Military_Ocean_Terminal_Concord_Integrated_Cultural_Resources_Management....pdf

Military Ocean Terminal Concord Integrated Cultural Resources

Management Plan Update

Final

U.S. Army Military Surface Deployment and Distribution Command 834th Transportation Battalion Operations at Military Ocean Terminal Concord, California

May 2011

2011-2016

[PAGE INTENTIONALLY BLANK]

Under the authority of the National Historic Preservation Act (NHPA) and the Archaeological Resources Protection Act (ARPA), this report is not for public release due to the specific site locations included.

U.S. Army Integrated Cultural Resources

Management Plan

834th Transportation Battalion Military Ocean Terminal

Concord, California

Prepared for:

U.S. Army Military Surface Deployment and Distribution Command

Contract by:

Army Corps of Engineers, Mobile District

Prepared under contract by:

TEC Inc./Louis Berger Group, Inc.

Contract No. W91278-08-D-0043 Task Order No. 0011

2011-2016

Under the authority of the National Historic Preservation Act (NHPA) and the Archaeological Resources Protection Act (ARPA), this report is not for public release due to the specific site locations included.

ACKNOWLEDGEMENTS

Contract No.: W91278-08-0043

Task Order No.: 0011

USACE Mobile District Technical Manager: Mr. Joseph Giliberti

U.S. Army Military Surface Deployment and Distribution Command: Ms. Kimberly Garber

834th Transportation Battalion Department of Public Works Director: Mr. Malcolm Charles

Compiled by: TEC Inc.

Jacksonville, Florida

Ms. Carol Wirth

Ms. Carrie Schomig

Ms. Jennifer Bryant

Under Contract to: The Louis Berger Group, Inc.

Morristown, New Jersey

Integrated Cultural Resources Management Plan v

Table of Contents

TABLE OF CONTENTS

ACKNOWLEDGEMENTS ......................................................................................................................... iii

LIST OF FIGURES .................................................................................................................................... vii

LIST OF TABLES ...................................................................................................................................... vii

LIST OF ACRONYMS ............................................................................................................................. viii

CHAPTER 1.0 EXECUTIVE SUMMARY ............................................................................................. 1-1

CHAPTER 2.0 INTRODUCTION ........................................................................................................... 2-1

2.1 OVERVIEW .............................................................................................................................. 2-1

2.2 NATURAL SETTING ............................................................................................................... 2-2

2.3 LAND USES .............................................................................................................................. 2-3

2.4 HISTORY AND MISSION OF MILITARY OCEAN TERMINAL CONCORD .................... 2-6

2.5 CULTURAL RESOURCES PROGRAM: SUMMARY AND GOALS ................................... 2-8

2.6 ICRMP AND ICRMP UPDATE ORGANIZATION ................................................................ 2-9

2.7 ICRMP PLAN DEVELOPERS AND REVIEWERS ................................................................ 2-9

2.8 ICRMP AUDIENCE .................................................................................................................. 2-9

2.9 SUMMARY OF CHANGES SINCE THE 2002-2007 ICRMP .............................................. 2-10

CHAPTER 3.0 MILITARY OCEAN TERMINAL CONCORD CULTURAL RESOURCES ............... 3-1

3.1 INTRODUCTION ..................................................................................................................... 3-1

3.2 SUMMARY OF PREVIOUS INVESTIGATIONS ................................................................. 3-1

3.3 BUILDINGS AND STRUCTURES ........................................................................................ 3-14

3.4 LANDSCAPE FEATURES ..................................................................................................... 3-20

3.5 LINEAR RESOURCES ........................................................................................................... 3-20

3.6 ARCHAEOLOGICAL SITES ................................................................................................. 3-22

3.7 UNDERWATER RESOURCES .............................................................................................. 3-35

3.8 PROPOSED FACILITIES ...................................................................................................... 3-35

CHAPTER 4.0 CURRENT PRIORITIES ................................................................................................ 4-1

4.1 PROPOSED INDIVIDUAL UNDERTAKINGS ...................................................................... 4-2

4.2 SECTION 110 SURVEY AND EVALUATION ...................................................................... 4-3

4.3 AMERICAN INDIAN TRIBAL CONSULTATION AND AGREEMENTS .......................... 4-5

4.4 AMERICAN INDIAN GROUPS WITH AN INTEREST IN ACTIVITIES AT MOTCO....... 4-5

4.5 GOALS FOR THE MOTCO CULTURAL RESOURCES MANAGEMENT PLAN .............. 4-7

CHAPTER 5.0 UPDATED LAWS AND REGULATIONS .................................................................... 5-1

5.1 CHANGES TO HISTORIC PRESERVATION LAWS ............................................................ 5-1

5.1.1 36 Code of Federal Regulations Part 800 (36 CFR § 800), ―Protection of Historic and

Cultural Properties,‖ amended August 2004 ..................................................................... 5-3

5.1.2 Executive Order 13287, ―Preserve America,‖ March 3, 2002 ........................................... 5-4

5.1.3 Executive Order 13327, ―Federal Real Property Asset Management,‖ February 4, 2004 . 5-5

5.1.4 Army Regulation (AR) 200-1, ―Environmental Protection and Enhancement,‖ revised

December 13, 2007 ............................................................................................................ 5-7

5.1.5 DoDI 2000.16, ―DoD Antiterrorism (AT) Standards‖ ....................................................... 5-7 vi Integrated Cultural Resources Management Plan

Table of Contents

CHAPTER 6.0 STANDARD OPERATING PROCEDURES (SOPs) ..................................................... 6-1

6.1 OVERVIEW ............................................................................................................................. 6-1

