ICRMP_YTC_2008_For Informational Purposes Only.pdf

Y a k im a T ra in in g

C e n te r

Y a k im a a n d K it ti ta s C o u n ti e s W a s h in g to n

ICI Services

Dumfries, VA

Gene Stout and

Associates

Loveland, CO

Blythe & Trousil, Inc.

Cheyenne, WY

Integrated Cultural Resources Management Plan

2008 – 2012

Environment and Natural Resources Division

Directorate of Public Works

Yakima Training Center

DRAFT – Do Not Cite

Table of Contents

Integrated Cultural Resources Management i Yakima Training Center Plan, 2008 – 2012 Yakima and Kittitas Counties, Washington

TABLE OF CONTENTS

1.0 Executive Summary

2.0 Integrated Overview

2.1 Military Mission

2.2. Purpose, Goals, and Responsibilities

2.2.1 Purpose of the ICRMP

2.2.2 Cultural Resources Management Goals and Objectives

2.2.2.1 Conservation Goals

2.2.2.2 Cultural Resources Management Objectives

2.2.3 Environmental Management System and Sustainability

2.2.3.1 The Army Strategy for the Environment

2.2.3.2 Environmental Management System

2.2.3.3 Sustainability and the Cultural Landscape Approach

2.2.4 Cultural Resources Compliance Requirements

2.2.4.1 A Legal Mandate for Cultural Resources Management

2.2.4.2 Indian Treaties: Treaty with the Yakima, 1855

2.2.4.3 Department of Defense Instructions

2.2.4.4 Department of the Army Regulations and Guidance

2.2.4.5 Integrated Cultural Resources Management Planning

Integrated Cultural Resources Management Plan, Fort Lewis, Washington (2000) Cultural and Natural Resources Management Plan, Yakima Training Center (2002)

2.2.4.6 NEPA Integration

2.2.4.7 Agreement Documents

Memorandum of Agreement Between U.S. Army I Corps and Fort Lewis and the Confederated

Tribes and Bands of the Yakama Indian Nation Regarding the Yakima Training Center (1992) 11 Programmatic Agreement Among Department of the Army, Washington State Historic

Preservation Officer, and the Advisory Council on Historic Preservation Concerning Stationing of Heavy Forces at Fort Lewis, Washington (1993) Memorandum of Understanding Among U.S. Army, Yakima Training Center, and the Yakima

Nation Regarding Local Implementation of a Program to Mitigate Department of Defense

Impact on Indian Lands (1995) Memorandum of Agreement Among I Corps Fort Lewis, the Washington State Historic

Preservation Officer, and the Advisory Council on Historic Preservation Regarding the Fielding of M56 and M58 Smoke Generators at Fort Lewis and Yakima Training Center, Washington

(1999)

2.3 Responsible and Interested Parties

2.3.1 I Corps and Fort Lewis

Commander, I Corps and Fort Lewis Garrison Commander Staff Judge Advocate Inspector General

2.3.2 Yakima Training Center

Commander, Yakima Training Center Director, Public Works Chief, Environment and Natural Resources Division Cultural Resources Manager Director, Plans, Training Mobilization and Security Public Affairs Office

2.3.3 Other Defense Organizations

Headquarters, Forces Command

Integrated Cultural Resources Management ii Yakima Training Center

Plan, 2008 - 2012 Yakima and Kittitas Counties, Washington

Installation Management Command, West Region U.S. Army Environmental Center

2.3.4 Washington Department of Archaeology and Historic Preservation (State Historic Preservation

Officer and State Archeologist)

2.3.5 Advisory Council on Historic Preservation

2.3.6 Native American Tribal Organizations

Yakama Nation Wanapum Confederated Tribes of the Colville Reservation Confederated Tribes of the Umatilla Indian Reservation Nez Perce Tribe of Idaho

2.3.7 Universities and Other Interested Parties

2.4 Location, Environmental Setting, and Land Use

2.4.1 Location

2.4.1.1 Acreage and Land Acquisition

2.4.1.2 Neighbors

2.4.2 Environmental Setting

2.4.3 Land Use

2.4.3.1 Past Land Use

2.4.3.2 Current Land Use

Land Use Zones Training Areas Impact Areas Facilities Military Training Activities Training Use by Watershed Wildland Fire Native American Traditional Use Outdoor Recreation

2.4.3.3 Future Land Use

Base Realignment and Closure Commission (BRAC) 2005 Stryker Brigade Combat Teams

3.0 Cultural Resources Inventory

3.1 Cultural Resources Types

3.1.1 Historic Properties/Traditional Cultural Properties and the NHPA

3.1.2 Sacred Sites and the AIRFA

3.1.3 Archeological Resources and ARPA

3.1.4 Native American Burials and Items of Cultural Patrimony and NAGPRA

3.1.5 Other

3.2 Inventory

3.2.1 Archeological Sites

3.2.1.1 Cultural Record

3.2.1.2 Surveyed Areas/Literature Review

3.2.1.3 Inventory

3.2.1.4 Areas of Concern

Site Reevaluations Rock Art

3.2.2 Historic Architectural Properties

3.2.2.1 YTC History

3.2.2.2 Literature Review

3.2.2.3 Inventory

3.2.2.4 Area of Concern: Cold War Architectural Properties

3.2.3 Native American Resources

Integrated Cultural Resources Management iii Yakima Training Center

3.2.3.1 Ethnohistory

3.2.3.2 History of Investigations and Native American Consultation

3.2.3.3 Inventory

Wanapum Strasta: Wanapum Cemetery

3.2.3.4 Areas of Concern

Traditional Cultural Properties and Sacred Sites Traditional Use Areas Burials and Items of Cultural Patrimony

