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Integrated Historic Properties Survey Report Mississippi Secondary Programmatic Agreement August 2016

Integrated Historic Properties Survey Report

Mississippi Secondary Programmatic Agreement August 2016

Cover: Friendship Oak on the Campus of the University of Southern Mississippi at Gulf Park, Long Beach (FEMA photo, 2015).

Integrated Historic Properties Survey Report ii

Contents Introduction ..................................................................................................................................... 1

Publication Background .............................................................................................................. 1

Secondary Programmatic Agreement ......................................................................................... 4

Integrated Historic Properties Survey Report ............................................................................. 7

FEMA’s Cultural Resource Surveys ........................................................................................... 7

Survey Methodology ................................................................................................................... 7

Archaeological and Architectural Surveys ............................................................................. 7

Archaeological Survey Methodologies ................................................................................... 8

Archaeological Site/Survey Area Reports ............................................................................ 11

Architectural Survey Methodologies .................................................................................... 11

Mississippi Historic Resource Inventory Forms (MRIF) ..................................................... 12

Determinations of National Register Eligibilities ................................................................. 12

GPS/GIS Survey Information ............................................................................................... 12

Archaeological and Architectural Resource Inventory and Analysis ................................... 12

County Standard Survey Reports .............................................................................................. 12

Structures MRIFs/DOEs Context Statements ....................................................................... 13

Hancock County........................................................................................................................ 13

Archaeological Survey Findings ........................................................................................... 13

Architectural Survey Findings .............................................................................................. 16

Harrison County ........................................................................................................................ 19



Jackson County ......................................................................................................................... 23



Stone County ............................................................................................................................. 26



Integrated Historic Properties Survey Report iii

Pearl River County .................................................................................................................... 27



George County .......................................................................................................................... 30



Forrest County .......................................................................................................................... 31



Survey Data Publications .......................................................................................................... 33

Comprehensive Report.............................................................................................................. 34

Historical Marker Program ....................................................................................................... 34

Development of Hazard Mitigation Plans................................................................................. 36

Hazard Mitigation Planning .................................................................................................. 36

Hazard Mitigation Demonstration Project ............................................................................ 36

Conclusion ................................................................................................................................ 37

Integrated Historic Properties Survey Report iv

List of Figures

Figure 1.1: Designated Counties and FEMA Program Applicability. .................................... 6

Integrated Historic Properties Survey Report v

List of Acronyms & Abbreviations

ACHP Advisory Council on Historic Preservation

AD Anno Domini

BC Before Christ

BLM Bureau of Land Management

BP British Petroleum

ca. circa

CC Cheap Creamware

CDBG Community Development Block Grant

CFR Code of Federal Regulations

CLG Certified Local Government

CMAS Commercial Mobile Alert System

CPF California Preservation Foundation

D.B.A. Debating Benevolent Association

DMS Debris Management Site

DRMS Decision, Risk, and Management Sciences

e.g. exempli gratia (for example)

EPA Environmental Protection Agency

etc. et cetera

EWP Emergency Watershed Protection

FEMA Federal Emergency Management Agency

FMA Flood Mitigation Assistance

FS Field Specimen

G grams

GIS Geographic Information System

GPS Global Positioning System

HMGP Hazard Mitigation Grant Program

HUD Department of Housing and Urban Development

ICC Increased Cost of Compliance

ID Identification

IHP Individual and Households Program

IS Independent Study

LLC Limited Liability Company

M Meters

MBCI Mississippi Band of Choctaw Indians

MBJ Mississippi Business Journal

MD Maryland

MDAH Mississippi Department of Archives and History

MEMA Mississippi Emergency Management Agency

MRA Multiple Resource Area

MS Mississippi

MSRO Mississippi Recovery Office

n.d. no date

NASA National Aeronautics and Space Administration

NCDC National Climate Data Center

NEPA National Environmental Policy Act (1969)

NFIP National Flood Insurance Program

NHPA National Historic Preservation Act

NOAA National Oceanic and Atmospheric Administration

NPS National Park Service

NRHD National Register Historic District

NRHP National Register of Historic Places

NSTL National Space Technology Laboratories

PA Pennsylvania

PA Public Assistance

PDM Pre-Disaster Mitigation

PNP Private Non-Profit

RFC Repetitive Flood Claims

SBA Small Business Administration

SHPO State Historic Preservation Officer

SRL Severe Repetitive Loss

St. Saint

STP Shovel Test Pit

TCP Traditional Cultural Properties

THPO Tribal Historic Preservation Officer

U.S. United States

USA United States of America

USACE United States Army Corps of Engineers

USBC United States Bureau of the Census

USDA United States Department of Agriculture

WPA Works Progress Administration

Integrated Historic Properties Survey Report 1

Introduction Publication Background Hurricane Katrina, one of the worst natural disasters in United States history, made landfall near the mouth of the Pearl River at the Louisiana–Mississippi border on August 29, 2005. The Category 3 hurricane had, at landfall, registered sustained winds of 120 miles per hour and dropped as much as eight to ten inches of rain in southwestern Mississippi. Rain in excess of four inches fell throughout the rest of the state. Katrina caused a storm surge of 24 to 28 feet across a swath of the Mississippi coast approximately 17 to 23 miles wide, centered roughly on St. Louis Bay, and a surge of 17 to 22 feet along the eastern half of the Mississippi coast, roughly from Gulfport to Pascagoula. The surge penetrated at least six miles inland in many portions of coastal Mississippi and up to 12 miles inland along bays and rivers.

Katrina caused 238 direct and indirect fatalities in Mississippi. In addition to the loss of lives, Katrina completely destroyed numerous homes, schools, churches, public and commercial buildings and left thousands of homes uninhabitable. The hurricane affected roads, bridges, utilities, piers, boats, and cars. Across the Gulf Coast, tens of thousands of jobs were lost due to severely damaged or destroyed businesses and supporting infrastructure.

On August 29, 2005, President George W. Bush issued a disaster declaration for the State of Mississippi in response to Hurricane Katrina. This declaration was referenced as Federal Emergency Management Agency (FEMA)-1604-DR-MS (Disaster- Mississippi). As an initial response, the declaration authorized FEMA’s Individual Assistance (IA) Program to provide assistance for individuals and households in 49 counties. These counties made up roughly the lower three fifths of the state (Figure 1.1).

The declaration also authorized the Public Assistance (PA) Program to provide funding to Tribal, State and local governments and eligible private nonprofit organizations, for the repair or replacement of disaster-damaged facilities. Initially, emergency work for debris removal from public rights-of-way and emergency protective measures were authorized for all 82 counties (Figure 1.1). FEMA was also able to support unmet State needs through the mission assignment process, tasking other federal agencies to perform emergency work.

Due to the enormity of the disaster and the demonstration of need, the initial declaration was amended 15 times between September 4, 2005 and May 25, 2007. As a result of the initial declaration and subsequent amendments, all counties in Mississippi became eligible for funding to cover the costs of debris removal and emergency protective measures (Categories A and B), and all but eight counties became eligible for funding to complete permanent repairs (Categories C-G) through the PA Program (Figure 1.1). Other amendments either appointed new Federal Coordinating Officers to head the disaster operations or extended the end date for FEMA’s 100% reimbursement.