SOP 1: MAINTENANCE AND CARE FOR HISTORIC BUILDINGS AND STRUCTURES .. 6-2

SOP 2: DISPOSAL OR DEMOLITION OF EXCESS PROPERTY ............................................. 6-6 SOP 3: MISSION TRAINING OF MILITARY AND TENANT PERSONNEL ........................ 6-12 SOP 4: EMERGENCY ACTIONS .............................................................................................. 6-14

SOP 5: INADVERTENT DISCOVERY OF ARCHAEOLOGICAL DEPOSITS/CULTURAL

MATERIAL .................................................................................................................... 6-16 SOP 6: CURATION GUIDELINES ............................................................................................ 6-20 SOP 7: DEPARTMENT OF PUBLIC WORKS (DPW) ACTIVITIES ....................................... 6-27 SOP 8: IDENTIFYING HISTORIC PROPERTIES .................................................................... 6-29 SOP 9: EVALUATING HISTORIC PROPERTIES .................................................................... 6-37 SOP 10: SECTION 106 PROCESS ............................................................................................... 6-56

SOP 11: TRIBAL CONSULTATION PROCESS ......................................................................... 6-60

CHAPTER 7.0 ICRMP BIBLIOGRAPHY .............................................................................................. 7-1

APPENDIX A: Glossary ........................................................................................................................... A-1

APPENDIX B: MOTCO Real Property Inventory and Installation Maps................................................ B-1

APPENDIX C: Program Comment for World War II and Cold War Era (1939-1974) Ammunition

Storage Facilities ............................................................................................................. C-1

APPENDIX D: DoD Instruction, Cultural Resources Management ........................................................ D-1

APPENDIX E: Federally Recognized American Indian Tribes and Sacred Site File Search Results ...... E-1

Integrated Cultural Resources Management Plan vii

Table of Contents

LIST OF FIGURES

Figure 1-1. MOTCO Location Map ........................................................................................................... 1-2 Figure 2-1. Land Use at MOTCO .............................................................................................................. 2-4 Figure 2-2. Wetland Preserve at MOTCO ................................................................................................. 2-5 Figure 2-3. Agricultural Outleases at MOTCO.......................................................................................... 2-5 Figure 3-1. Previous Cultural Resources Surveys within MOTCO and within a One-Mile Radius of

MOTCO ............................................................................................................................... 3-11 Figure 3-2. Areas with Surface Archaeological Potential at MOTCO .................................................... 3-24 Figure 3-3. Areas with Surface Archaeological Potential at MOTCO .................................................... 3-25 Figure 3-4 Areas with Surface Archaeological Potential at MOTCO ..................................................... 3-27 Figure 3-5. Areas with Surface Archaeological Potential at MOTCO .................................................... 3-29 Figure 3-6. Previously Recorded Archaeological Sites within MOTCO and within a One-Mile Radius of

MOTCO ................................................................................................................................. 3-33 Figure 6-1. Flowchart in Event of Inadvertent Discovery of Potential Cultural Resources .................... 6-19 Figure 6-2. Section 106 Process Flowchart ............................................................................................. 6-59

LIST OF TABLES

Table 2-1. Summary of Changes Since the NWSSBD Concrod 2002-2007 ICRMP ............................. 2-10

Table 3-1. Summary of Previous Cultural Resource Investigations within MOTCO............................... 3-3 Table 3-2. Cultural Resources Surveys within One Mile of MOTCO ...................................................... 3-7 Table 3-3. MOTCO Facilities Built After 1990 Not Yet Surveyed or Evaluated for National Register

Eligibility .............................................................................................................................. 3-16

Table 3-4. Projects Likely to Be Implemented and/or Further Planned (2011-2016) and Initial

Cultural Resource Determinations ......................................................................................... 3-36

Table 4- 1. Management Activities ............................................................................................................ 4-2

Table 4-2. Buildings and Structures at MOTCO That Require Reevaluation .......................................... 4-3

Table 4-3. Buildings and Structures at MOTCO That Will Require Evaluation/Reevaluation as They

Reach 50 Years of Age ............................................................................................................ 4-4

Table 4-4. List of Federally Recognized American Indian Tribes for MOTCO ....................................... 4-6

Table 4-5. Planned Projects/Cultural Resource Priorities for MOTCO .................................................... 4-8

Table 5-1. Statutes, Laws, Regulations, and Other Guidance Applicable to the Army Integrated Cultural

Resources Management Plan ................................................................................................... 5-1

Table 5-2. DoD Real Property Historic Status Codes ............................................................................... 5-5 viii Integrated Cultural Resources Management Plan

List of Acronyms

LIST OF ACRONYMS

ACHP Advisory Council on Historic Preservation

ACSIM Assistant Chief of Staff for Installation Management

AEC Army Environmental Center

AEDB-EQ Army Environmental Database – Environmental Quality

AIRFA American Indian Religious Freedom Act

APE Area of Potential Effects

AR Army Regulation

ARPA Archaeological Resources Protection Act

BRAC Base Realignment and Closure

CFR Code of Federal Regulations

CHRIS California Historical Resources Information System

CRM Cultural Resources Management

CRP Cultural Resources Program

CX Categorical Exclusion

DENIX Defense Environmental Network and Information Exchange

DNE Determined Not Eligible for Listing

DNR NHLI/NHLC/NREI/NREC Property, Designation Rescinded

DoD Department of Defense

DoDI Department of Defense Instruction

DPW Department of Public Works

EA Environmental Assessment

ECAS Environmental Compliance Assessment System

EIS Environmental Impact Statement

ELPA Eligible for the purposes of a Program Alternative

EO Executive Order

FLETC Federal Law Enforcement Training Center

FOIA Freedom of Information Act

FONSI Finding of No Significant Impact

FPO Federal Preservation Officer

FY Fiscal Year

GIS Geographic Information System

GPS Global Positioning System

HABS/HAER Historic American Building Survey/Historic American Engineering Record

HPC Historic Properties Component

HQDA Headquarters, Department of the Army

HSC Historic Status Code

ICC Indian Claims Commission

ICRMP Integrated Cultural Resources Management Plan

IFS Integrated Facilities System

INRMP Integrated Natural Resources Management Plan

ITAM Integrated Training Area Management (program)

