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Overview of CAL FIRE's Archaeology Program

The CAL FIRE Archaeology Program

Daniel G. Foster

Revised Date: November 21, 2006

CAL FIRE is responsible for the protection of resources over a vast portion of the state. One of the most fragile and vulnerable types of resources is cultural heritage resources. These consist of places where events occurred in the past and where material traces of these events can be found including archaeological and historical sites, structures, objects, and artifacts. Unlike renewable resources such as trees or wildlife, heritage resources are irreplaceable, and when damaged or destroyed, are lost forever. The purpose of the CAL FIRE Archaeology Program is to identify and manage archaeological and historical resources located within project areas under CAL FIRE jurisdiction and to develop methods to protect these resources from project related impacts. This is accomplished through regulations and policies requiring archaeological surveys of project areas, evaluation of potential impacts, and the incorporation of protection measures before project approval. This program provides archaeological surveys, technical assistance, project review, and archaeological training to CAL FIRE staff and resource professionals working in the private sector. The legal mandates that require CAL FIRE to protect archaeological and historical resources are found in the California Environmental Quality Act, the Forest Practice Regulations, California Executive Order W-26-92, and the California Register of Historic Resources.

The California Environmental Quality Act (CEQA) is the principal legislation requiring state agencies to consider the environmental consequences of their actions. Under CEQA, agencies must evaluate potential environmental impacts, propose mitigation for these impacts, provide information to the public, and respond to public comment regarding possible impacts. The goal of CEQA is the long-term preservation of a high quality environment for the citizens of California. The use of the term "environment" in this act has been defined to include "objects of historic or aesthetic significance" including archaeological sites. CEQA specifies that agencies evaluating a project for its environmental impacts must consult with other agencies having jurisdiction over affected resources, including archaeological sites. The presence of an archaeological site requires consultation with Native Americans who are entitled to identify sites of special religious and spiritual significance. Other provisions of CEQA reflect a strong legislative policy choice for the preservation of archaeological sites, cemeteries, and other sacred grounds.

Forest Practice is one of the largest programs in CAL FIRE Resource Management, and the CAL FIRE Archaeology Program plays an important role in the delivery of this program. The Forest Practice Act and the Forest Practice Rules authorized by this statute regulate commercial timber harvesting on non-federal lands in California. CAL FIRE functions as lead agency under CEQA for review and approval of Timber Harvesting Plans (THPs). CAL FIRE’s program of reviewing and approving THPs, with public input and resource-specific studies such as archaeological surveys, has been certified by the Resources Secretary as a functional equivalent to a Environmental Impact Report (EIR). A Timber Harvesting Plan (THP) must, therefore, meet the same criteria as an EIR. The THP is an information document that sets forth proposed measures to mitigate the potential adverse impacts on the environment of logging operations. Initially, the Forest Practice Regulations did not specifically address archaeological protection. Due to a series of incidents where archaeological sites were damaged, the Board of Forestry adopted a comprehensive set of archaeology rules in 1991. These rules require all THPs to include a current archaeological records check, archaeological survey, and Native American consultation. Archaeological surveys of THP areas must be conducted by either a professional archaeologist or one of CAL FIRE’s Certified Archaeological Surveyors with oversight and review by a professional archaeologist. Archaeological surveys supporting THPs are reported in a Confidential Archaeological Addendum. CAL FIRE was also granted broad authority to require site protection measures.

In 1992, Executive Order W-26-92 directed state agencies to administer the cultural and historic properties under their control in a spirit of stewardship for future generations; to initiate measures necessary to direct its policies, plans, and programs so that state-owned sites, structures, and objects of historical, architectural, or archaeological significance would be preserved, restored, and maintained for the inspiration and benefit of the people; to ensure that the protection of significant heritage resources was given full consideration in all of its land use and capital outlay decisions; and to institute procedures to ensure that state plans and programs contributed to the preservation and enhancement of significant non-state owned heritage resources.

The California Register of Historic Resources is an authoritative guide used by state and local agencies, private groups, and citizens to identify the state's historical resources and to indicate what properties are to be protected from substantial adverse change. The Register includes historical resources determined to be significant by meeting any of the criteria set forth by the National Register of Historic Places.

The policies used to carry out the protection of heritage resources under CAL FIRE jurisdiction have evolved gradually during the history of the program. These policies have been shaped by public opinion and expectations, and have often entailed intensive internal discussions within the Department. Particular events have often played a critical role in the development of these policies. Following the passage of CEQA in 1970, much of the responsibility for the preservation of historical resources in California was assumed by the Department of Parks and Recreation (DPR). In 1978, a THP at Mountain Home State Forest was delayed because of the lack of an archaeological survey, costing the state several hundred thousand dollars in lost revenue. CAL FIRE officials began to recognize the importance of archaeology in project planning and looked for ways to establish an archaeology program within the Department. In 1979, CAL FIRE began contracting with DPR for archaeological assistance. The first full-time CAL FIRE staff archaeologist was hired in 1981. Emphasis was initially placed on surveys of the State Forests with Vegetation Management Program and California Forest Improvement Program projects rounding out the workload. On private lands known archaeological sites were afforded some protection but archaeological surveys were not required. An early case important in shaping CAL FIRE policy was a THP in Mendocino County where protected archaeological sites were heavily damaged by logging operations. CAL FIRE issued a citation and the case went to court. The Judge ruled in favor of CAL FIRE and imposed a fine on the logging company. Following this incident, the logging company proposed to re-enter the same property to remove a grove of old-growth redwoods. The plan was approved by CAL FIRE in September 1983, but environmentalists and Native Americans filed a lawsuit alleging that the plan should not have been authorized. The court ruled that CAL FIRE did not provide enough information to the public to justify their decision regarding the adequacy of archaeological site protection measures and had failed to consult with the Native American Heritage Commission. This case is considered precedent setting case law and the ruling has been upheld by subsequent court decisions. The public began to realize that archaeological sites were not being adequately protected and put pressure on CAL FIRE to improve its practices. Following this case the CAL FIRE Archaeology Office began to receive many more requests for THP review. Another important incident occurred in 1987 when an archaeological site was impacted during logging operations in Tulare County. An archaeologist was hired to evaluate the damage and salvage any recoverable information. He reported that the site was so badly damaged that no useful data remained and recommended that CAL FIRE strengthen the requirements for archaeological surveys prior to operations so that sites could be more adequately protected. This message was carried to the highest levels of CAL FIRE policymakers who began to recognize problems with the Archaeology Program, eventually leading to an increase in archaeological staff and changes in the Forest Practice Regulations. These, and many other events, resulted in the policies and procedures that are in place today for the protection of archaeological and historical resources.