The Hazard Mitigation Grant Program (HMGP), which provides mitigation assistance to State and local governments and certain private nonprofit organizations for actions taken to prevent or reduce long-term risk to life and property from natural hazards, was authorized for all 82 counties in the State of Mississippi.

Following the initial declaration, the PA and IA Programs responded in all counties, but there was almost an exponential increase in damage from north to south, with the three coastal counties of Hancock, Harrison and Jackson experiencing the most severe damage. The magnitude of destruction along 70 miles of the Mississippi coast posed significant obstacles that far exceeded the demands typically placed on FEMA as an agency and to those responsible for carrying out FEMA’s Section 106 responsibilities.

The Mississippi Gulf Coast, prior to the ravages of Hurricane Katrina was extremely rich in historic districts, buildings, sites and structures. Katrina had a devastating effect on the historic districts and the historic character of the Gulf Coast, destroying many of the cultural resources that lay in its path. Rapid and robust response and recovery activities carried out by local, state, and federal agencies in an effort to stem health and safety issues, resulted in cultural resources being inadvertently damaged and/or destroyed, primarily through debris removal and structural demolition. FEMA funded many of those activities.

Section 106 of the National Historic Preservation Act (NHPA) requires all Federal agencies to consider the effects of their actions (projects they carry out, fund or permit) on historic properties and to provide the Advisory Council on Historic Preservation (ACHP) an opportunity to comment on Federal projects prior to implementation. Historic properties are properties that are included in the National Register of Historic Places (NRHP) or that meet the criteria to be listed in the National Register. Historic properties include buildings, historic districts, structures, archaeological sites and objects. Section 106 encourages but does not mandate preservation. It requires Federal agencies to assume responsibility for the consequences of their actions on historic properties and be publicly accountable for their decisions.

Based on the National Park Service (NPS) definition, a property is eligible for the NRHP either individually or as part of a historic district if it meets the following:

The quality of significance in American history, architecture, archaeology, engineering and culture is present in districts, sites, buildings, structures and objects that possess integrity of location, design, setting, materials, workmanship, feeling and association, are usually at least 50 years old and meet one or more of the following criteria:

A. Are associated with events that have made a significant contribution to the broad patterns of our history; or

B. Are associated with the lives of persons significant in our past; or C. Embody the distinctive characteristics of a type, period or method of construction or that

represent the work of a master, or that possess high artistic value, or that represent a


significant and distinguishable entity whose components may lack individual distinction; or

D. Have yielded or may be likely to yield, information important in prehistory or history.

Determining whether properties are eligible for the NRHP involves consultations with the State Historic Preservation Officer (SHPO) and/or Tribal Historic Preservation Officers (THPO) before beginning the work in question. This process can take several hours per property to develop a consultation document to submit to the SHPO and THPO and up to 30 days per property for SHPO and THPO review. Thousands of properties were affected across the Gulf Coast. Debris, mixed with organic matter from a number of sources, festered in the sun and threatened the outbreak of potential diseases. Debris on roads and private properties prevented people from getting to their homes, which increased the need for shelters, mass care feeding sites and temporary housing solutions. The enormity of the event led to the displacement of large segments of the population and to health hazards. The response required a rapid work pace and the swift removal of debris. These tasks were completed by local governments and numerous, different organizations. There were limited data sets of known historic properties and this prevented FEMA from conducting traditional project and historic property reviews. Due to time restraints, buildings were assessed only under Criterion C (Architecture) of the Criterion for Eligibility for placement on the NRHP. Had they been assessed under Criterion A (History), the count of historic buildings removed through FEMA’s undertaking would have been far greater. For example, buildings in the Turkey Creek Historic District, Gulfport, Mississippi, a district listed in 2007 for its significance in African American history (Criterion A), would have been dismissed by reviewers, who were only considering Criterion C (Architecture). Given that FEMA has since identified 25 new historic districts in the three coastal counties, it is likely that at least some of the demolished buildings were located in potentially eligible areas.

The adverse effects to below-ground historic properties caused by FEMA undertakings are more difficult to assess than effects on above-ground resources. While many sites had been identified and entered into the Mississippi Department of Archives and History (MDAH) archaeological site files, many more sites were unknown. Movement of heavy equipment across sites, extraction of tree roots, and the scraping and removal of debris that occurred during the debris removal and demolition programs are activities that can easily destroy the integrity of below ground resources. Based upon the expertise of staff working early in the mission and consultation with several stakeholders, FEMA’s Environmental/Historic Preservation (EHP) staff was able to determine that adverse effects did occur as a result of the agency’s actions. However, the staff in place early in the disaster faced very difficult working conditions and the data documenting their efforts was, in many cases, not preserved.

Rather than slow the response and recovery efforts or deny state and local government funding for work that inadvertently damaged historic structures, districts or archaeological sites, FEMA, the Mississippi (MS) SHPO, the Mississippi Band of Choctaw Indians (MBCI) THPO, the


Advisory Council on Historic Preservation (ACHP) and the Mississippi Emergency Management Agency (MEMA) and other involved parties agreed to a streamlined review process.

Secondary Programmatic Agreement FEMA agreed to undertake a number of nontraditional tasks to compensate for this streamlined review process. This warranted the creation of the Secondary Programmatic Agreement (2PA).

The implementation of the 2PA was authorized under Stipulation VII.A.2 of the 2004 Statewide Programmatic Agreement (PA) to specifically address the review process for the Undertaking; to define FEMA’s criteria for evaluating damaged and destroyed properties following Hurricane Katrina; to provide treatment measures to address the adverse effects of the Undertaking; and to expedite the Section 106 review in order to assist disaster victims in the hurricane recovery and to minimize delays in FEMA’s delivery of funds. The 2PA sanctioned the federally funded destruction of certain badly damaged historic properties but in return, FEMA agreed to carry out a number of measures to atone for the destruction of the historic properties. FEMA agreed to carry out five measures or stipulations:

1. Conduct historic property surveys and draft determinations of eligibility for identified properties (Cultural Resource Surveys) which involved:

a. Assessing listed historic districts, structures and archaeological sites to see if they were still eligible for the National Register;

b. Locating previously unknown or unidentified historic districts, structures and archaeological sites eligible for the National Register;

c. Using Global Positioning System (GPS) to capture spatial information; d. Using Geographic Information System (GIS) and a database for data management

and spatial reference of the structures and archaeological sites; e. Developing a report for each survey area (county) – County Standard Survey

Reports f. Preparing a report with all findings for the Gulf Coast - Integrated Survey

Report 2. Develop Survey Data Publications for each of the three coastal counties which

included: a. Publishing a document for each coastal county for use by the general population

that included maps, photographs, and narrative of findings; and b. Distributing them in print, CD, and web

3. Prepare a Comprehensive Report of FEMA’s compliance efforts with historic preservation laws which:

a. Includes all FEMA Programs (PA, IA, HM, Mission Assignments); and b. Identifies key lessons learned

4. Historical Marker Program a. Funding the manufacturing of 29 historical markers for exceptional historic

properties destroyed by Katrina


5. Develop Hazard Mitigation Plans which involved: a. FEMA and the SHPO integrating historic preservation measures into state and/or

local hazard mitigation plans; b. FEMA, in consultation with SHPO, developing a demonstration project that

shows techniques of how properties can be mitigated, yet maintain their historic integrity

These tasks included conducting architectural and archaeological surveys to determine the extent of damage to known historic resources; finding previously undesignated or unidentified historic structures and archaeological sites; and developing a database of these properties. The extensive Katrina related damage and loss of historic properties made the surviving properties much more valuable and increased the need for their preservation. These surveys and database will:

• Allow more efficient project review for impacts to historic properties during future disaster response activities;

• Assist local, state and federal agencies in the preservation of cultural resources and compliance with historic preservation laws for non-disaster related projects; and

• Support designation of properties to the NRHP, Mississippi Landmark Program and local historic registries.