3.2.4 Curated Resources

4.0 Cultural Resources Management

4.1 Consultation Partners

4.1.1 Washington State Historic Preservation Office

4.1.2 Advisory Council on Historic Preservation

4.1.3 Culturally Affiliated Indian Tribes

4.1.3.1 The Government-to-Government Relationship

4.1.3.2 Points of Contact

4.2 Identification of Cultural Resources

4.2.1 Archeological Sites

4.2.1.1 Investigation Guidelines

4.2.1.2 Significance Standards

4.2.1.3 Archeological Investigation Priorities, 2008-2012

Project: Archeological Survey, YTC (Phase I/II) – In-house Project: Archeological Site Re-evaluation (Residual Phase II), Yakima Training Center – In-house

4.2.2 Historic Architectural Properties

4.2.2.1 Investigation Guidelines

4.2.2.2 Cold War Era Themes and Significance Standards

Themes Standards Program Comments

4.2.2.3 Historic Architectural Properties Investigation Priorities, 2008-2012

4.2.3 Native American Resources

Project: Ethnohistoric Context Project: Traditional Cultural Properties/Sacred Sites Investigation

4.3 Nomination to the National Register

4.3.1 Army Policy

4.3.2 Washington State Policy

4.4 Preservation/Mitigation of Cultural Resources

4.4.1 YTC Cultural Resources Review

4.4.2 Archeological Sites

4.4.2.1 Types of Undertakings Likely to Affect Archeological Sites on YTC

4.4.2.2 Preservation and Mitigation Options

4.4.2.3 Preservation/Mitigation Plans

Project: Archeological Site and Burial Protection and Monitoring, In-house Project: Archeological Site Mitigation, In-house

4.4.3 Historic Architectural Properties

4.4.3.1 Types of Undertakings Likely to Affect Historic Architectural Properties on YTC

4.4.3.2 Preservation and Mitigation Options

4.4.3.3 Preservation and Mitigation Plans

4.4.4 Native American Resources

4.4.4.1 Types of Undertakings Likely to Affect Native American Resources on YTC

4.4.4.2 Preservation and Mitigation Options

4.4.4.3 Preservation Plans

Integrated Cultural Resources Management iv Yakima Training Center

Annual Meetings Native American Access Policy NAGPRA Compliance Traditional Cultural Properties and Sacred Site Wanapum Strasta: Wanapum Cemetery

4.5 Curation Plan

4.6 Data Management

Project: Cultural Resources Data Management, In-house

4.7 ARPA Permitting

4.8 Awareness, Outreach, and Training

Project: Cultural Resources Awareness, Outreach, and Training

4.8.1 Cultural Resources Conservation Awareness

4.8.2 Universities

4.8.3 Personnel Training

4.9 Disclosure of Information and Intellectual Copyright Policy

4.10 Integrated Cultural Resources Management Planning

Project: Integrated Cultural Resources Management Plan Review and Update

5.0 Standard Operating Procedures

5.1 SOP: Internal Coordination for Cultural Resources Review

5.1.1 When is Cultural Resources Review Required for a Proposed Project or Activity?

5.1.2 Who Participates in the Review?

5.1.3 Procedures

5.2 SOP: The Section 106 Process

5.2.1 When Does Section 106 Apply to YTC Projects?

5.2.2 Who Participates in the Section 106 Process?

5.2.3 Procedures

5.3 SOP: Inadvertent Discovery of Archeological Resources or Burials

5.3.1 Who is Responsible for Inadvertent Discovery

5.3.2 Procedures

5.4 SOP: Native American Graves Protection and Repatriation Act Compliance (Interim)

5.4.1 Who is Responsible for NAGPRA Compliance?

5.4.2 Procedures

Contingency 1: Inadvertent Discovery Contingency 2: Archeological or Other Investigations Likely to Result in the Discovery of

Native American Burials

5.5 SOP: Post-Action Monitoring

5.5.1 Who Participates in Site Monitoring?

5.5.2 Procedures

5.6 SOP: Treatment of Cold War Era Architectural Properties

5.6.1 Who is Responsible for Implementation of this SOP?

5.6.2 Procedures

5.7 SOP: Cultural Resources Law Enforcement

5.7.1 Who is Responsible for Cultural Resources Law Enforcement?

5.7.2 Procedures

5.8 SOP: Economic Analysis of Historic Properties

Integrated Cultural Resources Management v Yakima Training Center

5.8.1 Who is Responsible for the Economic Analysis?

5.8.2 Procedures

5.9 SOP: Emergency Operations

5.9.1 Who is Responsible for Emergency Operations?

5.9.2 Procedures

6.0 Implementation

6.1 Staffing

6.2 ICRMP Implementation Costs (For Official Use Only)

7.0 References and Contacts

7.1 References

7.2 Persons and Agencies Contacted

8.0 Technical Attachments

Appendix A: Cultural Resources Laws and Regulations

Appendix B: Treaty with the Yakima, 1855

Appendix C: Agreement Documents

Appendix D: Environmental Conditions D.1 Climate D.2 Geology and Landform D.3 Soils D.4 Ground and Surface Water D.5 Biota

Appendix E: Cultural Record E.1 Clovis Phase, 12,000 – 10,500 BP E.2 Windust Phase, 11,000-8,000 BP E.3 Vantage Phase, 8,000-4,000 BP E.4 Frenchman Springs Phase, 4,500-2,000 BP E.5 Cayuse Phase, 2,500-250 BP E.6 Protohistoric, 250 BP – A.D. 1846 E.7 Historic Period, A.D. 1846 – present

Appendix F: Real Property Inventory

Appendix G: Yakima Training Center Historic Overview

Appendix H: Advisory Council Program Comments

TABLES

Table 1: Cultural Resources Laws, Regulations, and Guidelines

Table 2: Land Use Zones, Yakima Training Center

Table 3: Ranges, Yakima Training Center

Table 4: History of Archeological Investigations, Yakima Training Center

Table 5: National Register-Eligible Archeological Sites, Yakima Training Center

Table 6: Archeological Site Revaluations, Yakima Training Center

Integrated Cultural Resources Management vi Yakima Training Center

Table 7: Cold War-Era Facilities Reaching 50 Years of Age by 2012, Yakima Training

