The Goals and Accomplishments of the Federal Archeology Program The Secretary of the Interior’s Report to Congress on the Federal Archeology Program, 2004–2007 Departmental Consulting Archeologist Archeology Program National Park Service Washington, DC 2010 Executive Summary Archeological resources are a vital part of our nation’s heritage. The sites and collections that comprise archeological resources are unique sources of information that powerfully evoke people, places, and history. Federal laws such as the Antiquities Act, the National Historic Preservation Act, and the Archaeological Resource Protection Act emphasize the significance of these resources and charge Federal agencies to protect and care for them. The Secretary’s Report to Congress on the Federal Archeology Program documents the archeological resource management and stewardship activities carried out by Federal agencies between FY2004 and FY2007. The Departmental Consulting Archeologist prepares the report on behalf of the Secretary on the basis of information provided by over two dozen Federal agencies that conduct, fund, or require archeological activities and investigations. The data in the FY2004-2007 report convey a sense of urgency. Environmental changes from climate change and increased energy resource extraction have the potential to destroy archeological sites before we even know that they exist. Many Federal archeological collections remain uncataloged and difficult to locate or use for research, exhibition, educational purposes, and cultural practices. Existing technologies for preserving and providing access to archeological data, records, and reports are not keeping up with the volume of data and reports produced annually. Looting of archeological sites on Federal lands continues, while law enforcement funding has remained the same size or decreased. Interpretation and synthesis of archeological research lags behind heritage tourism developments, which threaten to “love sites to death.” Agencies are losing personnel and expertise as baby boomer archeologists retire and are not replaced, creating a knowledge and skills gap that will be difficult to bridge. Pressing needs include: • The completion of inventories of archeological sites on Federal lands, targeting especially areas at risk from the adverse impacts of climate change and accelerated resource extraction activities. Federal archeologists must use modeling, sampling, and remote sensing to identify and characterize sites and regions more efficiently. • The proper care of Federal archeological collections, records, and reports. Accession and cataloging projects must be done to facilitate access to the objects and information for collections management, research, interpretation, and exhibition. Agencies that partner with non-government repositories must ensure that the curation of collections meets Federal standards. • The better use of electronic technologies to manage, preserve, and provide access to Federal archeological information. Standards are needed for more effectively posting reports, data, and synthesized research results using digital technologies. Initiatives to develop digital versions of legacy data and reports will facilitate accessibility of information to a wider audience. • The integration of archeology into civic life. Education about the content and importance of archeological resources in schools at all grade levels helps students to appreciate their cultural and historical environments. Archeological investigations provide opportunities for community involvement and civic engagement that enhance public interest in, and stewardship of, archeological resources. • The expanded protection of archeological sites with a larger law enforcement workforce and greater use of surveillance technologies. Protection programs must leverage citizen interest in volunteerism and public service to create and maintain archeological site steward programs. Such programs require commitment and support from the Federal government for coordination and supervision. • The creation of new archeology positions and replacement of retiring Federal archeologists to ensure a professional functional workforce capable of shouldering the archeological stewardship responsibilities that Federal agencies are charged to fulfill. Recommendations Recommendation 1: To prevent the loss of information and heritage values that archeological resources contain, more funding and personnel must be directed to ongoing efforts to identify, evaluate, and document the resources so as to avoid or mitigate adverse effects on significant and vulnerable sites. Because climate change and develop- ment are actively destroying archeological resources, these efforts must be accelerated. Recommendation 2: In order to guarantee the public benefit of access to archeological collections for research, exhibition, and use by descendent groups, archeological collections must be cataloged, curated, and appropriately housed by professionally trained staff. Funding and personnel are needed to complete cataloging and curation of Federal archeological collections to ensure their long term preservation and accessibility. Recommendation 3: In order to ensure public access to archeological data now and in the future, digital data standards and practices for preservation of records associated with archeological investigations must be developed and utilized, as is being done in other preservation fields. Recommendation 4: In order to strengthen archeological stewardship, coordinate and train volunteers, encour- age and promote civic engagement by community and descendent groups, and support public education and outreach related to agency archeological activities and projects. Recommendation 5: To protect the integrity of archeological sites on Federal lands and to deter looting and vandalism, strengthen working relationships between Federal archeologists, law enforcement officers, and Federal prosecutors. Provide training for archeologists, law enforcement personnel, and attorneys to heighten awareness of ARPA and requirements of ARPA in prosecuting looters and vandals. Recommendation 6: In order to maintain a high level of care for archeological sites, collections, and data, and sustain professional levels of outreach and communication about archeological resources, an adequate workforce is required. All agencies, but especially land managing agencies, need to hire more permanent archeologists. Succes- sion