Figure 1.1: Designated Counties and FEMA Program Applicability.


Integrated Historic Properties Survey Report This “Integrated Report” completes FEMA’s obligations as set forth in the Secondary Programmatic Agreement among the Federal Emergency Management Agency, Advisory Council for Historic Preservation, Mississippi State Historic Preservation Officer, Mississippi Band of Choctaw Indians, and the Mississippi Emergency Management Agency for Debris Removal and Demolition on Privately-Owned Property in Mississippi (2PA). The Integrated Report summarizes all documents and survey information produced by FEMA’s Environmental and Historic Preservation staff to fulfill the Stipulations and Treatment Measures as set forth in the 2PA. In lieu of including the fourteen Standard Survey Reports (seven archaeological and seven architectural), Determinations of Eligibility (DOEs), Mississippi Historic Resource Information Forms (MRIFs) and GPS/GIS survey information, FEMA is submitting this summary of the 2PA required Treatment Measures and the dates of SHPO concurrence. The SHPO concurred with this abbreviated approach in an e-mail dated February 23, 2016. This report is the final document required by the 2PA. The concurrence of this report by the SHPO and its transmittal to all Signatory parties satisfactorily fulfills IX.B.4 of the 2PA and all five Stipulations of the 2PA.

FEMA received SHPO concurrence on the Integrated Report on August 5, 2016.

***The Integrated Historic Properties Survey Report will be available on FEMA’s Library website (https://www.fema.gov/media-library/assets/documents/119151) after October 1, 2016.

FEMA’s Cultural Resource Surveys

Survey Methodology FEMA used trained historic preservation professionals to complete surveys in Hancock, Harrison, Jackson, Pearl River, Stone, George, and Forrest Counties. These surveys combined sophisticated NPS standardized GPS/GIS survey and evaluation techniques with research and extensive consultation with the SHPO and the MBCI THPO. This produced a customized digitally based inventory and geodatabase that met NPS draft cultural resources spatial data standards while providing the historic preservation review staff with an easily accessible and comprehensive project planning and review tool. The different survey methodologies for assessing NRHP-eligibility for existing and previously undesignated or unidentified historic structures and archaeological sites are described below.

Archaeological and Architectural Surveys

FEMA’s archaeological surveys focused on sites already eligible or potentially eligible for the NRHP; known sites not yet evaluated for the NRHP; and locations with a high probability of containing artifacts but not known to be archaeological sites.

FEMA’s architectural surveys focused on Pre-Katrina National Register Historic Districts (NRHD) and individual structures to determine if they were still eligible. The surveys also

https://www.fema.gov/media-library/assets/documents/119151


targeted areas with a high probability of having previously unidentified historic districts and individual structures that might be eligible for the NRHP. Historic preservation specialists conducted architectural surveys within the context of 14 historical themes:

• European Exploration (1699-1812) • Choctaw Communities (Late 18th Century-Mid 1960s) • Agriculture (18th Century-1950) • Resort Industry (1820-1969) • Timber Industry (1840-1930) • Civil War (1861-1865) • Reconstruction (1866-1875) • Railroad Development (1870-1930) • Education (1870-1969) • Seafood Industry (1820-1947) • African American History (Early 19th Century-Late 1960s) • Great Depression (1930-1940) • World War II (1941-1945) • Post World War II (1946-1969)

Archaeological Survey Methodologies

FEMA’s archaeological surveys focused on sites already eligible or potentially eligible to the NRHP; known sites not yet evaluated for the NRHP; and locations with a high probability of containing artifacts but not known to be archaeological sites.

During the archaeological surveys, archaeologists developed protocols for, and conducted, initial background research, site visits, fieldwork, laboratory procedures and report production.

Preliminary Literature and Background Research

Prior to the initiation of fieldwork, archaeologists completed a preliminary literature search by reviewing and summarizing archaeological documents maintained by MDAH, local universities, libraries, historical societies, and local informants. Archaeologists prepared brief county-specific archaeological summaries that identified previously recorded archaeological sites and work completed in the study area. Much of this region has not been subject to intensive cultural resources surveys; therefore, the density, age, and condition of many archaeological resources remain unknown.

Initial Field Visit and Appraisal

Based on the background research, archaeologists conducted initial fieldwork to identify areas appropriate for reconnaissance surveys, shovel testing, and/or test excavation units. During this step, archaeologists coordinated with area landowners to secure right-of-entry permission. Archaeologists decided on the proposed boundaries of surveys in consultation with the SHPO and THPO. To prepare a plan for further fieldwork, FEMA GIS specialists and archaeologists produced maps that identified likely disturbances as well as locations with the potential for intact archaeological deposits.


Field Methods

Fieldwork followed standard guidelines for archaeological research set forth by state and federal agencies (NPS 1985, 1997; Sims 2001). Archaeologists used a number of field methods to discover and test archaeological sites. Broadly, archaeological investigations fell into two categories of survey: reconnaissance surveys and intensive surveys.

In reconnaissance surveys, archaeologists sought to locate documented and undocumented archaeological sites in the study area. Archaeologists walked transects at 15-30 meter intervals closely examining ground surfaces, especially where subsurface conditions were exposed. They noted any objects found on the ground and marked any locations with a high probability for artifacts. Archaeologists also used a pre-generated grid created for the entire survey area to determine the placement of shovel test pits (STPs). Archaeologists used this grid in order to reduce bias, thus making the final product more scientifically rigorous. However, investigators also had the option to place judgmental shovel tests based on favorable topography and investigator experience.

Staff recorded the exact locations of STPs with a handheld GPS connected to a range pole and antenna for sub-meter accuracy. Archaeologists input attributes of each STP into an electronic database formulated for this project. When the STPs yielded artifacts, investigators shifted to smaller grid intervals in order to define the site boundaries in detail. Archaeologists stopped delineating the site after identifying two STPs without artifacts in each cardinal direction.

STPs ranged from 30-50 cm in diameter and were excavated to depths of 100 cm or more below the ground surface. All soil was screened through one-quarter inch hardware cloth. Digging ceased when excavators encountered disturbances, sterile sub-soil or the water table. At the conclusion of the STP, the excavator refilled the hole with the screened soil.

When appropriate, an intensive survey was conducted to assess the eligibility of sites for the NRHP. In an intensive survey, the goal is to document all sites in sufficient detail to permit their evaluation and registration in the NRHP or a State or local equivalent.

While the strategy for each intensive survey was site-specific, in general, fieldwork consisted of the following steps: archaeologists determined the vertical and horizontal extent of archaeological materials through surface collections; STPs; soil coring; and/or auger borings. As in the reconnaissance survey, archaeologists walked transects at 15-30 meter intervals and excavated STPs according to a pre-generated grid.

