/decommissioning, etc. This integration will allow the mission of Fort Hamilton to continue without disruption while, at the same time, ensuring that significant cultural resources are documented and/or preserved for future generations.

Regulatory Basis. The U.S. Army, as a federal agency, has management responsibilities concerning the inventory, protection and preservation of cultural resources on land it uses or controls. Federal statutes require the Army to identify and evaluate cultural resources on these properties. Federal laws and regulations authorizing the Army to undertake this responsibility include: National Historic Preservation Act (NHPA) of 1966, as amended through 1992 (16 U.S.C. 470-470w-6) and 36 CFR 800, 60, 63, and 78, which includes the Section 106 and 110 processes. Army Regulation 200-1, 13 December 2007, delineates Army policy toward compliance with cultural and archaeological resources laws and regulations.

Planning Level Survey. Several Early Archaic Period (i.e., 5000-3000 BC) archaeological sites (among the earliest Archaic dates in the Northeast) have been found on Staten Island and many sites within and around Fort Hamilton, while unverified, have been reported in the literature. The Dutch settled the area that would become Fort Hamilton as part of New Netherland, beginning with the establishment of the village of New Utrecht, ca.1657. Near the reputed site of a contact-period Native American village called Nayack, the area enclosed in the present Fort Hamilton reservation was used as farmland during the seventeenth and eighteenth centuries. A ferry landing operating at the site (Denyse Ferry) was the location of a British landing on Long Island on 22 August 1776 and, subsequently, served as a staging area for the Battle of Brooklyn, which began five days later. Prior to British occupation, which would last until November 1783, the bluff at the present Fort Hamilton contained three houses belonging to Denyse, Bennett and Cortelyou.

To defend New York City during the early years of the nineteenth century, several forts were erected in the vicinity of the harbor, including Fort Lewis (an earthen and timber structure).

With the conclusion of the War of 1812, military planners decided to erect a masonry casemate fort and an earthen redoubt on the site of Fort Lewis. Redesignated Fort Hamilton, this facility was constructed between 1825 and 1831. Several noted officers served at the fort, including

Panamerican Consultants, Inc. Fort Hamilton ICRMP iii

Robert E. Lee, Thomas "Stonewall" Jackson, Richard Delafield, and Abner Doubleday.

Following the Civil War both the fort and the surrounding community began to change.

Early in the twentieth century, the fort increased its physical size by incorporating additional property. The construction of the Shore Parkway in the 1930s and the erection of the Verrazano-Narrows Bridge in the 1960s has essentially cut the fort off from its historic relationship with the sea.

Cultural Resources Inventory. Two potential historic period archaeological sites have been identified within Fort Hamilton: (1) a cistern or well found during construction between Buildings 230 and 207, and (2) a possible filled-in cellar hole south of Building 312. The area surrounding Building 117 and in the lawn west of Building 117 also was considered an historic period archaeological site (New York State Historic Preservation Office [NYSHPO] Site A047-01-0423).

Recent archaeological investigations and architectural evaluations have determined that this location is not a significant historic period archaeological site (Schieppati et al. 1998b).

The presence of prehistoric sites within the fort has not been verified. The contact-period

Native American village of Nayack is reported to have been within the fort in addition to other undocumented prehistoric or contact period sites. These include: (1) a cache of stone or flint blades, (2) a shell bed or midden, and (3) "traces of occupation." These sites have not been encountered by previous archaeological inventories, possibly due to the amount and depth of fill at the fort.

Three of the installation's structures are listed on the National Register of Historic Places (NRHP): (1) Building 207; (2) Building 220; and (3) Building 230. The Denyse Wharf and two other structures have been determined eligible for listing on the NRHP: (1) Building 113 and (2) Building 201. No additional structures are considered eligible at this time.

Management Plan. All work on Buildings 113, 201, 207, 220, 230 and the Denyse Wharf must be planned and executed in accordance with the Secretary of the Interior’s Standards and Guidelines for the Treatment of Historic Properties and the treatment plans outlined in this document. This includes new construction adjacent to historic properties. Since it appears that the original ground surface may be encapsulated in fill, the entire fort should be considered archaeologically sensitive unless it can be demonstrated that prehistoric or early historic period ground surfaces have been destroyed. In many cases (e.g., building, bridge, and parkway construction) this will be obvious while other areas of the fort will require geoarchaeological investigation.

A five-year work plan was devised to help fill some of the data gaps that exist, as noted above. Buildings 135, 136, 137, and 138 reached 50 years of age in 2003, however they were constructed during the Capehart and Wherry Era. All Capehart and Wherry Era housing on Fort Hamilton is covered by an Army-wide Program Comment by the Advisory Council on Historic Preservation and there are no further preservation or consultation requirements for these housing areas pursuant to 36 CFR 800. Buildings 213, 216, 231, and 232 have also reached 50 years of age. An evaluation was conducted and it has been determined that these buildings do not meet any of the criteria and are not eligible for listing on the NRHP.