Center

Table 8: Known or Potential Native American Resources, Yakima Training Site

Table 9: Archeological Survey Schedule (Phase I/II), Yakima Training Center

Table10: Contracted Staffing for In-House Projects

Table 11: ICRMP Implementation Costs, 2008-2012

FIGURES

Figure 1: Location, Yakima Training Center Figure 2: Neighboring Land Use, Yakima Training Center Figure 3: View of Eastern Portion of the Installation from Umtanum Ridge, Yakima Training

Center Figure 4: Land Use (Land use Zones, Training Areas, Impact Areas and Major Ranges), Yakima

Training Center Figure 5: Watershed Complexes, Yakima Training Center Figure 6: Randy Korgel (YTC Cultural Resources Manager) Viewing Rockshelter at National

Register-eligible Archeological Site, Yakima Training Center Figure 7: Site with Surface Features Indicating Traditional Use by Native Americans, Yakima

Training Center Figure 8: Wanapum Strasta: Wanapum Cemetery, Yakima Training Center Figure 9: Surveyed Areas on Yakima Training Center Figure 10: Petroglyph along Lmuma Creek, Yakima Training Center Figure 11: Temporary Cold War-Era Buildings, Yakima Training Center Figure 12: Archeological Survey Areas, 2008-2010, Yakima Training Center

ATTACHMENTS

Attachment 1 – Master Site List (CD)

Integrated Cultural Resources Management vii Yakima Training Center

List of Acronyms and Abbreviations

Advisory Council - Advisory Council on Historic Preservation

AIRFA - American Indian Religious Freedom Act

AR - Army Regulation

ARPA - Archeological Resources Protection Act

CFR - Code of Federal Regulations

CNRMP – Cultural and Natural Resources Management Plan

CRM - Cultural Resources Manager

DoD - Department of Defense

DPTMS – Directorate of Plans, Training, Mobilization, and Security

BRAC – Base Realignment and Closure

CA – comprehensive agreement

CID – Criminal Investigation Division

DZ – drop zone

EMS – Environmental Management System

ENRD – Environment and Natural Resources Division

EO - Executive Order

FORSCOM – Forces Command

GIS - geographic information system

HABS – Historic American Buildings Survey

HAER – Historic American Engineering Record

ICRMP - Integrated Cultural Resources Management Plan

IMA - Installation Management Agency

MOA - memorandum of agreement

MOU – memorandum of understanding

MPRC – Multi-Purpose Range Complex

MPTR – Multi-Purpose Training Range

NAGPRA - Native American Graves Protection and Repatriation Act

National Register - National Register of Historic Places

NBC – nuclear, biological, chemical

NEPA - National Environmental Policy Act

NHPA - National Historic Preservation Act

NPS – National Park Service

PA - programmatic agreement

PL - Public Law

RCW – Revised Code of Washington

SBCT – Stryker Brigade Combat Team

SDZ – MPRC Safety Zone

SHPO - State Historic Preservation Office

SOP - standard operating procedures

TCP - traditional cultural property

USC - United States Code

WAC – Washington Administrative Code

YTC – Yakima Training Center

Integrated Cultural Resources Management viii Yakima Training Center

Chapter 1 – Executive Summary

Integrated Cultural Resources Management 1 Yakima Training Center

Plan, 2007 - 2011 Yakima and Kittitas Counties, Washington

1.0 Executive Summary 1

Purpose 3 This Integrated Cultural Resources Management Plan (ICRMP) guides implementation of the 4 cultural resources management program on the Yakima Training Center (YTC) for the five-year 5 period 2008-2012. YTC, an Army installation located in south-central Washington, is a sub-6 installation of Fort Lewis, Washington. YTC supports tough, realistic, combined arms, joint, and 7 coalition forces training for U.S. and allied military units in order to enhance unit readiness by 8 sustaining training lands, range complexes, and support facilities capable of meeting all present 9 and future training requirements. 10

The ICRMP integrates legal requirements for cultural resources preservation into the everyday 12 operation of the YTC military mission and is an integral component of the YTC Master Plan. 13

Army requirements relating to development and approval of ICRMPs are outlined in Army 14

Regulation (AR) 200-1, Cultural Resources Management. 15

Scope 17

Cultural resources management on YTC encompasses the conservation of resources of 18 significance to American history and prehistory and/or Native American traditions. On YTC 19 cultural resources have been identified from all major prehistoric and historic cultural periods 20 recognized for the Plateau culture area. 21

As of 2006 cultural resources surveys have been completed on approximately 260,000 acres of 23 the 306,343 acres open to military maneuver training. A total of 1,353 archeological sites have 24 been identified, with 140 determined eligible for inclusion in the National Register. YTC is 25 responsible for significant archeological collections, which are curated by the Wanapum Heritage 26

Center. In addition, YTC manages and ensures access to important Native American resources, 27 including traditional use areas fulfilling subsistence and ceremonial purposes, traditional cultural 28 properties, and sacred sites. As of 2007, no architectural properties of historic significance have 29 been identified on the installation. 30

Cultural resources management is an integral component of the larger conservation mission of the 32

Directorate of Public Work’s Environment and Natural Resources Division. The following goals 33 have been established for the joint conservation of natural and cultural resources on YTC. 34

Ensure YTC’s ability to support and preserve military training. 36

Implement a long-term ecosystem/cultural landscape approach. 37

Integrate resource management goals within and among watersheds. 38

Promote land management flexibility by using adaptive management strategies. 39

Develop management strategies that mitigate military training impacts. 40

Implementation Summary 42

As the implementing document for the cultural resources management program, the ICRMP 43 establishes the following objectives to achieve these goals. Objectives correspond to management 44 actions outlined in the ICRMP (dates for implementation or completion are indicated in 45 parentheses). 46

