Assessing Cultural Resources in the Wake of a Disaster George Wright Society Annual Conference Cultural Resource GIS Facility National Park Service 15.

Assessing Cultural Resources in Assessing Cultural Resources in the Wake of a Disasterthe Wake of a Disaster

George Wright Society Annual ConferenceGeorge Wright Society Annual Conference

Cultural Resource GIS FacilityCultural Resource GIS Facility

National Park ServiceNational Park Service

15 March 201115 March 2011

The Cultural Resource GIS FacilityThe Cultural Resource GIS FacilityNational Park ServiceNational Park Service

Heritage Documentation ProgramsHeritage Documentation Programs► Geographic Information Systems (GIS)Geographic Information Systems (GIS)► Global Positioning Systems (GPS) SurveyGlobal Positioning Systems (GPS) Survey► GIS AnalysisGIS Analysis► Cartography and OutputCartography and Output► GIS ProgrammingGIS Programming► GIS and GPS TrainingGIS and GPS Training

Our primary mission is to assist State/Tribal Historic Preservation Offices and National Park Units in automating data, collecting data, and exploring the use of technology with cultural resource management.

Regulatory Need for Regulatory Need for Cultural Resource Spatial Cultural Resource Spatial

DataData► The Federal government relies on

cultural resource geospatial information to comply with preservation laws, regulations and guidelines

• National Historic Preservation Act• National Environmental Policy Act• Archaeological Resources Protection Act• Abandoned Shipwreck Act• Native American Graves Repatriation Act• Historic Sites Act of 1935

► Section 106, National Historic Preservation Act: Federal agencies are required to identify historic resources and evaluate their significance within areas of Federal undertakings; determine any adverse effects and develop treatment measures to mitigate against those effects

Federal, State and Local Need for Cultural Federal, State and Local Need for Cultural Resource Spatial DataResource Spatial Data

► State and Tribal Historic Preservation Offices, Certified Local Governments and Federal agencies maintain comprehensive inventories of cultural resources totaling over 5 million properties, all with geospatial data

► These inventories provide Federal agencies with critical data for compliance purposes

► Resources on these inventories form the pool from which properties are nominated to the National Register of Historic Places

► The National Register, maintained by the NPS, contains over 85,000 entries including 15,000 districts containing over 1 million contributing resources

► All of this information is used by Federal, State and local agencies in comprehensive planning efforts, responses to disasters, compliance with various laws, among many other standard procedures

The Cultural Resource Spatial Data ProblemThe Cultural Resource Spatial Data Problem► Typically spatial data collected for

these inventories resides on paper maps and information describing the resources resides on paper survey forms

► After 40 years of conducting survey, the volume of cultural resource spatial data makes paper records difficult to use effectively

► Conversion of all cultural resource data, particularly the spatial data, to digital formats must be done to adequately protect our resources and plan for their future management

► Inside the NPS, internal cultural resource databases such as ASMIS, LCS or CLI also store spatial data in a paper form, or as coordinate pairs

► Few parks, regional offices or national NPS cultural resource programs store GIS data with their database information

Scope of the Katrina ProjectScope of the Katrina Project► The Katrina/Rita disaster was the single largest disaster for cultural

resources that the US has witnessed since the creation of the National Historic Preservation Act in 1966

► For FEMA, the Katrina/Rita event is the largest Section 106 project ever

Section 106 Response RequirementsSection 106 Response Requirements► In order to be compliant with Section 106, FEMA had to survey and

evaluate all of the potential demolitions (funded by FEMA) for their historic significance, consult with the State Historic Preservation Office to develop concurrence, and determine what would mitigate any adverse affects to historic resources

► To do this, FEMA needed accurate locational information for potential undertakings to understand the extent of the problem

► FEMA needed an accurate evaluation of the historic significance and nature of the resources, including current photographs

► In order to place any potentially eligible resources into context, FEMA must also understand the historic significance of the area to recognize the interaction of various cultural resources and their relative significance

Scope of the problem in New Orleans:

5000 red-tagged structures (eminent threat)

86,000 yellow-tagged structures (major damage)

40,000 green-tagged structures (habitable)