In addition, previous research has determined that no association exists between Robert

E. Lee and Building 117 [NYSHPO Site A047-01-0423] (Schieppati et al. 1998b).

Panamerican Consultants, Inc. Fort Hamilton ICRMP iv

Archaeological investigation of Building 117 and surrounding property uncovered cultural material in a disturbed context. Therefore, the site does not meet National Register eligibility requirements.

The historic period archaeological site A047-01-0424, in the parade ground south of Building 302, had been recommended for evaluation according to the criteria for inclusion in the NRHP (Klein et al. 1986). This property was evaluated in August 2003 and it was determined that the site does not meet the eligibility requirements for listing on the NRHP (Panamerican Consultants, Inc. 2004.)

Panamerican Consultants, Inc. Fort Hamilton ICRMP v

Table of Contents

Section Page

Executive Summary ......................................................................................................................... ii List of Appendices ......................................................................................................................... xiii List of Illustrations ........................................................................................................................... ix List of Tables .................................................................................................................................... x List of Photographs ......................................................................................................................... xi List of Abbreviations ...................................................................................................................... xiii

1.0 INTRODUCTION ................................................................................................................... 1-1

1.1 Goals and Purpose ....................................................................................................... 1-1

1.2 Content .......................................................................................................................... 1-2

1.3 Fort Hamilton History .................................................................................................... 1-3

2.0 STATUTES AND REGULATIONS ........................................................................................ 2-1

2.1 National Historic Preservation Act of 1966, as amended ............................................. 2-2

2.2 Army Regulation 200-1 Environmental Protection and Enhancement ......................... 2-3

2.3 National Environmental Policy Act of 1969 ................................................................... 2-3

2.4 Executive Order 11593 ................................................................................................. 2-4

2.5 Archaeological and Historic Preservation Act of 1974 ................................................. 2-4

2.6 Antiquities Act of 1906 .................................................................................................. 2-4

2.7 Archaeological Resources Protection Act of 1979 ....................................................... 2-4

2.8 American Indian Religious Freedom Act of 1978 ......................................................... 2-5

2.9 Native American Graves Protection and Repatriation Act of 1990 .............................. 2-5

2.10 White House Memorandum of 29 April 1994 ............................................................... 2-5

2.11 Executive Order 13007 ................................................................................................. 2-5

2.12 Curation of Federally-Owned and Administered Collections (36 CFR 79) ................... 2-5

2.13 Americans with Disabilities Act of 1990 ........................................................................ 2-6

2.14 PL 90-480 ...................................................................................................................... 2-6

3.0 PLANNING LEVEL SURVEY ................................................................................................ 3-1

3.1 Environmental Setting/Physical Landscape ................................................................. 3-1

3.2 Paleoenvironment, Climate and Current Vegetation .................................................... 3-5

3.3 Cultural Landscape ....................................................................................................... 3-7

3.4 Culture History Summary and Literature Review .......................................................... 3-8

3.4.1 Prehistoric Period .............................................................................................. 3-8

3.4.2 Historic Period ................................................................................................. 3-10

3.4.3 Known Cultural Properties .............................................................................. 3-22

3.4.3.1 Archaeological Sites ....................................................................... 3-22

3.4.3.2 Historic Structures .......................................................................... 3-25

3.4.3.3 Historic Landscape ......................................................................... 3-25

3.4.4 Previous Research: Site and Map Files ......................................................... 3-25

3.4.5 Prior Disturbance or Potential Prior Disturbance ............................................ 3-31

3.4.6 Archaeological Sensitivity ............................................................................... 3-34

3.5 Research/Historic Contexts and Themes ................................................................... 3-40

3.5.1 Prehistoric Settlement Patterns ...................................................................... 3-40

3.5.2 Historic Contexts and Themes ........................................................................ 3-46

Panamerican Consultants, Inc. Fort Hamilton ICRMP vi

3.5.3 Research Questions ....................................................................................... 3-50

4.0 CULTURAL RESOURCES INVENTORY .............................................................................. 4-1

4.1 Initial Inventory .............................................................................................................. 4-1

4.1.1 Properties Previously Evaluated ....................................................................... 4-1

4.1.1.1 Structures ......................................................................................... 4-1

4.1.1.2 Archaeology ...................................................................................... 4-2

4.1.2 Properties Requiring Further Evaluation .......................................................... 4-2

4.1.2.1 Structures ......................................................................................... 4-2

4.1.2.2 Archaeology ...................................................................................... 4-2

4.2 Inventory Process ......................................................................................................... 4-3

4.2.1 Survey Methods ................................................................................................ 4-3

4.2.2 Information Needs ............................................................................................. 4-7

4.2.3 Evaluating Encountered Cultural Resources .................................................... 4-8

4.2.3.1 Resource Evaluation and National Register Criteria ....................... 4-8

4.2.4 Cultural Resource Management Priorities ...................................................... 4-15

4.2.5 Five-Year Plan Level of Effort, Personnel, and Draft Budgetary

Requirements .................................................................................................. 4-15