Complete cultural resources survey of 100 percent of areas on YTC open to maneuver 48 training by 2011 (2008-2010). 49

Integrated Cultural Resources Management 2 Yakima Training Center

Conduct control cultural resources survey in 2010 to determine the sufficiency of early 1 archeological investigations on YTC (2010). 2

Complete YTC’s five-year reevaluation project by evaluating 288 archeological sites on 3

YTC for National Register eligibility during 2008-2009 (2008-2009). 4

Inventory and evaluate for National Register eligibility 131 Cold War facilities 5 constructed on YTC between 1946 and 1962 (2008). 6

Initiate consultation with culturally-affiliated Native American Tribes to identify and 7 protect traditional cultural properties and sacred sites on YTC (2008). 8

Implement Army and Washington State policy regarding nomination of historic 9 properties to the National Register (2008-2012). 10

Establish and maintain Siber Stakes to protect archeological sites, rock art, and resources 11 of Native American cultural significance, as appropriate (2008-2012). 12

Conduct periodic and post-action monitoring to assess the condition of protected sites and 13

Siber Stakes (2008-2012). 14

In consultation with the Washington State Historic Preservation Office (SHPO) and 15 culturally-affiliated Tribes, as appropriate, mitigate National Register-eligible 16 archeological sites in areas of YTC frequently used for maneuver training (2008-2012). 17

Conduct annual consultation meetings with culturally-affiliated Tribes (2008-2012). 18

Provide for Native American access for traditional and ceremonial uses in accordance 19 with the Treaty of 1855 and AIRFA (2008-2012). 20

Work with the Wanapum Heritage Center to curate YTC archeological collections in 21 accordance with federal regulations (2008-2012). 22

Develop and maintain cultural resources inventory and GIS databases to support cultural 23 resources management on YTC (2008-2012). 24

Educate military personnel and the public on the need for cultural resources conservation 25 through briefings, cultural resources displays, on-site interpretation, and other awareness 26 efforts (2008-2012). 27

Develop and maintain professional relationships by participating in professional societies 28 and conferences and foster working relationships with universities and other agencies 29 through outreach (2008-2012). 30

Use coordinated planning to fully integrate and implement the YTC cultural resources 31 management program (2008-2012). 32

Conduct annual review of the ICRMP and implement full-scale update of the ICRMP in 33

2012, as required (2008-2012). 34

Evaluate YTC actions in accordance with NHPA and NEPA to minimize impacts to 35 significant cultural resources (2008-2012). 36

Comply with NAGPRA by developing a comprehensive agreement with culturally-37 affiliated Tribes and implement procedures to address inadvertent discovery and other 38 activities that may affect Native American burials (2008-2012). 39

Enforce state and federal laws that prohibit vandalism of cultural resources (2008-2012). 40

Budget estimates for completion of the management objectives are provided in Section 6.2, 42

ICRMP Implementation Costs. 43

Monitoring ICRMP Implementation 45 During 2008-2012, ICRMP implementation will be monitored by the Environmental Performance 46

Assessment System, conducted annually in-house and by YTC staff monitoring cultural resources 47 to document effects to cultural resources and gauge the effectiveness of management initiatives 48 established in the ICRMP. 49

Integrated Cultural Resources Management 3 Yakima Training Center

Plan, 2007 - 2011 Yakima and Kittitas Counties, Washington

Summary 1 This ICRMP outlines steps to meet all relevant legal requirements and provisions of Army policy 2 for conservation of cultural resources on YTC. The document has been prepared in cooperation 3 with YTC’s regional consultation partners, including the Washington State Historic Preservation 4

Office and Native American tribal organizations. 5

Chapter 2 – Integrated Overview

Integrated Cultural Resources Management 4 Yakima Training Center

2.0 Integrated Overview

2.1 Military Mission

YTC is a sub-installation of the U.S. Army’s I Corps and Fort Lewis, Washington. The I Corps and Fort Lewis, part of Installation Maintenance Command (IMCOM), is one of 15 power projection platforms of the U.S. Army. The I Corps and Fort Lewis has a special focus on the

Pacific Rim and works closely with Pacific Command.

The military mission of YTC is to support tough, realistic, combined arms, joint, and coalition forces training for U.S. and allied military units in order to enhance unit readiness by sustaining training lands, range complexes, and support facilities capable of meeting all present and future training requirements.

At present, only one military unit, the U.S. Army Air Ambulance Detachment, is permanently stationed at YTC. Major military units stationed at Fort Lewis that rely on YTC for training are listed below.

rd

Bridge, 2 nd

Infantry Division, Stryker Brigade Combat Team

The 3 rd

―Arrowhead‖ Brigade, 2 nd

Infantry Division was the first brigade in the Army to undergo transformation to the new Stryker Brigade Combat Team. This initiative, at the forefront of Army evolution (see Section 2.4.3.3, Future Land Use), resulted in the creation of the Army’s first medium weight infantry brigade. In May 2000 the 3 rd

Brigade was designated 3-2 Stryker Brigade

Combat Team (SBCT) and was the first to employ new digital equipment and the Stryker Combat

Vehicle. On November 2, 2003 the brigade was deployed to Iraq, where it relieved the 101 st

Airborne. The brigade returned to Fort Lewis in November 2004.

Subordinate units of the 3-2 SBCT include the 1

Squadron, 14 th Cavalry; the 1 st Battalion, 23 rd

Infantry Regiment; and the 1

Battalion, 37 th Field Artillery.

Brigade, 25 th Infantry Division, Stryker Brigade Combat Team

The 1 st Brigade ―Lancers‖, 25 th Infantry Division was the second unit in the Army to undergo transformation to the new Stryker brigade format when it was designated the 1-25 SBCT in late

2000. In October 2004, the 1-25 SBCT was deployed to Iraq where it relieved Fort Lewis’ other

Stryker brigade, the 3-2 SBCT. Its operational area comprised the northern city of Mosul and its surrounding area where the brigade distinguished itself in significant combat actions. By October

2005 all 1-25 SBCT elements had returned to Fort Lewis.