Furthermore, the archaeologists excavated test units to investigate archaeological deposits and cultural features. They used test unit excavations to determine: NRHP eligibility; explore research goals; and/or assess damage from Hurricane Katrina and subsequent debris removal. Field researchers screened soil from both the STPs and the test units through one-quarter or one-eight inch hardware cloth and collected all artifacts. They also collected soil samples for flotation from each level. In addition, archaeologists collected samples suitable for radiocarbon dating for future research.


Broadly, these intensive surveys sought to: accurately delineate site boundaries; determine the vertical and horizontal extent of any intact archaeological deposits; and assess temporal and cultural association of any deposits. Archaeologists produced standard field documentation during intensive and reconnaissance surveys which included: field forms; logs; photographs; GPS coordinates; and characteristics and conditions of the soil using the Munsell color system.

Laboratory Methods

All recovered artifacts received field specimen (FS) numbers before staff transported them to the FEMA Mississippi Recovery Office (MSRO) Archaeological Laboratory. Lab staff cleaned, assessed, sorted, catalogued, and curated the artifacts according to the MDAH Guidelines for Archaeological Investigations and Reports in Mississippi (Sims 2001) and the Secretary of the Interior’s Standards and Guidelines for Curation (Title 36 Code of Federal Regulations Part 79 [36 CFR 79]). Lab personnel also analyzed artifacts collected in the field according to currently accepted typological categories. They recorded by provenience (original location of an artifact, where it was found, and its context), specific attributes, counts, and weight in grams (g) for each recovered artifact category.

FEMA archaeologist analyzing a metal door and sorting prehistoric ceramics in the FEMA Archaeology Lab (FEMA photos 2013).

Reports and Determinations of Eligibility

Based on field and lab data, archaeologists designed maps and wrote reports to define the character, nature, and integrity of the archaeological site. This included the known history, environment, layout, artifacts, and degree to which the site was intact. Reports included a Determination of Eligibility (DOE) recommending the site as eligible, potentially eligible or not eligible for the NRHP. The SHPO and THPO can use this information to submit formal nominations to the NRHP.


Archaeological Site/Survey Area Reports

FEMA’s archaeology staff developed site/survey area reports for sites and areas agreed upon by FEMA, the SHPO and MBCI. They prepared artifacts for final curation as agreed with by the SHPO. Final versions of the site/survey reports for all area surveys were sent to the SHPO and THPO for concurrence as completed. Artifacts were delivered to the SHPO for final curation.

Architectural Survey Methodologies

Architectural surveys focused on the built environment such as buildings and bridges. Historic Preservation Specialists cataloged known resources, conducted archival research, preliminary literature searches, and interviewed local historians. They developed maps using this information in conjunction with:

• Tax parcel information; • Local historic district boundaries; • NRHP listed districts and buildings as provided by the SHPO and NPS; and • The listing of Designated Mississippi Landmarks obtained from the SHPO.

FEMA staff utilized these maps in a reconnaissance/windshield survey of each county in its entirety, to identify areas and individual structures for intensive survey. Based on the catalog of known resources, archival research, interviews with local historians, and the reconnaissance/windshield survey, staff identified known and potentially eligible historic districts and individual structures for intensive survey.

FEMA consulted with the SHPO for comments and concurrence with the proposed areas for intensive survey. After receiving SHPO concurrence, FEMA Historic Preservation Specialists initiated an intensive field survey of the areas and individual structures. The intensive survey involved historic preservation specialists photographing, taking GPS coordinates, and developing a short property description/narrative from the public rights-of-way.

FEMA then presented the SHPO with eligibility recommendations and proposed changes to currently listed National Register Historic District boundaries, as well as proposed boundaries for newly identified historic districts. FEMA also presented the SHPO with recommendations on the eligibility of currently listed and newly identified individual structures.

Based on this information, the SHPO determined which districts and individual structures needed further research to determine NRHP eligibility. Redrawn and newly identified districts and individual structures for which the SHPO thought there was potential for NRHP eligibility received further research. FEMA Historic Preservation Specialists conducted deed research and developed Mississippi Historic Resources Inventory Forms (MRIFs) for each property. They took photos of each property for archiving, took photos of streetscapes in historic districts for archiving, entered GIS property data into a master database, conducted an extensive literature search, and drafted a DOE for each redrawn historic district, newly identified historic district, and newly identified individual structure in each of the seven counties.


Mississippi Historic Resource Inventory Forms (MRIF)

FEMA’s EHP staff prepared a MRIF for each historic property surveyed that was eligible individually or as part of a district. They took photos of each property (one clear sharp 3 ½-inch by 5-inch or 4-inch by 6-inch black and white photograph) showing the main façade (if for a building or structure) or a general view (if there was not one principal building on the property). These photographs were attached to the form. Negatives were also submitted. These photos were taken for archiving. The EHP staff also entered GIS property data into a master database for each currently listed structure the SHPO determined still eligible for the NRHP.

This information was packaged and sent to the SHPO for a final concurrence. The SHPO can and has used this documentation to pursue actual NRHP Nominations. It will also be useful for compliance reviews for proposed local, state, and federal projects.

Determinations of National Register Eligibilities

FEMA’s EHP staff prepared a DOE for each district and individual historic property identified and surveyed. These were included in the Standard Survey Reports.

GPS/GIS Survey Information

FEMA developed a survey and evaluation technique which implemented the use of highly accurate (+/- 3 meter) GPS equipment to document buildings, sites, and other historic properties that are or may be eligible for listing in the NRHP. Locational and attribute information was collected as part of the survey.

Boundaries for proposed and existing historic districts were created digitally for use in a GIS at a minimum of a 1:24,000 scale (typical USGS quadrangle map). Locations of contributing historic properties determined eligible for listing in the National Register were captured digitally by GPS for use in a GIS, with an accuracy of +/- 3 meters. This was produced to aid the state and the national historic agencies in the event of any future disasters.

Archaeological and Architectural Resource Inventory and Analysis

Hurricane Katrina’s storm surge and water and wind erosion significantly damaged archaeological sites. There were some cases, however, where the Storm benefited archaeology. Wind, water, and wave action exposed many previously unknown archaeological sites giving archaeologists a clearer picture of the number, kind, and distribution of sites on the Gulf Coast. Post Katrina temporary and permanent repair work resulted in discovery of new sites and the survey of old and new sites. In at least one case, Katrina actually deposited more soil on top of an archaeological site providing additional protection from erosion and looting.

County Standard Survey Reports Stipulation IX.B. of the 2PA required FEMA staff, in consultation with the SHPO and the Tribes, to write a Standard Survey Report (SSR) for each of the seven lower counties: Hancock, Harrison, Jackson, Pearl River, Stone, George and Forrest, once all parties had concurred with


the final archaeological and structures DOEs and related products in the county. The SSRs were to document the survey background and methodology; the historical context of the survey areas; the findings; products; and recommendations for further research, documentation and registration for both the archaeological and the architectural resources of each county. FEMA, in consultation with the SHPO and Tribes, identified previously undesignated or unidentified historic districts and individually eligible historic properties in these counties. Surveys were conducted in these counties to identify historic districts, to determine their boundaries and the significance of historic properties in those districts and any individually eligible properties outside of the newly identified districts. FEMA then produced an inventory of those properties.