5.0 MANAGEMENT PLAN ........................................................................................................... 5-1

5.1 Overview ....................................................................................................................... 5-1

5.2 Objectives ..................................................................................................................... 5-1

5.3 Activities That May Affect Cultural Resources .............................................................. 5-2

5.3.1 Generic Activities .............................................................................................. 5-2

5.3.2 Specific Activities .............................................................................................. 5-3

5.3.3 Management Issues/Goals for the Casemate Fort, Buildings 207 and 230 .... 5-3

5.4 Roles and Responsibilities ............................................................................................ 5-3

5.4.1 Installation Commander Responsibilities .......................................................... 5-4

5.4.2 Cultural Resources Manager Responsibilities .................................................. 5-5

5.4.3 Museum Director/Curator Responsibilities .......................................................5-6

5.5 Internal Coordination ..................................................................................................... 5-7

5.6 External Coordination ................................................................................................... 5-8

5.7 Treatment Plans for Structures ..................................................................................... 5-9

5.7.1 General Requirements .................................................................................... 5-13

5.7.2 Accessibility ..................................................................................................... 5-13

5.7.3 Additions and New Construction ..................................................................... 5-16

5.7.4 Maintenance .................................................................................................... 5-16

5.7.5 Interiors ........................................................................................................... 5-17

5.8 Treatment Plans for Archaeological Properties .......................................................... 5-17

5.9 Standard Operating Procedures ................................................................................. 5-19

5.9.1 Standard Operating Procedure #1 .................................................................. 5-19 National Historic Preservation Act, Section 106 Review

5.9.2 Standard Operating Procedure #2 .................................................................. 5-22 Unexpected Cultural Resources Discoveries During Construction

5.9.3 Standard Operating Procedure #3 .................................................................. 5-23 Unintentional Partial Damage to an NRHP-eligible Building

5.9.4 Standard Operating Procedure #4 .................................................................. 5-24 Unintentional Partial Damage to an Archaeological Site that is

Eligible or of Unknown Eligibility to the NRHP

5.9.5 Standard Operating Procedure #5 .................................................................. 5-26

Panamerican Consultants, Inc. Fort Hamilton ICRMP vii

Procedures for the Recovery of Human Remains

5.9.6 Standard Operating Procedure #6 .................................................................. 5-27 Compliance with the Archeological Resources Protection Act of 1979 (ARPA)

5.9.7 Standard Operating Procedure #7 .................................................................. 5-28 Procedures for Standard Treatment Measures for Cultural Resources

5.9.8 Standard Operating Procedure #8 .................................................................. 5-29 Mothballing Eligible Historic Properties

5.9.9 Standard Operating Procedure #9 .................................................................. 5-30 Native American Graves Protection and Repatriation Act (NAGPRA)

5.9.10 Standard Operating Procedure #10 ................................................................ 5-32 Curation of Cultural Materials (36 CFR 79)

5.9.11 Standard Operating Procedure #11 ................................................................ 5-33 Maintenance of Installation Cultural Resources Management Plan

5.9.12 Standard Operating Procedure #12 ................................................................ 5-34 National Environmental Policy Act (NEPA) Coordination

6. ECONOMIC ANALYSIS ......................................................................................................... 6-1

7. PUBLIC INVOLVEMENT ....................................................................................................... 7-1

8. REFERENCES CITED........................................................................................................... 8-1

Panamerican Consultants, Inc. Fort Hamilton ICRMP viii

List of Appendices

A. Photographs B. National Register of Historic Places Nomination Form C. Correspondence with the New York State Historic Preservation Office (NYSHPO) D. Cultural History Overview E. Treatment Plans for Structures F. Glossary of Selected Terms G. Cover Sheets for Laws and Regulations

Panamerican Consultants, Inc. Fort Hamilton ICRMP ix

List of Illustrations

Figure Page

1.1 Location of U.S. Military Reservation ........................................................................... 1-4

3.1 Infrared aerial photograph of the Fort Hamilton Military Reservation ........................... 3-2

3.2 Property in vicinity of project area in 1873 .................................................................... 3-4

3.3 Revolutionary War-era farmstead at Denyse’s Ferry, which was situated west of

Fort Hamilton ............................................................................................................... 3-11

3.4 Map of the Battles of Brooklyn and Long Island, August-September 1776 ............... 3-12

3.5 Outline of Fort Hamilton superimposed on 1804 map of lots in Kings County .......... 3-13

3.6 Design of original casemate fortifications ................................................................... 3-15

3.7 Plan of defenses at Fort Hamilton, 1843 .................................................................... 3-16

3.8 Locations of cannon and weapons at the casemate fort, ca. 1870 ............................ 3-17

3.9 Locations of cannon and weapons at the Lee Redoubt, ca. 1870 ............................. 3-17

3.10 Fort Hamilton Military Reservation in 1889 ................................................................. 3-18

3.11 Property in eastern vicinity of Project Area in 1889 .................................................... 3-19

3.12 Fort Hamilton in 1899 .................................................................................................. 3-20