JRP JRP Historical Consulting Services

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List of Acronyms

LEA Layaway Economic Analysis

MOA Memorandum of Agreement (per 36CFR800)

MOTCO Military Ocean Terminal Concord

MOTSU Military Ocean Terminal Sunny Point

MOU Memorandum of Understanding

NAGPRA Native American Graves Protection and Repatriation Act

NCE Non-Contributing Element of NHL/NRL/NRE District

NEPA National Environmental Policy Act of 1969, as amended

NEV Not Evaluated

NHL National Historic Landmark

NHLC Contributing Element of a NHL District

NHLI Individual National Historic Landmark

NHPA National Historic Preservation Act of 1966, as amended

NPS National Park Service

NREC Contributing Element of a NRE District

NREI Individual National Register Eligible

NRHP National Register of Historic Places

NRLC Contributing Element of NRL District

NRLI Individual National Register Listed

NWS Naval Weapons Station

NWSSBD Naval Weapons Station Seal Beach Detachment

PA Programmatic Agreement (per 36 CFR 800)

PAO Public Affairs Office

POC Point of Contact

POTO Plans and Operations Training Officer

REC Record of Environmental Consideration

RFRA Religious Freedom Restoration Act

RPMP Real Property Master Plan

SDDC Surface Deployment and Distribution Command

SHPO State Historic Preservation Officer

SOP Standard Operating Procedures

TB Transportation Battalion

TBD To Be Determined

THPO Tribal Historic Preservation Officer

UFC Unified Facilities Criteria

U.S. United States

USACE U.S. Army Corps of Engineers

USACERL U.S. Army Civil Engineering Research Laboratory

U.S.C. U.S. Code

UTM Universal Transverse Mercator

UXO Unexploded Ordnance x Integrated Cultural Resources Management Plan

List of Acronyms

Integrated Cultural Resources Management Plan 1-1

Chapter 1 – Executive Summary

CHAPTER 1.0

EXECUTIVE SUMMARY

The U.S. Army Military Surface Deployment and Distribution Command’s (SDDC) 834th Transportation

Battalion (TB) operates Military Ocean Terminal Concord (MOTCO). MOTCO is a munitions transshipment facility located at a strategic site in north central Contra Costa County, California. This installation is the primary West Coast common-user ammunition terminal for the Department of Defense

(DoD).

MOTCO operated as a tenant of Naval Weapons Station Seal Beach Detachment Concord (NWSSBD

Concord) from 1 October 1999 to October 1, 2008 under the Department of the Navy. As part of Base

Realignment and Closure (BRAC) 2005, the 6,526-acre Tidal Area and 115-acre Inland Area were transferred to the Army (see Figure 1-1). From 1942, when the installation was officially commissioned as Naval Magazine, Port Chicago, through the 1990s when the installation was NWSSBD Concord, MOTCO has served as the major naval munitions transshipment port on the West Coast. SDDC’s 834th

TB’s mission is to conduct surface deployment, command and control, and distribution operations for the

DoD through terminals and facilities in California in peacetime and war. The 834th TB also is responsible for the daily management of the installation. The 834th TB is subordinate to the 596th Transportation

Group (Ammunition), located at Military Ocean Terminal Sunny Point (MOTSU) in Southport, North

Carolina. Whereas the 834th TB at MOTCO oversees West Coast Ammunition Terminal Operations, the

596th Transportation Group at MOTSU oversees East Coast Ammunition Terminal Operations. The broader Command mission is to provide global SDDC services to meet the nation's objectives. SDDC deploys and sustains more than 90 percent of the DoD’s equipment and supplies by leveraging the capability of commercial industry and other military services.

To a large degree, this document updates the Integrated Cultural Resources Management Plan (ICRMP) that was prepared for NWSSBD Concord in 2002-2007 prior to the BRAC transfer of the Tidal and

Inland Areas from NWSSBD Concord to MOTCO. Please refer to Appendix B for detailed maps of existing MOTCO facilities.

This ICRMP is designed to facilitate the implementation of historic preservation compliance actions by

MOTCO. Completed in accordance with DoD-Instruction 4715.3 and AR 200-1 revised in 2007 and issued September 18, 2008, this document reflects MOTCO’s new ownership, support for the military mission and meets the legal compliance requirements of federal historic preservation laws and regulations in a manner consistent with the sound principles of cultural resources stewardship. This ICRMP establishes priorities for the identification and evaluation of historic properties located at MOTCO, and provides a schedule designed to accomplish program objectives during a five-year period from 2011 to

2015.

This ICRMP provides new and revised information regarding cultural resources, projects planned or scheduled on the installation, and establishes priorities for cultural resource management during the five-year period in which the current ICRMP will be in effect. It also includes a set of Standard Operating

Procedures tailored specifically to the needs of MOTCO’s Environmental Coordinators.