The GIS staff prepared supporting documentation for these reports, including comprehensive lists of the surveyed properties keyed to survey maps illustrating the historic properties. FEMA submitted the Drafts of these reports to the SHPO and THPO for review and comment. FEMA staff utilized their comments and any requested changes to produce the Final Standard Survey Report for each county. The Standard Survey Reports are concise technical documents submitted to the SHPO and THPO summarizing accomplishments of agreed upon 2PA archaeological and structural surveys in each county. The SSRs followed the format indicated in Appendix E of the 2PA: Volume I. for each county contained the Archaeological Survey Report and Volume II. for each county contained the Architectural Survey Report.

Structures MRIFs/DOEs Context Statements

FEMA’s structures staff completed MRIFs, DOEs and Context Statements for the historic districts and individual structures as agreed with by the SHPO. Final versions of these products were sent to the SHPO for concurrence as completed.

Hancock County Archaeological Survey Findings

More than 130 archaeological sites were recorded in Hancock County prior to Hurricane Katrina, but few large-scale surveys or intensive excavations had taken place in the greater part of the county. Consequently, only seven sites in the county were listed in the NRHP. Another 26 sites were eligible or potentially eligible for the NRHP, 37 sites were ineligible for the NRHP, and the status of 64 sites remained unknown or unevaluated. MDAH designated two archaeological sites as Mississippi Landmarks.

As of January 2016, there are more than 200 sites in the MDAH sites database for Hancock County. Although none of these new sites have been added to the NRHP, most of them have been evaluated and classified as either eligible or ineligible.

Archaeologists proposed work at 19 locations in Hancock County, centered primarily in the southeastern part of the county. Fieldwork took place at 15 of the 19 proposed survey areas. Lack of access prevented work at three of the locations and an inability to obtain remote sensing equipment precluded work at another survey area. In addition, archaeologists conducted


background research and completed a report detailing the investigations for each of the 19 survey areas. Findings at the survey areas were broad in scope, covering numerous types of prehistoric and historic occupations in Hancock County.

Bay St. Louis

In Bay St. Louis, archaeologists completed fieldwork in six of the eight proposed survey areas. Attempts were made to locate a reported early French Garrison, War of 1812-related encampments and magazines and an early hotel. Despite the lack of success recovering physical evidence of the early military and tourism history of the area, archaeologists recorded six new sites and revisited three previously recorded sites during fieldwork in Bay St. Louis.

Among the six newly recorded sites in Bay St. Louis were post-Colonial historic sites with remains ranging from domestic artifacts associated with day-to-day life to industrial materials related to blacksmithing and the early timber industry. Archaeologists found intact historic midden deposits and features overlain by modern development at one newly discovered site. Materials recovered from this site span the 19th and early 20th centuries and are associated with a residential/medical building as well as its related outbuildings such as the kitchen. This site was recommended as eligible to the NRHP.

Another newly recorded site was associated with the principal builder of early historic structures and reportedly, the architect of Bay St. Louis’ first citywide water system built in the late 19th century. Of special interest, archaeologists recovered several artifacts likely related to this water transport system. The site was recommended to be potentially eligible for inclusion in the NRHP as evidence of one of the earliest public water systems in the region. Two of the newly recorded sites in Bay St. Louis were deemed ineligible for the NRHP; and because of limited access, two other new sites remained unevaluated.

As noted, archaeologists revisited three previously recorded sites during fieldwork in Bay St. Louis. One of the revisited sites contained prehistoric deposits from the early to late Woodland period in the form of a large village and mound site occupied between 100 B.C. and A.D. 800. Archaeologists determined that despite impacts from Hurricane Katrina and subsequent debris removal missions, intact deposits still exist at the site and therefore it remained eligible for the NRHP. No evidence of another revisited site could be located and so its status was revised to ineligible. The third site in Bay St. Louis revisited by archaeologists remained unevaluated because of limited access.

Historic Bottle Bases from a site in Hancock County (FEMA photos 2012).


Diamondhead

Archaeologists completed fieldwork in all four of the proposed survey areas in Diamondhead. The four survey areas centered around five previously recorded sites and one high probability area. The known sites had previously produced prehistoric Archaic – Mississippian period materials, as well as historic deposits from 19th and 20th century habitations.

In the course of these investigations, archaeologists recorded three previously unknown sites in Diamondhead. One of the sites is a multi-component site that consisted of post-Archaic and 19th through 20th century historic occupations; the other two sites are scatters of prehistoric and historic materials. All of these sites are potentially eligible for the NRHP.

Two of the five known sites in Diamondhead could not be evaluated because of limited rights-of-entry and construction of a bulkhead; a house destroyed a third site. These sites remained ineligible for the NRHP. Archaeologists recovered no materials from areas associated with the fourth site revisit, however, access was restricted to some parcels of the site. This site remained potentially eligible for the NRHP. The fifth previously recorded site examined by archaeologists included one of the very few mound sites in Hancock County. Although no artifacts were recovered from the mound itself, archaeologists identified intact mound construction stages and possible surfaces associated with prehistoric occupations. Archaeologists also recovered several ceramic sherds and a possible feature in the area around the mound. The evidence led archaeologists to recommend the site’s status be changed from potentially eligible to eligible for the NRHP.

Kiln

Investigations in Kiln centered around five previously known sites that ranged from the Paleoindian to the early 20th century. In order to further our knowledge of the timbering industry in south Mississippi, one unlisted historic sawmill was also chosen. Archaeologists completed fieldwork in three of the four proposed survey areas, recording two new sites and revisiting four previously recorded sites. Investigators encountered primarily 19th and 20th century historic remains associated with these sites.

The two new sites are related to an early 20th century sawmill and its ancillary buildings. Both sites were heavily disturbed by modern development such as construction, land leveling and logging, as well as Hurricane Katrina and subsequent debris removal. However, an extant charcoal kiln dating to the late 1800s-early 1900s and another unidentified circular structure near the standing kiln were still present within the boundary of the sawmill site. The site associated with the standing kiln was recommended as eligible for the NRHP. The second site was likely made up of redeposited artifacts from the former site, therefore, it was recommended as ineligible for the NRHP.

Fieldwork at two of the previously recorded sites recovered a limited number of historic artifacts. However, these sites could not be completely evaluated because of restricted access. Following


previous investigations, the status of the sites remained ineligible and potentially eligible for the NRHP.

Two of the previously known sites had never been evaluated for the NRHP. Investigations concluded that one site consisted of an extremely limited 19th century historic scatter. FEMA was unable to completely delineate and assess the site because of the extremely wet conditions. Therefore, this site is recommended as potentially eligible for the NRHP. The other site could not be tested in the course of this survey because it was inundated by the floodwaters of the Jourdan River and an adjacent oxbow lake, this site remains unevaluated for the NRHP.

Kaolin Pipe Stems and Bowl (A.D. 1710-1800) from a site in Hancock County (FEMA photo 2012).