3.13 Fort Hamilton in 1935 .................................................................................................. 3-21

3.14 Aerial photograph of Fort Hamilton and vicinity, ca. 1956 .......................................... 3-22

3.15 Location of prehistoric and contact period sites in the Borough of Brooklyn ............. 3-23

3.16 Location of NRHP-listed and eligible structures and archaeological sites on the

Fort Hamilton Military Reservation .............................................................................. 3-24

3.17 Sally port and caponier from Sheridan loop, facing south-southeast ......................... 3-27

3.18 Northern section of casemate fort from Sterling Drive, facing south-southeast ........ 3-27

3.19 Southeast section of casemate fort, up Sheridan loop, facing northeast................... 3-28

3.20 Building 113 from Schum Avenue, facing east-northeast .......................................... 3-28

3.21 Building 201 from Lee Avenue and Sterling Drive, facing south ................................ 3-29

3.22 Denyse Wharf ............................................................................................................. 3-29

3.23 Map of Historic Landscape ......................................................................................... 3-30

3.24 Map of Areas of Resource Preservation Potential ..................................................... 3-33

3.25 Map of Ground Disturbing Activities ........................................................................... 3-35

3.26 Champlain’s 1605 map of Malle Barre (Nauset Harbor, Massachusetts) .................. 3-38

Panamerican Consultants, Inc. Fort Hamilton ICRMP x

List of Tables

Table Page

3.1 Ground Disturbance Areas ......................................................................................... 3-32

3.2 Areas of Resource Preservation Potential.................................................................. 3-34

3.3 Table of Definitions: General Hunter-Gatherer Site Types of the Upper Hudson

Drainage ...................................................................................................................... 3-42

4.1 Building Inventory and Eligibility Status for NRHP ..................................................... 4-3

5.1 Activities That Generally Do Not Require NYSHPO Review ...................................... 5-2

5.2 The Secretary of the Interior’s Standards for the Treatment of Historic Properties

(October 1992 Revision) ............................................................................................. 5-9