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Figure 1-1. MOTCO Location Map

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Chapter 1 – Executive Summary

This document is an internal compliance and management plan that integrates the entirety of the Army’s

Cultural Resources Program (CRP) requirements with ongoing mission activities. It allows for ready identification of potential conflicts between MOTCO’s missions and cultural resources and it identifies compliance actions necessary to maintain the mission-essential properties and acreage. Some examples of activities which will likely require compliance action include:

additions to existing structures laying conduit/pipe in undisturbed corridors new construction sale or transfer of additional properties site preparation substructure improvements building demolition installation and repair of fences and gates installation or changes in exterior lighting archaeological/cultural resource surveys exterior closure exterior finishes repair of existing electric power, telephone, water, sewer, and natural gas lines upgrading, maintaining and improving roads, trails, parking areas, and drainages asbestos removal cleaning (interior/exterior) interior construction interior finishes roofing paint removal/disposal window/sash/frame replacement tree cutting leasing structures to both private and public entities

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Integrated Cultural Resources Management Plan 2-1

Chapter 2 - Introduction

CHAPTER 2.0

INTRODUCTION

2.1 OVERVIEW

The U.S. Army Military Surface Deployment and Distribution Command’s (SDDC) 834th Transportation

Battalion (TB) has operated Military Ocean Terminal Concord (MOTCO) as a tenant of Naval Weapons

Station Seal Beach Detachment (NWSSBD) Concord since October 1, 1999. As part of Base

Realignment and Closure (BRAC) 2005, the 6,526-acre Tidal Area and 115-acres of Inland Area (see

Figure 1) were transferred to the Army effective on October 1, 2008.

From 1942, when the installation was officially commissioned as Naval Magazine, Port Chicago, through the 1990s when the installation was NWSSBD Concord, MOTCO has served as the major naval munitions transshipment port on the West Coast. SDDC’s 834th TB’s mission is to conduct surface deployment, command and control, and distribution operations for the Department of Defense (DoD) through terminals and facilities in California in peacetime and war. The 834th TB also is responsible for the daily management of the installation. The 834th TB is subordinate to the 596th Transportation Group

(Ammunition), located at Military Ocean Terminal Sunny Point (MOTSU) in Southport, North Carolina.

Whereas the 834th TB at MOTCO oversees West Coast Ammunition Terminal Operations, the 596th

Transportation Group at MOTSU oversees East Coast Ammunition Terminal Operations. The broader

Command mission is to provide global SDDC services to meet the nation's objectives. SDDC deploys and sustains more than 90 percent of the DoD’s equipment and supplies by leveraging the capability of commercial industry and other military services.

This Integrated Cultural Resources Management Plan (ICRMP) is designed to facilitate the implementation of historic preservation compliance actions by the Army. Completed in accordance with

DoD Instruction 4715.3 and AR 200-1 issued September 18, 2008, this document reflects MOTCO’s new ownership, support for the military mission, and meets the legal compliance requirements of federal historic preservation laws and regulations in a manner consistent with the sound principles of cultural resources stewardship. This ICRMP 1) establishes priorities for the identification of and standards for the evaluation of historic properties located at MOTCO and 2) provides a schedule designed to accomplish program objectives during a five-year period from 2011 to 2016.

This ICRMP updates guidance originally provided in the 2002-2007 ICRMP that was prepared for

NWSSBD Concord prior to the BRAC transfer of the Tidal Area and the Inland Areas from NWSSBD

Concord to MOTCO. It provides new and revised information regarding cultural resources and projects planned or scheduled on the installation. Additionally, it establishes priorities for cultural resource management during the five-year period in which the current ICRMP will be in effect. This ICRMP also includes a set of Standard Operating Procedures tailored specifically to the needs of the installation’s

Environmental Coordinators.

The ICRMP provides MOTCO resource managers with a guide to ensure compliance with historic preservation laws and regulations and a means to measure progress towards achieving outlined objectives.

The Army’s decision to recognize cultural resources as an integral part of MOTCO reflects an acknowledgment of the need to develop cost-effective and integrated strategies for long-term program support of mission objectives. This ICRMP is an internal compliance and management plan that integrates the entirety of the installation’s cultural resources program requirements with ongoing mission activities. This ICRMP allows for ready identification of potential conflicts between the MOTCO

2-2 Integrated Cultural Resources Management Plan

Chapter 2 - Introduction mission and cultural resources and identifies compliance actions necessary to maintain the mission-essential properties and acreage.

This ICRMP relies on data from reports, documentation, management plans, and correspondence provided by the 834th TB’s Department of Public Works. A record search for previously documented cultural resources investigations and sites within a one-mile radius of the facility was performed at the

California Historical Resources Information System’s (CHRIS) Northwest Information Center. This information identified known sites that could impact the future planning for the 834th TB operations at

MOTCO. Real property data gathered from MOTCO was supplemented by interviews with personnel including Department of Public Works Engineer Hess Rouhafza and former Executive Officer Lieutenant

Commander Raymond Alexander of the 834th Transportation Battalion at MOTCO.

2.2 NATURAL SETTING

MOTCO’s natural environment has remained virtually unchanged since the 2002-2007 ICRMP, with the exception of the boundary change in the Inland Area that followed its transfer from Navy to Army. The following description of MOTCO’s natural setting is adapted from the previous ICRMP to reflect

MOTCO’s natural setting (Rosenthal, Milliken, and Mikesell 2002:1-5, 1-6).

The installation is located in the Coast Ranges geological province of west-central California consisting of deep alluvial materials underlain by basement rock of the Sierran Block province. It is sited at the northern terminus of the Diablo Range, where the north-south trending Coast Ranges meet Suisun Bay.