Survey and EvaluationSurvey and Evaluation► FEMA requested the National Park Service, Cultural Resource GIS Facility,

develop a strategy for identifying and evaluating all of the affected properties for their National Register eligibility in Orleans Parish, and the surrounding Parishes

► The NPS developed a GPS survey strategy for the properties slated for demolition by the City of New Orleans, using hand-held receivers with a detailed data dictionary to document the historic characteristics, condition, integrity and eligibility of each structure. ► This accurate

survey produced a form of documentation, as required by Section 106

► FEMA generated GPS documentation, and a GIS view of the area, showing how these resources relate to each other and their environment

Cultural Resource Preparedness in LouisianaCultural Resource Preparedness in LouisianaGIS data available in New Orleans: Pre-KatrinaApproximately 19,000 point locations for resources in the state

GIS data collected as part of Katrina Section 106 survey

GIS data collected as part of Katrina treatment measures

Approximately 50,000 point locations for resources in Orleans Parish resulted

Facilitating Survey EffortsFacilitating Survey Efforts► To help expedite and simplify the survey process, a data dictionary was To help expedite and simplify the survey process, a data dictionary was

created for use in the hand held GPS receivers carried by surveyorscreated for use in the hand held GPS receivers carried by surveyors► Based on the State Historic Preservation Office standard paper architectural Based on the State Historic Preservation Office standard paper architectural

and archaeological survey forms, the same attributes and attribute values and archaeological survey forms, the same attributes and attribute values were used to insure compatibility with their existing databaseswere used to insure compatibility with their existing databases

► Extensive discussions with FEMA personnel and local historic preservation Extensive discussions with FEMA personnel and local historic preservation organizations added more attributes to fully document each resourceorganizations added more attributes to fully document each resource

Using a data dictionary provides structure to the survey, focusing surveyors efforts on target resources and specific attributes of those resourcesHaving a structured and digital survey method helps to eliminate data entry errors and provides a digital survey product from the start

Workflow of the Survey and Evaluation Workflow of the Survey and Evaluation ProcessProcess

► FEMA received lists of target features (demolitions) and sent surveyors to FEMA received lists of target features (demolitions) and sent surveyors to the field to collect GPS data, and descriptive informationthe field to collect GPS data, and descriptive information

► GPS data, attribute information and digital photos were downloaded from GPS data, attribute information and digital photos were downloaded from receivers and loaded into the GeoDatabase for use in analysis, planning receivers and loaded into the GeoDatabase for use in analysis, planning future survey efforts, and reporting back to city/county/Federal agencies future survey efforts, and reporting back to city/county/Federal agencies generating initial listsgenerating initial lists

► FEMA and State Historic Preservation Office FEMA and State Historic Preservation Office staff reviewed attributes, photos and other staff reviewed attributes, photos and other documentation through the GIS to determine documentation through the GIS to determine if resources were eligible for the National if resources were eligible for the National Register Register

► Concurrence on eligibility was formed Concurrence on eligibility was formed between FEMA and the State Historic between FEMA and the State Historic PreservationPreservation Office quickly and digitallyOffice quickly and digitally

For treatment measures, FEMA selected target areas to survey in detail, capturing all contributing and non-contributing resources to historic districts, as well as identifying new historic districts

Surveyors collected GPS data and the same attribute information for these resources, which were also incorporated into the GeoDatabase for use in analysis and future disaster mitigation

GPS in the Disaster Mitigation PhaseGPS in the Disaster Mitigation Phase

►Historic Districts in New Orleans Historic Districts in New Orleans represent some of the earliest represent some of the earliest resources determined eligible for resources determined eligible for the National Registerthe National Register

►These historic districts contain These historic districts contain historic and non-historic elements historic and non-historic elements which change over timewhich change over time

►Before Katrina no agency recorded Before Katrina no agency recorded the locations of these important the locations of these important elements which would be more elements which would be more vulnerable in a disastervulnerable in a disaster

►FEMA used the same GPS strategy FEMA used the same GPS strategy to document all of the historic and to document all of the historic and non-historic elements in historic non-historic elements in historic districts as a form of mitigationdistricts as a form of mitigation