Subordinate units of the brigade are the 1

Battalion ―Bobcats,‖ 5 th Infantry Regiment; the 1

Battalion, 24

Infantry Regiment; the 3 rd Battalion, 21 st Infantry Regiment; and the 2 nd Battalion, Field Artillery.

Other Units

Other Fort Lewis units that rely on YTC for training are the 142 nd

Signal Brigade, the 4

Squadron, 6

Air Cavalry (4-6 Cav), and the 2 nd Battalion, 75 th Ranger Regiment. The 142 nd

Signal Brigade specializes in all forms of communications and provides mobile phone service to fighting troops. The 4-6 Cav is a rotary-winged aviation unit employing Kiowa, Blackhawk, and other helicopters. The 2 nd

Battalion, 75

Ranger Regiment is one of three battalions comprising

Arrowhead On-line, www.lewis.army.mil/3bde

Infantry Division Association, www.25thida.com

Integrated Cultural Resources Management 5 Yakima Training Center

Plan, 2008 – 2012 Yakima and Kitiitas Counties, Washington the premier light infantry unit of the U.S. Army. Ranger battalions employ lighter equipment and rely on few vehicles.

Various reserve units of the U.S. Army, including the National Guard and the Army Reserve, use

YTC for training operations and weapons qualification.

2.2. Purpose, Goals, and Responsibilities

2.2.1 Purpose of the ICRMP

The purpose of this ICRMP is to support the military mission by integrating legal requirements for cultural resources conservation into the everyday operation of YTC.

2.2.2 Cultural Resources Management Goals and Objectives

2.2.2.1 Conservation Goals

YTC has the following goals for joint conservation of cultural and natural resources on lands it manages (ENRD 2002).

Ensure YTC’s ability to support and preserve military training.

Implement a long-term ecosystem/cultural landscape approach.

Integrate resource management goals within and among watersheds.

Promote land management flexibility by using adaptive management strategies.

Develop management strategies that mitigate military training impacts.

2.2.2.2 Cultural Resources Management Objectives

Below are specific objectives used to attain cultural resources management aspects of the conservation goals defined above. Objectives correspond to projects, policies, and/or Standard

Operating Procedures established in the ICRMP.

Complete cultural resources survey of 100 percent of areas on YTC open to maneuver training by 2011.

Conduct control cultural resources survey in 2010 to determine the sufficiency of early archeological investigations on YTC.

Complete YTC’s five-year reevaluation project by evaluating 288 archeological sites on

YTC for National Register eligibility by 2010.

Inventory and evaluate for National Register eligibility 131 Cold War facilities constructed on YTC between 1946 and 1962.

Initiate consultation with culturally-affiliated Native American Tribes to identify and protect traditional cultural properties and sacred sites on YTC.

Implement Army and Washington State policy regarding nomination of historic properties to the National Register.

Establish and maintain Siber Stakes to protect archeological sites, rock art, and resources of Native American cultural significance, as appropriate.

Conduct periodic and post-action monitoring to assess the condition of protected sites and

Siber Stakes.

In consultation with the Washington SHPO and culturally-affiliated Tribes, as appropriate, mitigate National Register-eligible archeological sites in areas of YTC frequently used for maneuver training.

Conduct annual consultation meetings with culturally-affiliated Tribes.

Provide for Native American access for traditional and ceremonial uses in accordance with the Treaty of 1855 and AIRFA.

Integrated Cultural Resources Management 6 Yakima Training Center

Work with the Wanapum Heritage Center to curate YTC archeological collections in accordance with federal regulations.

Develop and maintain cultural resources inventory and GIS databases to support cultural resources management on YTC.

Educate military personnel and the public on the need for cultural resources conservation through briefings, cultural resources displays, on-site interpretation, and other awareness efforts.

Develop and maintain professional certifications by participating in professional societies and conferences and foster working relationships with universities and other agencies through outreach.

Use coordinated planning to fully integrate and implement the YTC cultural resources management program.

Conduct annual review of the ICRMP and implement full-scale update of the ICRMP in

2011, as required.

Evaluate YTC actions in accordance with NHPA and NEPA to minimize impacts to significant cultural resources.

Comply with NAGPRA by developing a comprehensive agreement with culturally-affiliated Tribes and implement procedures to address inadvertent discovery and other activities that may affect Native American burials.

Enforce state and federal laws that prohibit vandalism of cultural resources.

2.2.3 Environmental Management System and Sustainability

2.2.3.1 The Army Strategy for the Environment

Sustainability is the key concept in the Army’s long-term strategy for the environment and the mission. Army sustainability is defined as acting and operating in a way that meets the needs of current missions without compromising the installation’s ability to meet the needs of future missions. The U.S. Army adopted The Army Strategy for the Environment, “Sustain the Mission

– Secure the Future” (Office of the Assistant Secretary of the Army for Installations and

Environment 2004) to:

strengthen the Army contribution to joint operations;

meet current and future training, testing, and other mission requirements;

improve our capability to operate installations, to include growing joint interdependency;

reduce costs and minimize impacts so the Army can do more, and do it better;

enhance human health, safety, and well-being; and be an active citizen within our communities, as well as a good neighbor.

The Army is implementing the Environmental Management System as a key step toward achieving sustainability goals.

2.2.3.2 Environmental Management System

Executive Order 13148, Greening the Environment through Leadership in Environmental

Management requires government agencies to implement an Environmental Management System

(EMS) by 2005. Subsequent Department of Defense (DoD) and Department of the Army guidance requires an EMS be initiated by 2005 and incorporated into other organizational management systems by 2009 to achieve and demonstrate improved environmental performance.