planning should ensure that retiring “baby boomer” archeologists are replaced by permanent, well-qualified professional archeologists. Table of Contents 9 | List of Tables 10 | List of Figures 10 | List of Profiles 11 | Section I. Overview of the Federal Archeology Program 17 | Chapter 1. Introduction 17 | The Initial Federal Archeology Program 20 | The Expansion of Federal Archeological Stewardship Responsibilities 22 | Implications for the Federal Archeology Program 23 | The Effects of Limited Staff 24 | Conclusion 25 | Chapter 2. Summary of Archeological Resource Management Developments, 2004-2007 25 | Advisory Council on Historic Preservation Activities 27 | NHPA and NEPA Integration 27 | Growing Attention to Agency Accountability for Heritage Assets 28 | The National NAGPRA Program 29 | Conclusion of the Kennewick Man Case 30 | Developments in Consultation 33 | Archeological Resource Protection Developments 35 | Hurricanes in 2005 35 | Anniversaries and Commemorations: The Antiquities Act of 1906 37 | Conclusion 39 | Section II. Current Activities: 2004-2007 40 | Chapter 3. Preserving Archeological Resources 40 | Identification, Evaluation, and Documentation of Sites 45 | Accelerating and Focusing Identification, Evaluation, and Documentation 47 | Conclusion 48 | Chapter 4. Archeological Collections, Data Preservation, and Access 48 | Caring for Archeological Collections 50 | Long-Term Preservation and Access to Archeological Collections Records 51 | Public Access to Archeology Reports with Limited Distribution 53 | Archeological Data Sharing 56 | Conclusion 57 | Chapter 5. Supporting Public Archeology Outreach 57 | Public Education and Outreach by Federal Agencies 62 | Connecting Archeological Stewardship and Public Service through Volunteering 64 | Public Service and Partnerships 64 | Conclusion 65 | Chapter 6. Archeological Resource Protection and Prosecution of Looters 66 | Looting and Vandalism on Federal Land 69 | Site Stewardship Programs 74 | Conclusion 75 | Section III. Critical Issues 76 | Chapter 7. Maintaining the Federal Agency Archeological Work Force 76 | Expanding the Archeological Workforce 79 | Trends in Retiring and Hiring 81 | Conclusion 82 | Chapter 8. Conclusions 82 | Preserving Archeological Resources 83 | Preserving Archeological Collections 84 | Promoting Civic Engagement 84 | Preventing Looting and Vandalism 84 | Maintaining the Archeology Workforce 87 | Acknowledgments 89 | References List of Tables 12 | Table 1. Acronyms for Federal government departments and agencies, other organizations, and legislation related to Federal archeology. 14 | Table 2. Federal agencies that contributed substantive data to the 2004-2007 Secretary’s Report to Congress on the Federal Archeology Program. 21 | Table 3. Federal laws and regulations since 1975 with new or enhanced responsibilities for archeological resources. 41 | Table 4. Land managing agencies, archeological resource management activities, 1985-2007, showing that the number of overviews and record searches increased over time as the number of data recovery projects decreased. 44 | Table 5. Regulatory and development agencies’ archeological resource management activities, 1985-2007, showing that archeological activities promoted by these agencies increased over time. 50 | Table 6. The percentage of cataloged Federal archeological collections reported held by land managing Federal agencies has not changed substantially since 1994. 50 | Table 7. Accuracy in reporting of BLM artifact repositories increased between 2004 and 2007. 52 | Table 8. Citations in NADB-R by year published, 1975-2007, show a decrease in the number of more recent reports in the database. 63 | Table 9. Partnerships and volunteers made valuable contributions to the Federal Archeology Program, 1998-2007. 66 | Table 10. The reported incidents of looting and vandalism of archeological resources on Federal lands, 1985-2007, did not decrease over time. 67 | Table 11. Reported costs associated with damage to archeological resources on Federal Lands (in dollars) are more than reported fines. 68 | Table 12. Reported prosecutions for looting and vandalizing archeological resources on Federal lands, 1985-2007, do not keep pace with the number of documented violations. 70 | Table 13. Laws and regulations under which people involved in looting and vandalism on Federal lands were prosecuted, as reported in the NPS LOOT Clearinghouse. 77 | Table 14. Comparison of archeologists employed to archeologists needed in 2007, showing the insufficiency of work force numbers to meet Federal stewardship responsibilities. 78 | Table 15. Permanent Federal agency archeologists, 2007-2008, reported by age. 78 | Table 16. Permanent Federal agency archeologists, 2007-2008, reported by years to retirement. 79 | Table 17. Permanent and temporary Federal archeologist positions (GS 193), 2000-2007. 80 | Table 18. Projected numbers of permanent Federal agency archeologists in 2017 on the basis of present replacement rates. List of Figures 15 | Figure 1. Federal agency contributions to the Secretary’s Report to Congress, 1985-2007. 42 | Figure 2. Permits and tribal notifications for land managing agencies, 1985-2007. 43 | Figure 3. Archeological data collecting activities by land managing agencies, 1985-2007. 63 | Figure 4. Partnerships held by development and regulatory agencies, 1998-2007. 64 | Figure 5. Archeological resource partnerships with land managing Federal agencies, 1998-2007. 65 | Figure 6. Reported incidents of looting and vandalism of archeological resources on Federal lands and law enforcement funding, 1985-2007. 72 | Figure 7. Distribution of legal tools used to charge vandals, according to the NPS LOOT Clearinghouse 1971-2007. 72 | Figure 8. Types of archeological resource violations cases in the NPS LOOT Clearinghouse. 80 | Figure 9. Permanent and temporary Federal archeologist positions (GS 193), 2000-2007. List of Profiles 18 | A Regulatory Agency’s Stewardship of Archeological Resources - The Minerals Management Service’s Archeological Protection Program 32 | The African Burial Ground National Monument 36 | The Papahanaumokuakea Marine National Monument 54 | Synthesizing Archeological Data - The Chaco Digital Archives 55 | Cooperating to Manage Archeological Information - The Federal Highway Administration (FHWA) 59 | Excavation in a National Park - The President’s House in Independence NHP 61 | Heritage Education - Project Archaeology