5.3 Existing Conditions of Eligible Structures at Fort Hamilton ........................................ 5-15

Panamerican Consultants, Inc. Fort Hamilton ICRMP xi

List of Photographs

Photograph

1. Building 408 from Pershing Loop South, facing northwest

2. Buildings 408 and 407 from Pershing Loop South, facing north-northwest

3. Building 405 from Pershing Loop West, facing west

4. Buildings 316 and 404 from Pershing Loop West, facing west

5. Buildings 314 and 307 from Sterling Drive, facing south-southwest

6. Building 302 and Doubleday Field from Sterling and Marshall Drives, facing north-northwest

7. Across Doubleday Field toward bridge from Sterling and Marshall Drives, facing west-northwest

8. Buildings 401 and 403 from Lee Avenue, facing southeast

9. Building 302 from Lee Avenue and Wainwright Drive, facing northwest

10. View up Wainwright (Buildings 125 and 129) from Lee Avenue, facing north-northeast

11. Building 219 from Grimes Road, facing west

12. Buildings 213 and 216 from Grimes Road, facing northwest

13. Building 210 from Marshall Drive and Roosevelt Lane, facing north-northwest

14. Buildings 211 and 214 from White Avenue, facing northeast

15. Northeast corner of Lee and White Avenues, facing east-northeast

16. View up White Avenue from Lee Avenue, facing north-northeast

17. View toward 101st Street gate from White and Lee Avenues, facing northwest

18. Downhill on White Avenue between Buildings 116 and 114, facing south-southwest

19. Rear of Building 113 from White Avenue, facing northwest

20. Building 111 from White Avenue, facing east-southeast

21. Commissary from White Avenue, facing northeast

22. Rear of Building 110 from White Avenue, facing northwest

23. Building 109 from rear of Commissary, facing southwest

24. Commissary (rear), facing south

25. High-rises from Grimes Road, facing north-northwest

26. Artillery pieces along Sterling Drive from Lee Avenue, facing west-southwest

27. Casemate fort sally port brickwork, facing southwest

28. Casemate fort sally port stone arch interior (main entrance), facing northeast

29. Casemate reconstruction in the southeast section

30. Double winding (grand) staircase in the southeastern section of the casemate fort, facing northeast

31. Pool and southern section of casemate fort from Sterling Drive, facing east

32. Northern section of casemate fort from Sterling Drive, facing north-northeast

33. Inner view of casemate fort from near sally port, facing south-southeast

34. Buildings 206, 207 (fort) and 230 (caponier/museum), facing south

35. Casemate fort and caponier from the glacis facing northwest

36. Building T-203, fort walls

37. Casemate fort (club entrance)

38. Swimming pool and playground within the casemate fort with the Verrazano Narrows Bridge in background, facing west

39. View toward Fort Wadsworth and Verrazano Narrows Bridge from the casemate fort, facing west-southwest

40. Eastern abutment of the Verrazano Narrows Bridge from the casemate fort, facing west

Panamerican Consultants, Inc. Fort Hamilton ICRMP xii

41. Casemate fort, with Verrazano Narrows Bridge in background, from Marshall Drive, facing west

42. Casemate fort from Sterling Drive, facing north

43. General area of wharf, from Sterling Drive, facing northwest

44. Building 117 from Lee Avenue, facing east

45. Building 117 from Lee Avenue, facing north

46. Building 117 from White Avenue, facing west-northwest

47. Building 202 from rear, facing southeast

48. Building 202 from White Avenue, facing west-northwest

49. Building 201 (rear), from Building 209, facing north

50. Artillery pieces along Sterling Drive from Lee Avenue, facing west-southwest

51. Building 113 from Schum Avenue, facing southeast

52. Front of Building 110 Jefferson House, from Schum Avenue, facing northeast

53. Front of Building 110 Jefferson House from Schum Avenue, facing south

54. Front of Building 109, Adams Guest House, from Schum Avenue, facing northeast

55. Nayack Monument, closeup

56. Front of Building 109 from Schum Avenue, facing south

57. Rear of Building 109 from White Avenue, facing west-southwest

58. Rear of Building 109 from White Avenue, facing northwest

59. Rear of Building 110 from Commissary parking lot, facing west-southwest

60. Rear of Building 113 from White Avenue, facing southwest

61. Building 111 from Battery Avenue, facing northwest

62. Building 232, facing southwest

63. Building 232, facing southwest

64. “Building” 112 from Lee Avenue, facing north

65. Building 231, facing north

66. Building 107, from Schum Avenue

67. Building 107 (rear), from White Avenue

68. Area of Buildings 407 & 408, which were demolished in 2007, facing northwest

69. Garden style apartments on former Doubleday Field, facing east

70. Garden style apartments on former Doubleday Field, facing southeast

71. Garden style apartments on former Doubleday Field, facing northwest

72. Townhouses, from Pershing Loop

73. Renovated townhouses, Building 221 from Marshall Drive

74. Renovated townhouses, Building 222 from Washington Road

75. Building 113, from Schum Avenue

76. Rear of Building 113, from White Avenue

77. High-rises (Buildings 137 & 136) up Grimes Road North

Panamerican Consultants, Inc. Fort Hamilton ICRMP xiii

List of Abbreviations

ACHP = Advisory Council for Historic Preservation ACI = American Concrete Institute AD = Anno Domini ADA = Americans with Disabilities Act ADAAG = Americans with Disabilities Act Accessibility Guidelines AIRFA = American Indian Religious Freedom Act of 1978 Alum = aluminum APT = Association for Preservation Technology International AR = Army Regulation ARPA = Archaeological Resources Protection Act ASI = American Steel Institute ASTM = American Society for Testing and Materials Ave. = Avenue BC = Before Christ Bldg = Building BP = Before Present C = Celsius c./ca. = circa

cf. = confer (compare with) CFR = Code of Federal Regulations cm = centimeter conc. = concrete Const. = construction CRM = Cultural Resources Manager CRMP = Cultural Resources Management Plan cvrd = covered DA = Department of the Army D.C. = District of Columbia Dr. = Drive E = East ed = editor or edition depending on context elev. = elevation encl = enclosed et al. = et alii (and others) F = Fahrenheit fl = floor foun. = foundation ft = feet Ft. = Fort GDA = ground disturbance area HPO = Historic Preservation Officer ICRMP = Integrated Cultural Resources Management Plan inc. = incorporated incl. = including km = kilometer LBA = Louis Berger and Associates, Inc.

loc. = located

Panamerican Consultants, Inc. Fort Hamilton ICRMP xiv

Mil Spc = Military Specifications mm = millimeter N = north n.d. = no date n.p. = no place or no page depending on context NAGPRA = Native American Graves Protection and Repatriation Act of 1990 NE = northeast NEPA = National Environmental Policy Act NHPA = National Historic Preservation Act No. = number NRHP = National Register of Historic Places NW = northwest NYSDEC = New York State Department of Environmental Conservation NYSHPO = New York State Historic Preservation Office OPRHP = (New York State) Office of Parks, Recreation, and Historic Preservation Orig. = original Pam = pamphlet PCI = Panamerican Consultants, Inc.