Waveland

Finally, archaeologists completed fieldwork in two of the three proposed survey areas in Waveland. Investigations centered on the locally famous ‘Old Pirate House,’ reports of a Mexican American War encampment and reports of an American Indian mound site. Investigators were unable to conduct work at the Old Pirate House and were unable to find any evidence of a Mexican War encampment or the purported mound. In the process of searching for these sites, however, researchers recorded one previously unknown site with materials from the Late Woodland period as well as materials from 18th – 20th century historic habitations. This site was recommended as potentially eligible for the NRHP.

FEMA received SHPO concurrence on the Hancock County Standard Survey Report, Volume I: Archaeological Survey on October 10, 2012.

Architectural Survey Findings

The Mississippi Department of Archives and History began surveying historic properties in Hancock County in the 1970s. The first group of individual buildings and districts were listed in 1980 under the Bay St. Louis Multiple Resource Area. MDAH designated the first Mississippi Landmarks in the county in 1983. By 2005, Hancock County enjoyed a rich diversity of known cultural resources. There were four NRHP historic districts with 721 structures, seven NRHP individual properties (one of which is a National Historic Landmark) and eight Mississippi


Landmarks. The current MDAH resource inventory for Hancock County lists over 1100 properties. Some of these meet the age criteria, but have not been officially surveyed for NRHP eligibility.

As part of the survey and documentation project in Hancock County, MRIFs were completed for a total of 1,043 resources. This figure includes individual resources, and contributing and noncontributing resources in historic districts. The majority of these resources are residential structures, of which there are 937. For the most part, the non-residential resources are commercial buildings, worship facilities, or educational institutions.

FEMA re-evaluated the historic district boundaries of the four NRHD described in the pre-storm Multiple Resource Area (MRA) nomination, Historic Resources of Bay St. Louis (Partial Inventory Historic and Architectural Sites), which was certified by the NPS in 1980. Those four districts included: the Beach Boulevard Historic District, the Washington Street Historic District, the Sycamore Street Historic District and the Main Street Historic District.

The Beach Boulevard NRHD was the largest of the four districts and encompassed 690 buildings and 362.5 acres, including a nearly two-mile strip of Beach Boulevard as well as most of the old central business core and surrounding residential neighborhood. It contained a unique collection of significant architecture dating from 1790 through the 1940s. Vernacular, Greek Revival, Queen Anne, Colonial Revival, Bungalow and Mission styled structures were all a part of the collection. The Beach Boulevard Historic District experienced the heaviest loss of all of the Mississippi coastal districts from Hurricane Katrina. Over 30 percent of the buildings were destroyed, with the worst damage occurring on Beach Boulevard, the first blocks to the west of St. Louis Bay in the area south of Main Street and in the northern section of the district. On Beach Boulevard, 53 houses and businesses were destroyed; only 17 historic structures stand today.

100 Block of Carroll Avenue Old Bay St. Louis National Register Historic District (FEMA photo 2013).


FEMA recommended, with SHPO concurrence, the delisting of the Beach Boulevard NRHD. The Old Bay St. Louis NRHD, which represented the rigorous reassessment of the city’s historic resources by FEMA in the aftermath of Hurricane Katrina was listed in the NRHP in 2010 and includes extant sections of the Beach Boulevard NRHD as well as a large residential area to the west of the old district’s boundaries.

Other FEMA recommendations concurred with by the SHPO included: the delisting of the Washington Street NRHD, because the western expansion of the Old Bay St. Louis NRHD absorbed this historic district; the delisting of the Sycamore Street NRHD because of the loss of historic resources over the 30-year period since the district was listed; and a small expansion of the Main Street NRHD.

Newly Identified National Register Eligible

FEMA determined with SHPO concurrence that the only newly identified National Register Eligible historic district in Hancock County is the Proposed Jeff Davis Avenue NRHD.

Properties representative of the Proposed Jeff Davis NRHP Eligible Historic District. Clockwise from upper left: 500 Nicholson Avenue, Galleried Center Hall Cottage, ca.1800, 705 Nicholson Avenue, Craftsman Gable-Front bungalow, built between 1920 and 1930, 402 Jeff Davis Avenue, Minimal Traditional, 1940, 621 St. Joseph Street, and a Vernacular Bungalow, ca.1920 (FEMA photos 2013).


Hancock County had seven properties individually listed in the NRHP prior to Hurricane Katrina. They were all located in Bay St. Louis. Only three of those properties were able to withstand the ravages of Katrina. FEMA also determined with SHPO concurrence that there are 34 newly identified properties eligible to be individually listed in the NRHP in Hancock County. Four of these properties are in Bay St. Louis, 12 in Waveland, 10 in Kiln, three in Pearlington, two in Crane Creek, two in Sellers and one in Leetown.

FEMA received SHPO concurrence on the Hancock County Standard Survey Report, Volume II: Standing Structures on October 12, 2012.

Harrison County Archaeological Survey Findings

Prior to Hurricane Katrina, 550 archaeological sites were recorded in Harrison County, but few large-scale surveys or intensive excavations had taken place in the greater part of the county. Consequently, only four sites in the county were listed in the NRHP. Another 38 sites were eligible or potentially eligible for the NRHP, 355 sites were ineligible for the NRHP and the status of 142 sites remained unknown or unevaluated. There are four Historic Native American sites and 192 Historic sites in Harrison County. There are no archaeological sites designated as Mississippi Landmarks in Harrison County. While written documents contribute to most of the historical record between 1699 and 1969, archaeology still plays an important role in interpreting events.

As of January 2015, there are 627 sites in the MDAH sites database for Harrison County. There have been no additional Harrison County archaeological sites listed in the NRHP since Katrina; the same four remain. Another 43 sites are eligible or potentially eligible for the NRHP, 409 sites are ineligible for the NRHP and the status of 158 sites remains unknown or unevaluated.

Archaeologists completed Phase I archaeological survey work at four locations throughout Harrison County. One consideration for the low number of surveys was the presence of the DeSoto National Forest in the northeastern portion of the county. As the survey goals of the 2PA included areas in low-lying river basins that are often underrepresented in the archaeological record, survey locations included four tracts in the Wolf River Drainage Area. The work involved reconnaissance archaeological surveys to locate new sites with investigations following the floodplain to the river uplands. Findings at the survey areas were broad in scope, covering numerous types of prehistoric and historic occupations in Harrison County. FEMA also completed Phase II intensive surveys at two locations, the Cedar Lake Island site complex in the Tchoutacabouffa River/Tuxachanie Creek Drainage area and at the Popp’s Ferry Complex in the Old Fort Bayou/Turkey Creek Drainage area.

Wolf River Drainage Area

FEMA archaeologists completed reconnaissance surveys at four locations along the Wolf River, labeled as Wolf River 1- 4 from west to east. The survey strategy included dividing the tracts of


100 acres or more into a grid of shovel tests in 30 - meter intervals, and then further dividing these into numbered “blocks” of 25 shovel tests. These grids were then subjected to a random number generator that chose a sample of blocks to be surveyed. The total survey acreage averaged approximately 60 acres of the particular tract. Archaeologists recorded three new sites in Area 1, two new sites in Area 2, three new sites in Area 3, and one new site in Area 4. Only one of the newly recorded sites was considered eligible for listing in the NRHP.

A sampling of the variety of historic bottles collected from excavations in Harrison County (FEMA photos 2013).