Opportunity to Field Test Draft StandardsOpportunity to Field Test Draft Standards► The GeoDatabase created for the Katrina disaster followed a data model The GeoDatabase created for the Katrina disaster followed a data model

that implemented draft cultural resource spatial data standards, allowing that implemented draft cultural resource spatial data standards, allowing the NPS to field test the modelthe NPS to field test the model

► Each cultural resource is assigned a globally unique IDEach cultural resource is assigned a globally unique ID► Each unique representation of the location of that resource is assigned a Each unique representation of the location of that resource is assigned a

globally unique IDglobally unique ID► A link table associates the cultural resource ID with each of its locational A link table associates the cultural resource ID with each of its locational

IDs, and allows links from each resource to external databases, such as IDs, and allows links from each resource to external databases, such as those created by other Federal, state or local partnersthose created by other Federal, state or local partners

► These standards were formally adopted as cultural resource spatial data These standards were formally adopted as cultural resource spatial data transfer standards for the NPS in February 2010transfer standards for the NPS in February 2010

Data as a Form of MitigationData as a Form of Mitigation

►Part of the NPS strategy included Part of the NPS strategy included creating a GeoDatabase for the creating a GeoDatabase for the resourcesresources

►GPS data from the survey of red-GPS data from the survey of red-tagged buildings and from tagged buildings and from subsequent demolition requests subsequent demolition requests (still ongoing in 2011) is (still ongoing in 2011) is incorporatedincorporated

►GPS data from the 25,000 GPS data from the 25,000 properties that have been properties that have been determined potentially eligible for determined potentially eligible for the National Register in New Orleans the National Register in New Orleans were incorporated as a form of were incorporated as a form of mitigation mitigation

►The GIS and GPS data becomes a The GIS and GPS data becomes a form of mitigation itself, and is form of mitigation itself, and is shared with the State Historic shared with the State Historic Preservation Office, other Federal Preservation Office, other Federal Agencies and the City as a way to Agencies and the City as a way to compensate for necessary compensate for necessary demolitions of historic propertiesdemolitions of historic properties

GIS in Long Term ManagementGIS in Long Term Management►An important element of the GIS/GPS strategy for the Katrina response An important element of the GIS/GPS strategy for the Katrina response was the establishment of cultural resource spatial data transfer standardswas the establishment of cultural resource spatial data transfer standards

►The implementation of such standards through the disaster response The implementation of such standards through the disaster response clearly showed the benefits of such standards, allowing Federal, State and clearly showed the benefits of such standards, allowing Federal, State and local agencies to exchange data quickly and better document the spatial local agencies to exchange data quickly and better document the spatial data itselfdata itself

►The GPS data collected and the resulting GIS database created will serve The GPS data collected and the resulting GIS database created will serve as the basis for managing these cultural resources in the future, and to as the basis for managing these cultural resources in the future, and to provide a means of protecting them from future disastersprovide a means of protecting them from future disasters

►This responsibility will reside with This responsibility will reside with the State Historic Preservation the State Historic Preservation Office Office

Assessing the StrategyAssessing the Strategy► The GPS documentation of cultural resources, GIS data produced, and the The GPS documentation of cultural resources, GIS data produced, and the

method of reviewing each site for Section 106 purposes is digital for the method of reviewing each site for Section 106 purposes is digital for the first time, and now serves as a mitigation or treatment measure for the first time, and now serves as a mitigation or treatment measure for the first timefirst time

► For regulatory purposes the use of GIS to in the Katrina response reduced For regulatory purposes the use of GIS to in the Katrina response reduced the amount of time required to assess any one cultural resource from the the amount of time required to assess any one cultural resource from the typical 90 days to 14 days, significantly speeding the recovery processtypical 90 days to 14 days, significantly speeding the recovery process

E X P E R I E N C E Y O U R A M E R I C A

Recognizing the Critical Need for Digital Cultural Recognizing the Critical Need for Digital Cultural Resource DataResource Data

► In 2007 the Advisory Council on Historic Preservation recognized the GPS/GIS In 2007 the Advisory Council on Historic Preservation recognized the GPS/GIS approach FEMA implemented in response to Katrina as being very successful approach FEMA implemented in response to Katrina as being very successful and important to the recovery efforts in the Gulf Coastand important to the recovery efforts in the Gulf Coast