In MOTCO’s Tidal Area, the bayshore is distinguished by a relatively broad strip of salt marsh composed of a variety of plant species, including perennial grasses, pickleweed, cattails, bulrush, saltgrass, and baltic rush. A similar marsh environment occurs on the seven Army-owned islands in the bay to the north.

From the marsh edge, the hills that form the base's eastern boundary rise abruptly some 600 feet above sea level. At the base of these slopes, alluvial fan deposits interfinger with and underlie the bay mud along the margins of the salt marsh.

Since the 1800s, the marsh areas have been extensively altered as a product of diking, filling, and dumping. Most of the tidal facilities are built on fill material deposited in the marsh during construction of NWSSBD Concord. More recently, scattered portions of the Tidal Area have also been used for dumping dredge spoils cleared from inland waterways. In the Inland Area, Mt. Diablo Creek, which originates at Mt. Diablo, two miles to the south, bisects a narrow, alluvial plain as it flows through a deeply entrenched channel leading to Suisun Bay at the west side of the Tidal Area. As Mt. Diablo Creek reaches the salt marsh in the Tidal Area, its name changes to Seal Creek. High gradient alluvial fans extend from the hill slopes of the Inland Area, to meet the nearly level floodplain of Mt. Diablo Creek.

Located in a warm, dry climate, MOTCO’s soils vary depending on location and range from lowland associations to tidal flat-delta marsh lowland soils in the Tidal Area and islands and upland associations in the Inland Area. In the Inland Area and the drier upland portions of the Tidal Area, introduced seasonal grasses and forbs dominate the landscape. Riparian vegetation composed primarily of willow borders sections of the creek channel, while open grasslands and salt and freshwater marshes characterize the Tidal Area.

Integrated Cultural Resources Management Plan 2-3

2.3 LAND USES

Facility and land uses at MOTCO center on its function as an ammunition transshipment facility, and are depicted in Figure 2-1. Explosive operations remain focused on the explosive handling piers, staging areas and rail infrastructure, administrative and support functions are concentrated in a small area near the center of the Tidal Area and within the Inland Area. Regular mission functions have not included ground-disturbing activities that have the potential to impact cultural resources at MOTCO. Short- and long-range facility development plans are addressed in the Real Property Master Plan (RPMP) for MOTCO.

The Contra Costa Canal traverses the Inland Area along the northern edge of MOTCO’s Inland Area boundary and traverses the Tidal area south of the Port Chicago Highway at the base of the foothills. The

Contra Costa Canal is owned and managed by the U.S. Bureau of Reclamation.

A Wetland Preserve, established in 1984 under a Memorandum of Understanding (MOU) between the

U.S. Fish and Wildlife Service and NWSSBD Concord, is located within the Tidal Area and the whole of the seven outlying islands at MOTCO (see Figure 2-1). The Wetland Preserve consists of Roe Island, Ryer Island, Freeman Island, Snag Island, Middle Ground Island, the Seal Islands, Hastings Marsh, Pier

March, Middle Point Marsh, East Marsh, and North Area K Marsh. MOTCO is continuing to honor the

Navy agreement until a new agreement can be put into place. The Integrated Natural Resources

Management Plan (INRMP) addresses ongoing and long-term management actions for MOTCO, including the offshore islands.

MOTCO includes the Port Chicago Naval Magazine National Memorial, which was designated by

Congress in 1992 and became part the 392nd Unit of the National Park System in October 2009. The memorial commemorates an explosion and resulting fire that occurred at the site on July 17, 1944, killed

320 men, injured 390 more people, and accounted for 15 percent of all African American casualties during World War II. The incident became the largest homeland disaster during World War II. Two ships docked at Pier 1, the S.S. Quinalt Victory and the S.S. E.A. Bryant, were demolished in the explosion. In combination with the explosives on the two ships, 16 boxcars located at the dock, and

Pier 1 were also destroyed during the explosion. A total of approximately 5,000 tons of explosives were detonated in this one event. The memorial is located at the shoreline in the former location of Pier 1. The memorial site covers 0.5-acre, and consists of paved walking paths, several historical interpretive panels, including those with the names of the victims inscribed, two mounted torpedoes as a historical static display, and a flag pole. Although the Port Chicago Naval Magazine National Memorial is located within

MOTCO, it is operated and maintained by the National Park Service (NPS). Although the memorial is open to the public, two weeks notice and U.S. Army clearance is required of all visitors (NPS 2009b).

MOTCO continues to outlease large portions of the Tidal Area and a small portion of land in the Inland

Area for grazing (see Figure 2-2). The agricultural outleases in the Tidal Area are to the east and south the Port Chicago Highway, and south of the Union Pacific Railroad line.

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Figure 2-1. Land Use at MOTCO

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Figure 2-2. Agricultural Outleases at MOTCO

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2.4 HISTORY AND MISSION OF MOTCO

The following history of MOTCO is excerpted from the 2002-2007 ICRMP prepared for NWSSBD

Concord (Rosenthal, Milliken, and Mikesell 2002). It describes the history of the installation during its era as a Department of Navy installation, from its establishment during World War II to October 2008, when the Army assumed control of what is now MOTCO.

The Navy Era (1941-Present)

At the time of the attack on Pearl Harbor in December 1941, the Navy had limited munitions storage capabilities on the West Coast. The principal Naval Ammunition

Depot was in Hawthorne, Nevada, which was a safe location for storing and manufacturing munitions, but inconvenient for loading ammunition on ships from the various San Francisco Bay Navy stations. There was also an ammunition depot at Mare

Island. The utility of the Mare Island facility, however, was limited by its size and by the fact that many of the larger Navy ships could not dock there, owing to the shallowness of the waters in the Mare Island Strait.