Tuxachanie Creek/Tchoutacabouffa River Drainage

FEMA completed a combined Phase I/Phase II archaeological survey on Cedar Lake Island, currently held in conservation status by the Land Trust for the Mississippi Coastal Plain. Cedar Lake Island was the site of a sawmill owned by L.N. Dantzler in the early 20th century. In addition to work at the standing remains of the mill itself, archaeologists recorded several adjacent sites such as the original workers’ quarters and the site of the general store. An additional survey in the river adjacent to the island recorded three new shipwrecks. All of the resources recorded near Cedar Lake Island are considered eligible for listing in the NRHP.

Old Fort Bayou/Turkey Creek Drainage

FEMA conducted an intensive Phase II survey of the Popp’s Ferry site complex near the Popp’s Ferry Bridge. Three archaeological sites, including one listed as eligible for the NRHP, were located in the area. Archaeologists discovered that the eligible site was totally destroyed during the construction of the bridge. Additionally, the remaining two sites were disturbed by


construction and through post-Katrina debris removal. None of the sites are eligible for listing in the NRHP.

FEMA received SHPO concurrence on the Harrison County Standard Survey Report Volume I: Archaeological Survey on September 3, 2013.


The Mississippi Department of Archives and History began surveying historic properties in Harrison County in the 1970s. The first building listed was Fort Massachusetts on Ship Island in Gulfport in 1971. The first historic district was Scenic Drive in Pass Christian, listed in the NRHP in 1979. MDAH designated the first Mississippi Landmark in the county in 1984, the Saenger Theater. In 2005, Harrison County enjoyed a rich diversity of known cultural resources. There were six NRHP historic districts with 334 resources, 38 NRHP individually listed properties (one of which is a National Historic Landmark – Beauvoir) and 48 Mississippi Landmarks.

As of January 2016, there were 16 NRHP historic districts and over 2,068 properties in the MDAH resource inventory for Harrison County.

As part of the survey project in Harrison County, 2,808 resources were documented. This figure includes individual resources, and contributing and noncontributing resources in historic districts. The majority are residential structures, of which there are 2,485. Most of the residential buildings are single family dwellings. The non-residential resources mainly include commercial buildings, educational institutions, government buildings, and worship facilities.

Pre-Katrina National Register Historic Districts

Harrison County had six National Register Historic Districts, 38 structures and one National Historic Landmark listed in the National Register prior to Hurricane Katrina. The six districts included: the Biloxi Downtown Historic District, the West Beach Historic District, the West Central Historic District and the Biloxi Veterans Administration Medical Center Historic District all in Biloxi; the Harbor Square Historic District in Gulfport; and the Scenic Drive Historic District in Pass Christian. In consultation with the SHPO, FEMA re-evaluated four of Harrison County’s pre-Katrina historic districts to assist the SHPO in determining if these districts were still eligible for listing in the NRHP or if any adjustments to their boundaries were required. Those four historic districts included: Biloxi Downtown; West Beach; West Central; and Scenic Drive. These districts were then surveyed, and Determinations of Eligibility were prepared.

FEMA did not re-evaluate the Biloxi Veterans Administration Medical Center Historic District because other federal agency’s facilities are outside of FEMA’s scope of work. Nor did FEMA re-evaluate the Harbor Square Historic District in Gulfport. This work was done by the SHPO in coordination with local stakeholders.


Post-Katrina Revised National Register Historic Districts

FEMA suggested changes to the four historic districts it reviewed. These suggested changes resulted in revised districts being listed in the National Register for the Biloxi Downtown Boundary Increase Historic District and the West Central Boundary Increase Historic District. The SHPO concurred with FEMA’s recommendations on the Proposed West Beach Historic District Boundary Increase in Biloxi and the Proposed Revised Scenic Drive Historic District in Pass Christian and further SHPO actions are still pending.

Newly Identified Historic Districts

FEMA, in consultation with the SHPO, identified, surveyed and documented 19 previously unidentified historic districts in Harrison County.

Seven of the previously unidentified districts are located in Biloxi and they are: East Howard Avenue; Fayard Street; Lameuse Street; Main Street; Our Mother of Sorrows; Reynoir Street; and Upper West Central - Proposed Historic Districts.

Ten of the previously unidentified historic districts are located in Gulfport and include: Broadmoor Place; Central Gulfport; Commerce Street; Forest Heights; Gulf Gardens; Handsboro; Second Street; Soria City; Southwest Gulfport; and The Quarters - Proposed Historic Districts.

800 Commerce Street, left and 602 Commerce Street,right, Proposed Commerce Street National Register Historic District, Gulfport (FEMA photos 2015).

Two newly identified districts are located in Long Beach: the Proposed Beach Park Place Historic District and the Proposed University of Southern Mississippi (USM) at Gulf Park Campus Historic District.

These newly identified districts represent a broad range of architectural and historical associations. As of the June 2016, nine of these previously unidentified proposed historic districts have been listed in the National Register. These nine are: East Howard Avenue;


Lameuse Street; Reynoir Street; and the Upper West Central Historic Districts, all in Biloxi; and the Broadmoor Place, Central Gulfport, Second Street, Soria City and Southwest Gulfport Historic Districts in Gulfport.

Newly Identified National Register Individually Eligible Structures

FEMA determined with SHPO concurrence that there are 55 newly identified properties individually eligible for listing in the NRHP in Harrison County. Inventory forms and DOEs were prepared for each of the eligible properties. Two of these properties are in Pass Christian; one in Long Beach; seven in Gulfport; and 47 in Biloxi.

FEMA received SHPO concurrence on the Harrison County Standard Survey Report, Volume II: Architecture on June 16, 2015.

Jackson County Archaeological Survey Findings

Prior to Hurricane Katrina, 238 archaeological sites were recorded in Jackson County, but few large-scale surveys or intensive excavations had taken place in the greater part of the county. Consequently, only four sites in the county were listed in the NRHP. Another 37 sites were considered eligible or potentially eligible for the NRHP, 69 sites were deemed ineligible for the NRHP and the status of 128 sites remained unknown or unevaluated. MDAH designated two archaeological sites as Mississippi Landmarks.

As of November 2015 there are more than 299 sites in the MDAH sites database for Jackson County. No sites have been listed in the NRHP since 1999. Fifty sites have been evaluated and classified eligible for inclusion in the NRHP, 92 are considered ineligible, and the remaining 153 are considered to be ineligible for inclusion in the NRHP.

Projectile points and prehistoric ceramic recovered during site excavations at Survey Area 9 (FEMA photo 2015).

Archaeologists conducted work at 16 locations throughout Jackson County. Seven Phase I- Reconnaissance Surveys and nine Phase II-Intensive Surveys were completed. In addition, archaeologists conducted background research and completed a report for each of the survey areas detailing the investigations and results. Cultural resources identified in the survey areas


were broad in scope, covering numerous types of prehistoric and historic occupations in Jackson County.

FEMA received SHPO concurrence on the Jackson County Standard Survey Report, Volume I: Archaeological Survey on October 5, 2015.