► The Chairman’s Award for Federal Achievement in Historic Preservation was The Chairman’s Award for Federal Achievement in Historic Preservation was presented to FEMA at the 2007 annual meeting of the Advisory Councilpresented to FEMA at the 2007 annual meeting of the Advisory Council

► The 2008 Preserve America initiative, partnering with the Advisory Council The 2008 Preserve America initiative, partnering with the Advisory Council presented recommendations to the White House on historic preservation listing presented recommendations to the White House on historic preservation listing the creation of a comprehensive digital inventory of historic properties as a top the creation of a comprehensive digital inventory of historic properties as a top prioritypriority

► FEMA proposed to the White House that creating a comprehensive digital FEMA proposed to the White House that creating a comprehensive digital inventory of historic properties would be critical to enhancing disaster inventory of historic properties would be critical to enhancing disaster preparedness planning process for cultural and natural resourcespreparedness planning process for cultural and natural resources

► Together with the implementation of cultural resource spatial data standards, Together with the implementation of cultural resource spatial data standards, this would significantly enhance the ability to respond to a disasters more this would significantly enhance the ability to respond to a disasters more efficientlyefficiently

Adapting the Methodology Beyond KatrinaAdapting the Methodology Beyond Katrina► With the 2010 Mississippi Canyon oil spill, CRGIS adapted the GPS/GIS With the 2010 Mississippi Canyon oil spill, CRGIS adapted the GPS/GIS

cultural resource survey methodology to focus on archaeological cultural resource survey methodology to focus on archaeological resources and the different assessment needs for the US Coast Guardresources and the different assessment needs for the US Coast Guard

► The strategy was based on the same fundamentals of using GPS to collect The strategy was based on the same fundamentals of using GPS to collect locations of known sites and sites discovered during the clean up processlocations of known sites and sites discovered during the clean up process

► CRGIS incorporated National Register of Historic Places data, List of CRGIS incorporated National Register of Historic Places data, List of Classified Structures (LCS) and Archaeological Sites Management Classified Structures (LCS) and Archaeological Sites Management Information System (ASMIS) data into a GeoDatabase based on the Information System (ASMIS) data into a GeoDatabase based on the cultural resource standards, to be shared with all of the agencies cultural resource standards, to be shared with all of the agencies responding to the spillresponding to the spill

► State/Tribal Historic Preservation Offices provided their inventories of State/Tribal Historic Preservation Offices provided their inventories of cultural resources in the area of potential effectcultural resources in the area of potential effect

► Different states developed their Different states developed their own GPS data collection procedures, own GPS data collection procedures, along with BP contractors who collected along with BP contractors who collected current oil/clean up status via GPS, current oil/clean up status via GPS, to produce a primarily paper and to produce a primarily paper and a-spatial database based cultural a-spatial database based cultural resource response procedure resource response procedure

GIS/GPS Disaster Response Methodology ToolsGIS/GPS Disaster Response Methodology Tools► The NPS has documented the entire GIS/GPS historic preservation The NPS has documented the entire GIS/GPS historic preservation

disaster response methodologydisaster response methodology► This methodology contains all of the tools, data dictionaries, workflow This methodology contains all of the tools, data dictionaries, workflow

diagrams and background information to implement a similar strategy diagrams and background information to implement a similar strategy for any disasterfor any disaster

Text of the methodology document is available at:http://www.nps.gov/hdp/standards/CRGIS/katrina.htm

Additionally, workflow diagrams, data dictionaries and GIS tools suitable for other types of disasters are available at:

http://www.nps.gov/history/hdp/standards/CRGIS/disaster.htm

Author InformationAuthor Information

http://www.nps.gov/history/hdp/

Deidre McCarthy, GISPDeidre McCarthy, GISP

Architectural historianArchitectural historian

Cultural Resource GIS FacilityCultural Resource GIS Facility

Heritage Documentation Heritage Documentation ProgramsPrograms

National Park ServiceNational Park Service

Department of the InteriorDepartment of the Interior

1849 C Street, N.W. (2270)1849 C Street, N.W. (2270)

Washington, D.C. 20240-0001Washington, D.C. 20240-0001

Voice: 202.354.2141Voice: 202.354.2141

Fax: 202.371.6473Fax: 202.371.6473

[email protected][email protected]