Integrated Cultural Resources Management 7 Yakima Training Center

Department of the Army guidance specifically requires an EMS to be in conformance with

International Organization for Standardization 14001 standards. The EMS must incorporate three basic elements: a commitment to environmental compliance, prevention of pollution, and continuous improvement. YTC is implementing an International Organization for Standardization

14001-conforming EMS.

2.2.3.3 Sustainability and the Cultural Landscape Approach

The cultural resources management program is an integral part of the YTC EMS and its strategy for achieving mission sustainability. Sustainability is particularly integrated into the cultural resources program through the conservation goal to implement a long-term cultural landscape approach. In the simplest sense, cultural landscapes refer to people’s shared ties to the land as reflected in their traditions and material culture. The cultural landscape approach addresses cultural resources in terms of the greater environment and the human interaction with it over the course of generations. Over time, landscapes reflect human agency, i.e. the results of human activity, and natural resources themselves may hold special significance within various cultural traditions. Therefore, in this way cultural resources are not treated in isolation but in the context of the environment, both natural and human, of which they are a part.

The cultural landscape approach is a pillar of this ICRMP. An example of the approach on YTC is the integration of cultural/natural resources conservation and military training through the watershed complexes. These consider effects to the mission and environment in terms of the installation’s 10 main watersheds (see Section 2.4.3.2, Current Land Use). Cultural landscapes may even be recognized as a meta-type of cultural resource subject to management under the

NHPA or AIRFA (e.g. sacred landscapes). This issue is addressed in Section 3.1, Cultural

Resources Types.

2.2.4 Cultural Resources Compliance Requirements

YTC is responsible for managing cultural resources in accordance with relevant federal and state laws and regulations. The body of laws and regulations specifically addressed in this ICRMP is listed in Table 1. Brief descriptions of major laws and regulations are provided in Appendix A.

2.2.4.1 A Legal Mandate for Cultural Resources Management

The foundation of the broad legislation for preservation of cultural resources is the National

Historic Preservation Act of 1966 (NHPA). The NHPA calls upon the federal government to be a leader in preservation, stating that government agencies should ―provide leadership in the preservation of the prehistoric and historic resources of the United States and... administer federally owned [cultural] resources in a spirit of stewardship for the inspiration and benefit of present and future generations” (NHPA, Section 2(2) - 2(3)). The NHPA outlines roles of the

National Register of Historic Places (National Register), the State Historic Preservation Officer

(SHPO), and the Advisory Council on Historic Preservation (Advisory Council) in overseeing management of cultural resources.

Integrated Cultural Resources Management 8 Yakima Training Center

Table 1: Cultural Resources Laws, Regulations, and Guidelines

34 Stat. L., 225 Antiquities Act of 1906

Public Law 74-292 Historic Sites Act of 1935 16 USC 47 et seq National Historic Preservation Act of 1966, as amended

42 USC 4321-4347 National Environmental Policy Act (NEPA) of 1969

16 USC 469 Archeological and Historical Preservation Act of 1974

16 USC 470aa-mm Archeological Resources Protection Act of 1979

25 USC 3001 et seq Native American Graves Protection and Repatriation Act of 1990

42 USC 1996 American Indian Religious Freedom Act of 1978, as amended

WAC 25-48 Archaeological Excavation and Removal Permit

Revised Code of Washington

(RCW) 27.44 Indian Graves and Records

RCW 68.60 Abandoned and Historic Cemeteries and Historic Graves

Executive Order 11593 Protection and Enhancement of Cultural Environment, May 13, 1971

Executive Order 13007 Indian Sacred Sites, May 24, 1996

Executive Order 13175 Consultation and Coordination with Indian Tribal Governments, November 6, 2000

Executive Memorandum Government-to-Government Relations with Native American

Tribal Governments, April 29, 1994

48 FR 44716 The Secretary of Interior’s Standards and Guidelines for Archeology and Preservation

32 CFR 229 Protection of Archeological Resources: Uniform Regulations

36 CFR 60 National Register of Historic Places

36 CFR 63 Determination of Eligibility for Inclusion in the National Register of Historic Places

36 CFR 67 The Secretary of the Interior’s Standards for Rehabilitation

36 CFR 68 The Secretary of the Interior’s Standards for the Treatment of Historic

Properties

36 CFR 79 Curation of Federally-owned and Administered Archeological

Collection 36 CFR 800 Protection of Historic Properties (2001 revision)

36 CFR 1228 Disposition of Federal Records

43 CFR 3 Preservation of American Antiquities

43 CFR 10 Native American Graves Protection and Repatriation Act Regulations

43 CFR 78 Waiver of Federal Agency Responsibility under Section 110 of the National Historic Preservation Act

Army Regulation 200-1 Cultural Resources Management, 12 November 1997

DoD Instruction 200-1 Cultural Resources Management, 3 December 1997

DoD Instruction 4715.3 Environmental Conservation Program, 3 May 1996

DoD Annotated American Indian and Alaska Native Policy, 27 October 1999

* Does not include all legislation, only that most applicable to YTC.

The NHPA has been the driving force behind the establishment of cultural resources management programs on military installations. Of particular importance to military installations are Sections

106 and 110 of the NHPA. Section 106 requires federal agencies to consider effects of undertakings on resources listed in, or eligible for inclusion in, the National Register through a process of consultation, hereafter referred to as the Section 106 process. Per 36 CFR 800.16(y), an “undertaking” is defined as any project, activity, or program funded in whole or in part under the jurisdiction of a federal agency, including those carried out on behalf of a federal agency, carried out with federal assistance, requiring federal approval, or subject to state or

Integrated Cultural Resources Management 9 Yakima Training Center local regulation administered pursuant to a delegation or approval by a federal agency. The process for compliance with Section 106 consists of the following steps (this process is addressed in greater detail in Section 5.2, SOP: The Section 106 Process).

1. Identification of cultural resources: Identification of cultural resources located within the area of potential effect of a proposed undertaking is accomplished through review of existing documentation and field surveys.