As early as 1940, the Navy began looking for a Bay Area site for a new and larger ammunition depot to serve Naval stations in northern California. Navy planners were aware of the Port Chicago site, owing to the ship manufacturing that had been accomplished there during World War I. Navy planners judged that most of the infrastructure – railroad tracks, wharf facilities, and so forth – at the site would need to be replaced. As one observer noted, however, ―The great value of this site lies in its complete isolation from habitation and industrial activity‖ (Self 1993:11).

In January 1942, the Navy acquired 640 acres of land in what is now the Tidal Area and commenced a rapid construction of docks, barricaded railroad sidings, as well as residential and administrative buildings. In 1944 and 1945, the Navy expanded the facility by acquiring the Inland Area, which includes more than 5,000 acres. It was here that the Navy built the bulk of its munitions magazines as well as a small air facility.

During the same period, the Navy further expanded the Tidal Area in order to construct new housing and recreational and administrative structures.

The ammunition depot at Port Chicago was one of the busiest such facilities in the United

States and was described as ―the principal ammunition loading port and storage point for ammunition and high explosives on the Pacific Coast‖ (JRP 1998). The most notable event of the war era occurred on July 17, 1944, when two massive explosions ripped through the Tidal Area. Two ships, a pier, and most of the Navy’s base in the Tidal Area were destroyed, and 320 people were killed and 390 injured. Most of those killed were

―colored enlisted personnel,‖ who had been assigned the dangerous duty of loading explosives on waiting ships. The surviving personnel were subsequently relocated to

Mare Island Naval Ship Yard and ordered to load ships there. Their refusal to handle more explosives until safety precautions had been taken resulted in an incident that is commonly called the ―Port Chicago Mutiny.‖ The tragedy resulted in a major period of construction at the port, to repair damage and to provide a higher level of safety for the workers (Self 1993:13).

In the years since 1945, NWSSBD Concord has continued to function in much the same manner as it did during World War II. Its command structure, however, has changed

Integrated Cultural Resources Management Plan 2-7

Chapter 2 - Introduction repeatedly. In 1945, the facility was still a sub-installation, or annex, to the Naval

Ammunition Depot at Mare Island. In 1946, it was redesignated the ―Naval Magazine

Port Chicago,‖ and established as a separate facility, independent of Mare Island. In time, the depot at Mare Island would be designated as an annex to the Concord facility.

Naval Magazine Port Chicago experienced three periods of rapidly accelerated activity during the Cold War Era, which is defined as the period between 1946 and 1989. These three periods consist of the Korean War era of the late 1940s through the early 1950s, the

Vietnam War of the 1960s and early 1970s, and during the general military build-up of the late 1970s through the 1980s. The Concord facility was active during the Korean War by handling 75 percent of the all ammunition that was sent to the Korean Peninsula. At that time, the installation continued to utilize the existing World War II-era buildings and structures. After the end of the Korean War, the Navy consolidated Port Chicago and

Naval Ammunition Depot (NAD) Mare Island facilities on December 16, 1957. At that point, Port Chicago became the NAD Concord with the Mare Island Annex. In 1958, NAD Concord also took control of the Naval Net Depot Tiburon facility that had operated during World War II and the Korean War.

In 1963, NAD Concord became the U.S. Naval Weapons Station (NWS) Concord to reflect that facility’s shift from handling conventional ordnance to more sophisticated weaponry. During the Vietnam War years, NWS Concord continued to serve as the principal port for the transshipment of ordnance to the U.S. troops in Southeast Asia. At that time, the Navy began to replace and/or supplement the World War II-era facilities with new buildings and structures, ranging from new housing to new administrative buildings to new magazines. In 1968, the Navy condemned the buildings from the old town of Port Chicago as part of its program to provide a buffer zone around the depot. In

1969, the buildings were vacated and all of the town’s buildings and structures were demolished (JRP 1998:11-15).

A third major phase of new construction occurred during the 1980s at the end of the Cold

War, a time of accelerated military construction throughout the United States. New buildings at the installation from this period range from housing units to administrative buildings to magazines. One important addition to the installation in the 1980s was the establishment of the ―Q Area,‖ a 48-building complex in the Tidal Area for storing and maintaining special weapons (JRP 1998:52). The end of the Cold War in 1989 led a substantial reduction in transshipment and storage and in workforce personnel at NWS

Concord (JRP 2008: 21).

In the 1990s, the Tidal Area became the primary focus of new development, with the upgrade of Pier 3, the addition of eight rail and truck explosives holding yards, and construction of the new Concord Port Terminal Operations Building for use by the Army.

In 1992, the site of the 1944 Port Chicago Naval magazine explosion was dedicated as a

National Memorial (Manley 2003:25). In March 1998, NWS Concord went from operating as an independent installation to the Naval Weapons Station Seal Beach

Detachment (NWSSBD) Concord. The following year, NWSSBD Concord’s port operations in the Tidal Area were transferred to the Army, and magazine field in the

Inland Area went to a reduced operational status.

2-8 Integrated Cultural Resources Management Plan

Establishment of MOTCO

In 1995, Congress accepted a proposal under the Defense Base Closure and Realignment Commission

(―BRAC Commission‖) recommendation to close the Oakland Army Base, 27 miles southwest of

Concord. This closure caused its tenant, the 1302nd Major Port Command, to relocate from the Oakland

Army Base to Concord and become a tenant of the NWSSBD Concord in 1997. On October 1, 1997, the

Army’s 1302nd Major Port Command was relocated from the Oakland Army Base to NWSSBD Concord and became the 834th TB. MOTCO was established on 1 October 1999 as a tenant command at

NWSSBD Concord. Operating under an Indefinite Use agreement, the Army assumed responsibility for operations and maintenance of all facilities and structures in the Tidal Area.