PL = Public Law MOA = Programmatic Memorandum of Agreement

pp. = pages pt = painted PX = Post Exchange Rpt = reprint S = south

sp. = species Sq. = square SRHP = State Register of Historic Places SSPC-SP6 = standard specification for sand blasting cast iron trans = translator vol. = volume w/in = within W = west wd = wood WES = Waterways Experiment Station (Army Corps of Engineers) YMCA = Young Men’s Christian Association

Panamerican Consultants, Inc. Fort Hamilton ICRMP 1-1

1.0 Introduction

This document is the updated and revised Integrated Cultural Resources Management Plan (ICRMP) for US Army Garrison Fort Hamilton, located in Brooklyn, Kings County, New York. This document was first prepared in July 1998 for the U.S. Army Corps of Engineers (USACE), New York District by Panamerican Consultants, Inc. (PCI) (Schieppati et al. 1998a). The document was revised during the summer of 2000 under a cooperative agreement with the Department of Defense and the U.S. Army Medical Research and Materiel Command, Fort Detrick, Maryland.1 The previous revision that the New York State Historic Preservation Office (NYSHPO) approved, was completed in the summer of 2005, this revision included the leasing of the housing areas to Balfour Beatty Communities, INC and a Programmatic Agreement regarding Building 201.

As a federal agency, the Army has management responsibilities concerning the protection and preservation of cultural resources on land it controls and uses. The preparation of an ICRMP is mandated by requirements stipulated in Army Regulation (AR) 200-1 (2007). The ICRMP will serve as the installation’s decision document for the protection of cultural resources and compliance with federal cultural resources management mandates. The ICRMP includes a strategy for incorporating the protection and treatment of all cultural resources eligible for the National Register of Historic Places (NRHP) located within the fort into the installation’s ongoing mission activities (AR 200-1 2007:29).

The U.S. Army describes cultural resources as ”historic properties as defined in the NHPA (National Historic Preservation Act), cultural items as defined in the Native American Graves Protection and Repatriation Act (NAGPRA), archeological resources as defined in the Archeological Resources Protection Act (ARPA), sacred sites as defined in Executive Order 13007 to which access is provided under the American Indian Religious Freedom Act (AIRFA), and collections as defined in 36 CFR 79 Curation of Federally-Owned and Administered Collections“ (Department of the Army Pamphlet [DA Pam] 200-4:6-7).

1.1 GOALS AND PURPOSE

The goal of the ICRMP is to integrate the treatment of cultural resources with the installation's mission including programs, procedures, construction, military training, projects and real property or land use decisions. This integration will allow the mission of Fort Hamilton to continue without disruption while, at the same time, ensuring that significant cultural resources are documented and/or preserved for future generations. The ICRMP should be reevaluated in five years to determine whether the document still meets mission requirements. To incorporate changes that may occur on the installation, an annual review will be performed and updates will be made as needed. The ICRMP will:

1) specify the compliance procedures with the New York State Historic Preservation Office

(NYSHPO) and the Advisory Council on Historic Preservation Office (ACHP) required by Sections 106 and 110 of the NHPA;

1 Ms. Kelly Cygan, Cultural Resources Manager during 2000, was PCI’s point-of-contact at Fort Hamilton. Dr. Frank J.

Schieppati served as PCI’s Preservation Planner and Principal Investigator, and Mr. Mark A. Steinback served as Preservation Planner, Historian and Technical Editor. Dr. Edward V. Curtin served as Principal Archaeologist and was assisted by Ms. Kerry L. Nelson. Mr. Martin Lewars prepared the graphics. Mr. Carl W. Thiel and Mr. Steinback were responsible for editing and producing the report. Dr. Michael A. Cinquino served as PCI’s Project Director.

Panamerican Consultants, Inc. Fort Hamilton ICRMP 1-2

2) set priorities for a five-year plan on the basis of the background research to identify additional field, analytical and documentation projects needed to fill data gaps and further develop, evaluate and manage the inventory of cultural resources eligible for the NRHP;

3) establish procedures for evaluating newly discovered cultural resources and periodically update existing determinations;

4) rank installation undertakings by their potential to damage or impact cultural resources eligible for the NRHP;

5) provide guidelines for the protection and treatment of cultural resources eligible for the

NRHP; and

6) identify general levels of funding, appropriate staffing and scheduling requirements needed to implement the ICRMP.

1.2 CONTENT

The ICRMP consists of three primary elements: the planning level survey, cultural resources inventory, and management plan.

The Planning Level Survey consists of a discussion of the fort’s present environmental setting (physiography, topography, soils, hydrology, climate, flora, and fauna) along with the area’s past environmental setting (paleoenvironment) and land uses, both present and past. The planning level survey also consists of a literature review and summary of the area’s prehistoric and historic period culture history, including relevant World War II and Cold War elements, and a review of known or previously recorded cultural resources and previous surveys, studies or predictive models.

This cultural/historical information determines the range and types of resources that may be present.

One of the more significant parts of the planning level survey is the cultural landscape analysis.

The cultural landscape analysis integrates what is known about the installation with research contexts and questions appropriate to the fort and eastern New York State to provide a framework for the ICRMP and the implementation of project-specific compliance actions. Information derived from this analysis will assist in developing Geographical Information System (GIS) data layers for use in analyzing the spatial relationships among all cultural resources within their natural and human settings.

The Cultural Resources Inventory merges previously gathered data concerning the installation with any new information in order to identify any ”gaps” in these data. Procedures and field efforts necessary to both fill these data gaps and maintain the inventory, along with budgetary considerations, also are discussed. While some of the inventory may consist of archaeological resources, the bulk of the known cultural properties at the fort are standing structures.