2. Cultural resources evaluation: Evaluation of the identified cultural resources using

National Register criteria (36 CFR 63). Properties that meet the criteria are considered eligible for listing in the National Register and are subject to further review under Section

106. Properties that do not meet the criteria are considered not eligible for inclusion in the

National Register and are not subject to further Section 106 review.

3. Determination of effect: Assess the effects of the proposed undertaking on properties that were determined to meet the National Register criteria. One of the following effect findings will be made: No Historic Properties Affected, No Adverse Effect, or Adverse

Effect.

4. Resolution of Adverse Effects/Mitigation: When adverse effects are found, consultation will continue among the federal agency and the consulting parties to attempt to resolve them. Successful consultation will result in an agreement document stipulating efforts to be taken to avoid or mitigate adverse effects.

On January 11, 2001 the Advisory Council approved a new implementing regulation for Section

106 of the NHPA; the new 36 CFR 800 supersedes the previous version (revised in 1999). The regulation calls for greater federal agency responsibility and autonomy, strengthens the role of

Native American tribes, and streamlines the role of the Advisory Council in the Section 106 process.

Section 110 of the NHPA, part of a 1980 revision, requires federal agencies to institute programs to identify, evaluate, and nominate National Register-eligible cultural resources under their care.

Numerous federal regulations, executive orders, and instructions elaborate upon and clarify these provisions of the NHPA and the compliance process.

In addition to the NHPA, the Native American Graves Protection and Repatriation Act of 1990

(NAGPRA) and the American Indian Religious Freedom Act of 1978 (AIRFA) have given impetus to the further development of cultural resources management programs and the fostering of government-to-government relationships with Native American tribal governments.

2.2.4.2 Indian Treaties: Treaty with the Yakima, 1855

YTC occurs entirely on lands ceded to the United States by the Yakama

Nation in 1855. The

Treaty with the Yakima, 1855 (12 Stat. 951) recognized certain residual rights of the confederated tribes and bands of the Yakima on these lands. These rights pertain to ―usual and accustomed‖ uses of the land, which on YTC include important subsistence and ceremonial practices. The text of the main body of the treaty is provided as Appendix B.

YTC lands are not addressed in other Indian treaties, although other regional tribes are culturally affiliated with the installation (see Section 2.3.6, Native America Tribal Organizations).

There are two accepted spellings in referring to the Yakama people, Yakama and Yakima. Due to its preference by the Yakama Nation, the former is used in this ICRMP except where direct references are made to treaties or documents using the latter spelling.

Integrated Cultural Resources Management 10 Yakima Training Center

2.2.4.3 Department of Defense Instructions

DoD Instruction 4715.16, Environmental Conservation Program, 1 September 2008 outlines responsibilities with regard to compliance with cultural resources legislation for DoD installations. Specific responsibilities of the cultural resources management program are to:

establish a comprehensive program for the identification, protection, curation, and interpretation of cultural resources;

conserve cultural resources in a cost-effective manner that supports the military mission;

prepare, maintain, and implement an ICRMP;

use National Register-eligible properties for mission purposes to the fullest extent possible;

set up procedures for conduct of an economic analysis on National Register-eligible properties being considered for demolition or replacement;

repatriate Native American human remains and objects of cultural patrimony to culturally affiliated or lineally descended Native American tribes; and consult with federally-recognized tribal governments in accordance with federal legislation.

2.2.4.4 Department of the Army Regulations and Guidance

Chapter 6 of AR 200-1, outlines responsibilities with regard to cultural resources legislation for

Army installations, major commands, and supporting organizations. Specific responsibilities of the YTC cultural resources management program are to:

develop, approve, and maintain an Integrated Cultural Resources Management Plan

(ICRMP);

inventory and evaluate cultural resources located on YTC;

protect and maintain eligible resources and promote their preservation, rehabilitation, and adaptive reuse;

integrate preservation requirements with planning and management activities of the military mission; and cooperate with federal, state, and local agencies, Native American tribal organizations, and the public in cultural resources management.

Further guidance for implementation of AR 200-1 is provided in DoD Instruction 200-1.

2.2.4.5 Integrated Cultural Resources Management Planning

Development and implementation of an Integrated Cultural Resources Management Plan

(ICRMP) is required by Army Regulation (AR) 200-1, Cultural Resources Management, for

Army installations with cultural resources under their stewardship. Specific guidance for preparation of an ICRMP is provided by Army Pamphlet 200-1, Cultural Resources

Management.

Integrated Cultural Resources Management Plan, Fort Lewis, Washington (2000) The first ICRMP for YTC lands was completed in 2000 by the Army’s Construction Engineering

Research Laboratory in Champaign, Illinois (CERL 2000). At that time, cultural resources management on YTC was the responsibility of the cultural resources program of Fort Lewis, and

YTC was addressed in Fort Lewis’s ICRMP. The Fort Lewis ICRMP, a test model for ICRMP development, included a planning level survey and management action descriptions for management initiatives on Fort Lewis and YTC.

Integrated Cultural Resources Management 11 Yakima Training Center

Cultural and Natural Resources Management Plan, Yakima Training Center (2002) The first cultural resources management plan developed specifically for YTC was the combined

Cultural and Natural Resources Management Plan, Yakima Training Center (CNRMP) (ENRD

2002) completed by YTC’s Environment and Natural Resources Division in 2002. The CNRMP integrated natural and cultural resources management activities, and shifted responsibility for direct management of YTC’s cultural resources to on-site staff. The CNRMP laid the foundation for the establishment and development of a YTC cultural resources management program under the Environment and Natural Resources Division of Public Works.

This ICRMP builds upon the CNRMP and maintains the integration and consistency with

CNRMP goals and objectives and with other conservation activities on YTC.

2.2.4.6 NEPA Integration

This ICRMP is an action-forcing document that triggers NEPA compliance requirements. 32 CFR

651.33(h) and AR 200-1 (Department of the Army 1995a) state that ICRMPs will normally use environmental assessment procedures.