On September 8, 2005, the BRAC Commission recommended a set of domestic realignment and closure actions (BRAC Commission 2005). These recommendations were approved by the President, forwarded to Congress, and became law in accordance with the Defense Base Closure and Realignment Act of 1990, Public Law 101-510 as amended. Accordingly, the DoD closed the majority of the Inland Area of

NWSSBD Concord. The approximately 115-acre retained Inland Area and the approximately 6,526-acre retained Tidal Area were transferred from the Department of the Navy to the Department of the Army in

October 2008. The City of Concord has been designated as the Local Reuse Authority for the approximately 5,028 acres of Navy property that was declared surplus.

SDDC’s 834th TB’s mission is to conduct surface deployment, command and control, and distribution operations for the DoD through terminals and facilities in California in peacetime and war. The 834th TB also is responsible for the daily management of the installation. The 834th TB is subordinate to the 596th

Transportation Group (Ammunition), located at MOTSU in Southport, North Carolina. Whereas the

834th TB at MOTCO oversees West Coast Ammunition Terminal Operations, the 596th Transportation

Group at MOTSU oversees East Coast Ammunition Terminal Operations. The broader Command mission is to provide global SDDC services to meet the nation's objectives. SDDC deploys and sustains more than 90 percent of the DoD’s equipment and supplies by leveraging the capability of commercial industry and other military services.

2.5 CULTURAL RESOURCES PROGRAM: SUMMARY AND GOALS

The mission of the 834th TB is to provide operational oversight at MOTCO, and to coordinate the movement of DoD cargo and ammunition through Concord. MOTCO has appointed an Environmental

Coordinator in accordance with AR 200-1 and the guidelines contained within this ICRMP. Among the primary duties of the Environmental Coordinator will be the complete documentation of all past cultural resources actions including archaeological site identification, inventory and evaluation, historical architectural inventories and evaluations, and all actions relating to the Section 106 review process and compliance with 36 Code of Federal Regulations (CFR) 800.

The MOTCO Cultural Resource Program (CRP) strives to ensure legal compliance with all applicable federal laws while emphasizing installation and command mission support as the primary program goal.

The CRP shall complete the following list of specific administrative tasks as part of the five-year plan:

1. Investigate the availability and applicability of existing local and regional predictive models to lands owned by MOTCO.

2. Initiate consultation with appropriate federally recognized American Indian groups (see Table 4-

4) and develop MOTCO and Tribal-specific Standard Operating Procedures (SOPs) and

Protocols.

Integrated Cultural Resources Management Plan 2-9

3. Update the archival data portion of the Planning Level Survey on an annual basis.

4. Update MOTCO’s Inventory of Historic Properties on an annual basis.

5. Program Facilities Annual Management Plan funds, both to conduct cultural resources investigations for programmed undertakings and to monitor progress and contractor work quality.

2.6 ICRMP AND ICRMP ORGANIZATION

This ICRMP covers all actions related to specific historic properties, including their management, treatment, and compliance procedures. This document provides a summary of the important information from the 2002 ICRMP for the NWSSBD Concord, and includes relevant new or revised information as relates to the property’s transfer in ownership from the Department of the Navy to the Department of the

Army. Specific and pertinent background information from the original ICRMP is referenced where necessary.

The ICRMP will be reevaluated after five years. Some events that may trigger a reevaluation of the

ICRMP prior to the five-year review point are:

1. Significant federal actions (e.g., change in mission, BRAC, etc);

2. Deficiencies resulting from an environmental audit (AR 200-1);

3. A significant increase in the number or percentage of completed surveys;

4. Change in Headquarters, Department of the Army (HQDA) policy;

5. New or revised federal statute, regulation, Executive Order (EO), or Presidential Memoranda;

and/or

6. Addition of new resource types or categories (e.g., historic properties are found on newly acquired land, or consultation with American Indian Tribes yields information about properties of traditional, religious, and cultural significance).

2.7 ICRMP PLAN DEVELOPERS AND REVIEWERS

The MOTCO ICRMP for the years 2011-2016 was developed under contract by the Army Corps of

Engineers Mobile District, TEC Inc., and The Louis Berger Group, Inc., in conjunction with MOTCO and

SDDC personnel.

2.8 ICRMP AUDIENCE

This ICRMP establishes procedures for addressing cultural resources within MOTCO’s planning process and serves three interrelated functions: (1) describes to the Command how Federal historic preservation laws and applicable DoD and Army instructions are being carried out; (2) instructs Facilities and other land-use planners on when and how specific undertakings fall under Section 106 review; and (3) provides guidance to the Cultural Resources Management (CRM)/Environmental Coordinator and other land-use planners on specific courses of action for completing the Section 106 process.

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Chapter 2 - Introduction

2.9 SUMMARY OF CHANGES SINCE THE 2002-2007 ICRMP

Table 2-1 lists the organization and chapter headings from the 2002-2007 NWSSBD Concord ICRMP.

Changes in each chapter are noted in the Status column.