The purpose of the Management Plan is to prescribe management and protection requirements and strategies for the inventoried properties and archaeologically sensitive areas based on their historic resource values. The focus of this section is on the internal installation coordination, consultation and standard operating procedures (SOPs) for proposed or planned installation activities. In addition, procedures for conducting an economic analysis of historic buildings and an evaluation life-cycle maintenance costs of new construction are included. A public participation plan for cultural resources is also part of this section.

Panamerican Consultants, Inc. Fort Hamilton ICRMP 1-3

1.3 FORT HAMILTON HISTORY

The US Army Garrison Fort Hamilton is located in the southwestern portion of the Borough of Brooklyn, Kings County, New York (Figure 1.1). Within the City of New York, the fort is situated at the far western end of Long Island and on the eastern shore of the Narrows, directly across from Staten Island. Prior to the establishment of Fort Hamilton, this section of Kings County contained isolated farmsteads that grew wheat, tobacco, and vegetables and several ferrying operations that connected western Long Island to Staten Island. One of these ferry landings-the Denyse Ferry-served as the location and staging area for the British invasion of Long Island on 22 August 1776.

Several forts were erected to protect New York Harbor during the early years of American nationhood. These forts included Fort Wadsworth (on Staten Island), Fort Lafayette (on a reef in the Narrows) and Fort Lewis (within the present-day Fort Hamilton). After the War of 1812, military planners decided to erect a masonry casemate fort and an earthen redoubt on the site of Fort Lewis.

Redesignated Fort Hamilton, this facility was constructed between 1825 and 1831 as part of what is called "the Third or Totten System" of coastal defense. During the nineteenth century Fort Hamilton remained in virtual self-contained isolation, surrounded by extensive wetlands and farmland (Ross 1902; Stiles 1884; Facility Engineers Office 1991; Klein et al. 1986; Mariani and Associates 1988).

Several officers, who later became famous, served at the installation early in their careers, and included: Captain Robert E. Lee (from 1841-1846), Major Thomas "Stonewall" Jackson (in 1849), and Captain Abner Doubleday (during the late 1850s and in 1861). Major Richard Delafield, Chief U.S. Army Engineer and noted Superintendent of the U.S. Military Academy, served at the facility during his career (Facility Engineers Office 1991; Harbor Defense Museum Archives 1894).

The Civil War brought change to both the fort and the surrounding community. The installation adapted to the exigencies of war and defense with the construction of temporary buildings and residences to the north and east of the casemate fort. The community also began to expand as one-time farm structures began to evolve, first into spacious suburban residences, and then into resort communities where the urban dwellers from New York City and Brooklyn could escape to enjoy the baths and beaches (Ross 1902; Bergen 1884; Murphy 1979; Miller et al. 1979; Stiles 1884). At the turn of the twentieth century, Fort Hamilton increased its physical size by incorporating contiguous properties and its defenses were modernized in response to the recommendations of the Endicott and Taft Boards. At the same time, the surrounding Town of New Utrecht was first subsumed into the City of Brooklyn in 1896, and then into the City of New York two years later (Robinson 1889; Miller et al. 1979; Stiles 1884; Ross 1902; Klein et al. 1986).

During the twentieth century, the area surrounding Fort Hamilton saw intensive development as a residential community and as part of the urbanization of New York City. The construction of the Shore Parkway in the 1930s and the erection of the Verrazano-Narrows Bridge in the 1960s have, for all practical purposes, cut the fort off from its historic relationship with the sea. The fort also has undergone reorganization, assuming duties increasingly related to recruitment, housing and general support and less for coastal defense. In the early 1970s, the command structure of the Army was reorganized, resulting in the creation of the New York Area Command (NYAC) in 1975. Although headquartered at Fort Hamilton, the installation was subordinate to Command of Fort Dix, N.J.

(Facility Engineers Office 1991; Mariani and Associates 1988; Klein et al. 1986).

Panamerican Consultants, Inc. Fort Hamilton ICRMP 1-4

Figure 1.1. Location of U.S. Military Reservation. Fort Hamilton ICRMP, Brooklyn, Kings County, New York (USGS 7.5’ Quadrangle, The Narrows, NY-NJ 1981 [1966].

Fort Hamilton is part of the Military District of Washington, a MACOM in addition to being part of the Installation Management Command (IMCOM). Contributing administrative, financial, intelligence, legal, logistical, managerial, operational, and security support for all assigned and attached units, Fort Hamilton also “provides administrative, logistical, and medical support to retirees and their dependents, reserve units, National Guard units, and active duty personnel, including tenant and satellite units, in New York City and the surrounding counties“ (USACE 1998). The mission of the US Army Garrison Fort Hamilton is to “provide quality installation services, support and facilities to enhance mission readiness and promote well-being in a safe and secure environment.” The present reservation tract consists of approximately 177 acres (71.6 hectares); of that amount less than 120 acres (48.5 ha) are considered usable. On June 1, 2004 housing areas were leased to Balfour Beatty Communities, INC as part of the Army’s Residential Communities Initiative. This included the building 201; building 201 is eligible for listing on the National Register of Historic Places; Fort Hamilton will ensure that any construction or maintenance decisions for this building are conducted in accordance with the Secretary of the Interior’s and Guidelines for the Treatment of Historic Properties. The consultation process will be the responsibility of Fort Hamilton as it has been incorporated into a Programmatic Agreement.