The CAL FIRE Archaeology Program has been implemented by a dedicated and hard-working staff of professionals. Beginning with one full-time archaeologist in 1981, positions have gradually been added as the needs of the Department have increased. In 1987 a second full-time position was filled and in 1990 positions began to be established at regional field offices. The CAL FIRE Archaeology program consists of eight staff archaeologist positions. Two positions are classified at the Senior State Archaeologist (supervisory) level and six at the Associate State Archaeologist level. The CAL FIRE staff archaeologists are assisted by personnel supplied through contracts with five California State Universities. Additional assistance is occasionally provided by talented and resourceful volunteers.

One of the most important components of the CAL FIRE Archaeology Program is the archaeological training provided to CAL FIRE staff, Registered Professional Foresters, and other resource professionals working in the private sector. This training offers an introduction to the identification and management of cultural resources including research methods, artifact recognition, survey techniques, site recording, and site protection methods. The training program consists of an intensive five-day course and periodic refresher courses. Since 1982 over 2300 students have completed this training. Projects reviewed by CAL FIRE must be surveyed by an archaeologist or a graduate of this Board-Certified Archaeological Training Program. Archaeological surveys include pre-field research, consultation with landowners, Native Americans, and others who may have information about the project area, and a careful and systematic on-the-ground investigation. To ensure professional oversight and concurrence with archaeologically related issues, the CAL FIRE Archaeology Office has developed a system of procedures for the review of proposed projects. This review process is part of the interdisciplinary approach mandated by CEQA. Recently, the CAL FIRE Archaeology Program has begun to expand its archaeological training efforts to help fire fighting personnel become more aware of archaeological protection.

In 1990, the Golden Trowel Award was established to recognize outstanding achievements in the identification, documentation, and protection of archaeological resources. Recipients are given an engraved plaque with a mounted Marshalltown trowel. A perpetual plaque bearing the name of all previous recipients is displayed at the Board of Forestry and Fire Protection in Sacramento. Over twenty individuals have received the award including CAL FIRE and private sector foresters, fire officials, and other resource professionals.

The California Historical Resource Information System consists of twelve regional Information Centers that maintain and disseminate the archaeological records for specific portions of the state. This system is administered by the Office of Historic Preservation, which has developed forms for documenting the full range of cultural resources. The CAL FIRE Archaeology Office has played an instrumental role in the development of these recording forms. When archaeological investigations are conducted, findings are documented in site records and reports that are submitted to the appropriate Information Centers. As a result of the CAL FIRE Archaeology Program, several hundred archaeological sites are recorded each year and incorporated into the historic resource data base.

State agencies were directed by Executive Order W-26-92 to prepare inventories and develop management plans for cultural and historical properties under their ownership and control. A comprehensive management plan for all CAL FIRE properties was completed in 2001. This document was eleven years in the making and was the most ambitious project so far undertaken by the CAL FIRE Archaeology Program. CAL FIRE is responsible for a system of eight Demonstration State Forests, numerous fire stations, conservation camps, and lookout facilities. One hundred sixty-six archaeological sites have so far been identified on these properties. CAL FIRE facilities include approximately 2300 buildings distributed over 375 sites. Twenty-nine of these buildings are considered historically significant and have been selected for long-term preservation.

The CAL FIRE Archaeology Program has placed considerable emphasis on archaeological advocacy and public outreach to the various constituencies affected by the regulatory responsibilities of the Department. These efforts are accomplished through publications, public presentations, a video, and a website. One of the most substantial contributions of the program is the publication of the Archaeological Reports series that was initiated in 1988. The thirty volumes in this series disseminate the results of some major investigations undertaken by CAL FIRE and include excavation reports, survey reports, State Forest inventories, management plans, technical manuals, and reports on other research projects. Several pamphlets have also been prepared that provide information directed at specific interest groups. A video produced in 1999 features CAL FIRE staff and logging industry personnel presenting information on archaeological protection during timber harvest operations. Anyone interested in finding out more about CAL FIRE’s Archaeology Program is encouraged to explore the contents of this web site. Although the CAL FIRE Archaeology Program is a very small part of the Department, it has become an important component of the organization and plays a vital role in the protection and preservation of heritage resources in California.