Table 2-1. Summary of Changes Since the 2002-2007 NWSSBD Concord ICRMP

Chapter and Section Heading Status

Chapter 1: Introduction: Background and Management Issues

1.1: NWSSBD Concord and its ICRMP

1.1.1 Detachment Location, Acreage, Setting Revised per transfer from

NWSSBD Concord to Army; See

Chapters 1.0 and 2.0

1.1.2 Purpose of the ICRMP No Significant Change

1.1.3 CRM Plan Developers and Reviewers See Chapter 2.0

1.2 Legal Authority and Context

1.2.1 Department of Navy Authority Revised per transfer from

NWSSBD Concord to Army; See

Chapters 1.0 and 2.0

1.2.2 Federal Law Overview See Chapter 4.0;

EO 13327 Federal Real Property

Asset Management signed on Feb

4, 2004;

AR 200-4 replaced by revised

AR 200-1 effective 1 October

1.2.3 Important Legal Definitions No Significant Change

1.2.4 Consulting Agencies No Significant Change

1.3 NWSSBD Concord Facilities and Activities

1.3.1 Natural Setting Revised per transfer from

NWSSBD Concord to Army; See

Chapters 1.0 and 2.0

1.3.2 Station Mission Revised per transfer from

NWSSBD Concord to Army; See

Chapters 1.0 and 2.0

1.3.3 Land Uses and Facilities Revised per transfer from

NWSSBD Concord to Army; See

Chapter 2.3

1.4 Cultural Resources in and around NWSSBD Concord and Related Management Goals

1.4.1 NWSSBD Concord and Vicinity Cultural

Resources

See Chapter 3.0

1.4.2 Cultural Resource Management Goals See Chapters 2.2 and 3.0

1.5 CRM Plan Audience

1.5.1 Guidance to NWSSBD Concord Managers

and Users

Revised per transfer from

NWSSBD Concord to Army; See

Chapter 2.6

1.5.2 Documentation to Department of the Navy Revised per transfer from

NWSSBD Concord to Army; See

Chapter 6.0

Integrated Cultural Resources Management Plan 2-11

Chapter 2 - Introduction

Table 2-1. Summary of Changes Since the 2002-2007 NWSSBD Concord ICRMP

Chapter and Section Heading Status

1.5.3 Communication with Interacting Agencies

and Organizations

Revised per transfer from

NWSSBD Concord to Army; See

Chapter 6.0

1.5.4 Communication with Concerned

Organizations and Interest Groups

Revised per transfer from

NWSSBD Concord to Army; See

Chapter 6.0

1.6 How this document is organized

1.6.1 Order of Presentation See Chapter 2.6

1.6.2 Aids for Document Use See Chapter 6.0

Chapter 2.0 Known Cultural Resources: Context Survey Status, Evaluation Status

2.1 Prehistoric Archaeological Resources

2.1.1 History of Research No Significant Change

2.1.2 Cultural Chronology No Significant Change

2.1.3 Research Issues No Significant Change

2.1.4 Site Identification Status and the Buried

Site Problem

See Chapter 3.5 Archaeological

Resources

2.1.5 Areas with Archaeological Potential See Chapter 3.5 Archaeological

Resources

2.1.6 Significance Evaluation Status for

Prehistoric Sites

No Significant Change

2.2 Traditional Cultural Properties and Life

Way Values

No Significant Change

2.3 Historic Archaeological Resources

2.3.1 Historic Occupation Sequence No Significant Change

2.3.2 Historic Site Thematic Groups No Significant Change

2.3.3 Status of Historic Archaeological Site

Identification on NWSSBD Concord

Lands

Revised per transfer from

NWSSBD Concord to Army; See

Chapter 3.5 Archaeological

Resources

2.3.4 Status and Recommendations for Historic

Archaeological Site evaluations

See Chapter 3.5 Archaeological

Resources

2.4 Built Environment Historic Properties

2.4.1 1993 Pre-Cold War Study by Self &

Associates

See Chapter 3.0

2.4.2 1998 Built Environment Study by JRP See Chapter 3.0

2.4.3 Summary of National Register Status and

Recommendations for Future Evaluations

See Chapter 3.0

3.0 NWSSBD Concord Cultural Resources Management Program

3.1 Cultural Resources Coordinator No Significant Change

3.1.1 Responsibilities No Significant Change

3.2 ICRMP Data Repository No Significant Change

3.2.1 Data Management Coordination with

Northwest Information Center

No Significant Change

3.2.2 GIS-based Cultural Resources Survey and No Significant Change

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Chapter 2 - Introduction

Table 2-1. Summary of Changes Since the 2002-2007 NWSSBD Concord ICRMP

Chapter and Section Heading Status

Archaeological Site Location Maps

3.2.3 ICRMP Data Repository Contents No Significant Change

3.2.4 Confidential Information Management No Significant Change

3.3 Research Permits and Collections

Management

3.3.1 Antiquities Permits for Archaeological

Survey and Excavations

No Significant Change

3.3.2 Management of Archaeological

Collections

No Significant Change

3.4 Budget Considerations for Historic

Preservation

No Significant Change

3.5 Historic Records Management No Significant Change

3.5.1 Laws and Programs For Historic

Documents and Records Management

No Significant Change

3.5.2 Document Management at NWSSBD

Concord

No Significant Change

4.0 Project-Specific Cultural Resources Assessment

4.1 National Historic Preservation Act

(NHPA), Section 106: Cultural Resources

Under Consideration

Updated; See Chapter 5.0

4.1.1 Consideration of all Legal Undertakings

and Delineation of the Project Area of

Potential Effects (APE)

No Significant Change

4.1.2 Cultural Resources Coordinator

Determines Compliance Path

No Significant Change

4.1.3 Consultation with (State Historic

Preservation Officer) SHPO and Public

Notification

No Significant Change

4.1.4 Determining in an APE Contains Historic

Properties

No Significant Change

4.1.5 APEs with Historic Properties No Significant Change

4.2 Standard Paths to Cultural Resources

Consideration at NWSSBD Concord

No Significant Change

4.2.2 Project Planning No Significant Change

4.2.3 Minor…