AR 200-2 (Department of the Army 2002) requires the integration of the NEPA process early in project planning to ensure that planning and decision-making reflect environmental values, prevent delays, and minimize potential conflicts. The Council on Environmental Quality

Implementing Guidelines for NEPA (40 CFR Parts 1500-1508) require environmental analyses and documentation under NEPA be integrated as much as practicable with other environmental reviews, laws, and executive orders. AR 200-2 specifically identifies the integration or concurrent development of cultural resources management plans with appropriate NEPA analysis and documentation.

An environmental assessment (EA) is being prepared to address the environmental effects of implementation of this ICRMP.

2.2.4.7 Agreement Documents

Agreement documents are important cultural resources management decision documents reflecting cooperation with YTC’s consultation partners. To date, four agreement documents have been approved for YTC. All remain in effect and are provided in Appendix C.

Memorandum of Agreement Between U.S. Army I Corps and Fort Lewis and the Confederated Tribes and Bands of the Yakama Indian Nation Regarding the Yakima Training Center (1992) This memorandum of agreement (MOA) stipulates measures YTC will take to ensure the treaty rights of the Yakama Nation reserved per 12 Stat. 1951 (see Section 2.2.4.2, Indian Treaties). The agreement also recognizes the Wanapum as subject to these treaty rights as a traditional band of the Yakama Nation. The MOA stipulates annual consultation meetings to be held among the signatories. Subsequent to this agreement, a standard operating procedure for Yakama and

Wanapum access to YTC was prepared by the Environment and Natural Resources Division.

Integrated Cultural Resources Management 12 Yakima Training Center

Programmatic Agreement Among Department of the Army, Washington State Historic Preservation Officer, and the Advisory Council on Historic Preservation Concerning Stationing of Heavy Forces at Fort Lewis, Washington (1993) This programmatic agreement (PA), which includes the Nisqually Tribe, the Wanapum, and the

Yakama Nation as concurring parties, concerns the development of a cultural resources management program and cultural resources management plan to mitigate military training activities on Fort Lewis and YTC. This ICRMP fulfills the requirement of this agreement for

YTC over the next five years.

Memorandum of Understanding Among U.S. Army, Yakima Training Center, and the Yakima Nation Regarding Local Implementation of a Program to Mitigate Department of Defense Impact on Indian Lands (1995) This memorandum of understanding (MOU) details provisions to assess YTC mission impacts on the Yakama Nation following the implementation of a program by the Department of Health and

Human Services to allow Native Americans to mitigate Department of Defense impacts on Indian lands. The MOU assures Yakama Nation participation in the natural and cultural resources management programs on YTC. Other provisions of the agreement have been carried out by the

Yakama Nation.

Memorandum of Agreement Among I Corps Fort Lewis, the Washington State Historic Preservation Officer, and the Advisory Council on Historic Preservation Regarding the Fielding of M56 and M58 Smoke Generators at Fort Lewis and Yakima Training Center, Washington (1999) This MOA, which includes the Nisqually Tribe, the Wanapum, and the Yakama Nation as concurring parties, concerns the use of fog oil and synthetic graphite smoke generators at Fort

Lewis and YTC. Since the generators release carbon by-products that may interfere with radiocarbon dating used to analyze archeological sites, the agreements stipulates measures to mitigate the potentially adverse effects. The provisions of this agreement have been completed for

YTC.

2.3 Responsible and Interested Parties

The following discussion emphasizes cultural resources management responsibilities and does not include every YTC organization or function that may contribute to the cultural resources management program.

2.3.1 I Corps and Fort Lewis

Commander, I Corps and Fort Lewis The Commander, I Corps and Fort Lewis provides command and control over all aspects of Fort

Lewis and its subinstallations and implements policies and directives of the Department of the

Army and FORSCOM on Fort Lewis and YTC. The Commander ensures that installation training requirements are met while providing conservation of land resources, including cultural resources.

Garrison Commander The Garrison Commander serves as the principal assistant to the Commander for the management of Fort Lewis and its subinstallations. The Garrison Commander directs and is responsible for all aspects of garrison operations at Fort Lewis and delegates responsibility for garrison operations at

YTC to the Commander, YTC.

Integrated Cultural Resources Management 13 Yakima Training Center

Staff Judge Advocate The Staff Judge Advocate provides legal advice, counsel, and services to command, staff, and subordinate elements of I Corps and Fort Lewis. Specific Staff Judge Advocate responsibilities with regard to integrated cultural resources management include conducting legal research and preparing legal opinions pertaining to interpretation and application of cultural resources laws, regulations, statutes, and other directives and coordinating with the Department of Justice, Litigation Division of the Office of the Judge Advocate General, and other governmental agencies on matters pertaining to litigation for the federal government.

Inspector General The installation Inspector General determines whether provisions of DoD Instruction 4715.3 are being adequately accomplished by I Corps and Fort Lewis and its subinstallations.

2.3.2 Yakima Training Center

Commander, Yakima Training Center The Commander, YTC bears ultimate responsibility for management of cultural resources on

YTC and reports to the Fort Lewis Garrison Commander and the Commander, I Corps and Fort

Lewis. The Commander, YTC provides immediate command and control over all activities at

YTC. Per AR 200-1, the Commander, YTC is responsible for establishing and overseeing a cultural resources management program, designating a Cultural Resources Manager, and implementing this ICRMP. As such, the Commander is the principal agent ensuring implementation of this ICRMP.

Director, Public Works The Director, Public Works provides oversight of the Environment and Natural Resources

Division and is responsible for the everyday operation and maintenance of all facets of YTC Real

Property. Through the Environment and Natural Resources Division, Public Works administers all phases of YTC’s conservation programs for cultural and natural resources.

Chief, Environment and Natural Resources Division The Chief, Environment and…