Panamerican Consultants, Inc. Fort Hamilton ICRMP 1-5

Panamerican Consultants, Inc. Fort Hamilton ICRMP 2-1

2.0 Statutes and Regulations

This section provides a brief overview of relevant federal cultural and archaeological resources statutes, regulations, memoranda and executive orders (EOs). As a federal agency, the U.S. Army has management responsibilities concerning the protection and preservation of cultural resources on land it controls or uses. Pertinent federal laws and regulations authorizing the Army to undertake these responsibilities include:

National Historic Preservation Act (NHPA) of 1966, as amended through 1992 (16 USC 470-470w) and 36 CFR 800, 60, 63, and 78, which includes the Section 106 and 110 process.

Army Regulation 200-1 “Environmental Quality, Environmental Protection and Enhancement,” 13 December 2007.

National Environmental Policy Act (NEPA) of 1969 (40 CFR Parts 1500-1508).

National Environmental Policy Act (NEPA) of 1969, “Environmental Analysis of Army Actions; Final Rule” (32 CFR Part 651).

Executive Order 11593-Protection and Enhancement of the Cultural Environment (1972).

Archaeological and Historic Preservation Act (AHPA) of 1974 (Public Law [PL] 93-291;

16 USC 469-469c).

Antiquities Act of 1906 (16 USC 431-433; 43 CFR 3).

Archeological Resources Protection Act (ARPA) of 1979 (PL 96-95/16 USC 470aa-470ll;

32 CFR 229, 36 CFR 296, and 43 CFR 7).

American Indian Religious Freedom Act (AIRFA) of 1978, as amended (42 USC 1996- 1996a).

Native American Graves Protection and Repatriation Act (NAGPRA) of 1990 (23 USC

3001-3013; 43 CFR 10).

White House Memoranda of 29 April 1994-Government-to-Government Relations with Native American Tribal Governments.

Executive Order 13007-Indian Sacred Sites (1996).

Curation of Federally-Owned and -Administered Collections, 12 September 1990 (36

CFR 79).

Although state and local cultural and archaeological resources laws and regulations do not apply to federal Army property, consultation with the New York State Historic Preservation Office (NYSHPO) and the Advisory Council on Historic Preservation (ACHP) is required by NHPA and is vital in the compliance with the related federal regulations noted above. Selected federal cultural resources statutes, regulations, EOs, and memoranda are listed in Appendix G with an Internet web

Panamerican Consultants, Inc. Fort Hamilton ICRMP 2-2 address for more detailed information.

2.1 NATIONAL HISTORIC PRESERVATION ACT OF 1966, AS AMENDED

The NHPA, the primary federal cultural resources statute, established as federal policy the protection and preservation of historic sites and values. The act asserts the National Register of Historic Places (NRHP) as the country’s catalog of historic properties significant on a local, state, or national level, and provides the foundation of the country’s historic preservation program.

Subsequent amendments delegated the State Historic Preservation Officer (SHPO) with the responsibility for administering programs in the states. This act also established the ACHP, as well as a federal system for identifying and registering potential historic properties. Federal agencies, including the U.S. Army, are required to consider the effects of their undertakings on historic resources, and to give the ACHP a reasonable opportunity to comment on those undertakings, if necessary. The NHPA (Section 301) defines a historic property as any prehistoric or historic district, site, structure, building, or object in, or eligible for inclusion in, the NRHP, including artifacts, records, and material remains related to the property. Federal agency responsibilities are outlined below. For the full text of the act, see: http://www.cr.nps.gov/local-law/nhpa1966.htm.

Section 101. This section charges the installation commander with the responsibility of consulting any federally recognized Native American tribe or Native Hawaiian organization that attaches religious and/or cultural significance to a property under Section 106 consideration.

Section 106. This section of the act requires the consideration of effects of activities classified as undertakings on historic properties included in, or eligible for inclusion in, the NRHP and ACHP comment on federal undertakings. Regulation 36 CFR 800, Protection of Historic Properties; Final Rule; delineates the procedures for complying with the law. It is important to note that federal regulations do not require the preservation of all historic properties, however, the Army must consider the effects of its undertakings on these properties.

ACHP Regulations Regarding the Protection of Historic Properties. Regulation 36 CFR 800 (65 Federal Register [FR] 77698, December 12, 2000; effective January 11, 2001) details the Section 106 process legislated under the NHPA.