The Mississippi Department of Archives and History began surveying historic properties in Jackson County in the 1970s. The first building listed was Old Spanish Fort (de la Pointe-Krebs House) in Pascagoula in 1971. The first historic district was Front Street in Pascagoula, listed in May 1984. MDAH designated the first Mississippi Landmarks in the county in 1984. By 2005, Jackson County enjoyed a rich diversity of known cultural resources. There were nine NRHP historic districts with 204 resources, 57 NRHP individual properties and 17 Mississippi Landmarks.

As of January 2015, there were 12 historic districts listed in the NRHP with more than 1140 resources, 53 NRHP individually listed properties and 17 Mississippi Landmarks.

As part of the survey project in Jackson County, 1,359 resources were documented. This figure includes individual resources, and contributing and noncontributing resources in historic districts. The majority of these resources are residential structures, of which there are 1,179. Most of the residential buildings are single family dwellings. The non-residential resources mainly include commercial buildings, educational institutions, government buildings, and worship facilities.

The nine historic districts prior to Hurricane Katrina included: Old Ocean Springs; Marble Springs; Indian Springs; Lover’s Lane; and Sullivan-Charnley (all part of the Ocean Springs Multiple Resource Area listing); Shearwater Historic District in Ocean Springs, part of the Walter Anderson thematic listing; Krebsville and Orange Avenue Historic Districts (part of the Pascagoula Multiple Property Submission); and the Front Street Historic District in Pascagoula. In consultation with the SHPO, FEMA re-evaluated Jackson County’s pre-Katrina historic districts to assist the SHPO in determining if these districts were still eligible for listing in the NRHP. These districts, with the exception of the Lover’s Lane District, were surveyed, and Determinations of Eligibility prepared. The Lover’s Lane Historic District was evaluated based on available information after permission to conduct an on-site field survey of the heavily wooded neighborhood could not be obtained.

Post-Katrina Revised National Register Districts

FEMA recommended no changes to two of the nine pre- Katrina historic districts: the Indian Springs and Lover’s Lane National Register Historic Districts. FEMA recommended revisions to the seven remaining pre-Katrina National Register Historic Districts: Old Ocean Springs; Marble Springs; Shearwater and Sullivan Charnley in Ocean Springs; Krebsville; Orange Avenue and the Front Street Historic Districts in Pascagoula. As of June 2016, these revised districts were listed in the National Register: the Old Ocean Springs (Boundary Increase)


Historic District; the Krebsville Boundary Increase No.1. Historic District; and the Orange Avenue Boundary Increase No. 1. Historic District.

Jackson County had 57 individually listed National Register properties prior to Hurricane Katrina. Katrina destroyed seven of these properties and another property was destroyed by other means. Still extant are 49 pre-Katrina individually listed properties. In coordination with the SHPO, FEMA resurveyed all 49 properties either individually or as part of historic districts. They remain intact and continue to be eligible for NRHP listing.

Newly Identified Historic Districts

FEMA, in consultation with the SHPO, identified, surveyed and documented three previously unidentified or undesignated historic districts in Pascagoula: the International Shipbuilding Company Employee Housing Historic District; and the Proposed Buena Vista and Pascagoula Street Historic Districts. FEMA in consultation with the SHPO, also identified, surveyed and documented two previously unidentified or undesignated historic districts in the city of Moss Point in Jackson County. These two districts are the Moss Point Historic District and the Proposed Escatawpa Historic District. These newly identified historic districts represent a broad range of architectural and historical associations. As of June 2016, two of the five previously unidentified proposed historic districts have been listed on the National Register. These two are the International Shipbuilding Company Employee Housing Historic District and the Moss Point Historic District.

5213 Griffin Street, left and 3807 Dantzler Street, right, Moss Point National Register Historic District. (FEMA photos 2015),

Newly Identified National Register Individually Eligible Properties

FEMA identified 117 individual properties in Jackson County that were potentially eligible for listing on the NRHP. Upon further review and analysis FEMA determined, with SHPO concurrence, that 38 of the 115 properties appeared to meet the criteria for listing on the NRHP. Inventory forms and DOEs were prepared for each of the eligible properties; 17 of the properties


are located within the cities of Pascagoula, Moss Point, and Ocean Springs; 21 are in historically small communities or rural areas.

Two of the properties, the house of the L&N Railroad creosote plant supervisor and the Henry Gautier House (Twelve Oaks), have been listed in the NRHP as contributing resources in the Gautier Beachfront Historic District (2013). However, because of their significance, architecturally and historically, FEMA has recommended and the SHPO has concurred that these properties are eligible to be individually listed in the NRHP.

FEMA received SHPO concurrence on the Jackson County Standard Survey Report, Volume II: Architecture on March 10, 2015.

Stone County Archaeological Survey Findings

Approximately 300 archaeological sites were recorded in Stone County prior to Hurricane Katrina in 2005. The majority of these sites are located in the DeSoto National Forest, which covers approximately two- thirds of the county. Only four of these sites were considered eligible for listing in the National Register and no archaeological sites are listed in the NRHP. No archaeological sites have been designated as Mississippi Landmarks in Stone County.

Due to the presence of the forest, Stone County was selected for one archaeological reconnaissance survey for the 2PA. The 2015 survey of Stone Area I identified five new archaeological sites, four of which are eligible for the NRHP. FEMA recommended one site as ineligible for inclusion to the NRHP due to disturbance. FEMA further recommended four sites eligible for listing in the NRHP under Criterion D, in that they are likely to yield information important to the understanding of prehistory.

FEMA received SHPO concurrence on the Stone County Standard Survey Report Volume I: Archaeological Survey on December 21, 2015.


As part of the survey project in Stone County, 67 resources were documented. This figure includes individual resources, and contributing and noncontributing resources in potential historic districts. Twenty-nine of these resources are commercial buildings, 21 are single family dwellings, and eight are educational buildings. The remaining resources include churches, government buildings, a clubhouse, a hotel, a railroad depot, and a service station.

Potential Historic Districts The following potential historic districts were surveyed by FEMA in consultation with the SHPO. The areas surveyed included two distinct groupings of historic structures in Stone County: Downtown Wiggins and the Mississippi Gulf Coast Community College (MGCCC) Campus at Perkinston. Further research is recommended to determine whether these areas meet the criteria for listing in the NRHP.


From left to right, east side of N. 1st Street, north of E. Pine Avenue; and north side of E. Pine Avenue, east of 1st

Street, Wiggins, Stone County, (FEMA photos 2014).


FEMA, with SHPO concurrence, identified 35 properties in Stone County that are potentially eligible for being individually listed in the NRHP. Inventory forms were prepared for all properties. Twenty-five of the properties were within the city of Wiggins; the remaining resources were in historically small communities or rural areas. FEMA recommends further investigation of these properties and the application of the National Register criteria to determine if they are eligible for listing in the NRHP.

FEMA received SHPO concurrence on the Stone County Standard Survey Report, Volume II: Architecture on October 16, 2015.

Pearl River County Archaeological Survey Findings

A total of 368 archaeological sites were previously recorded in Pearl River County prior to Hurricane Katrina. Of these, one site is listed in the NRHP, while an additional twelve sites are considered eligible for listing. Approximately 256 of the recorded sites are not yet evaluated for the NRHP. To date, 464 sites are recorded across the county. Few systematic archaeological surveys have been conducted in Pearl River County.

Cultural investigations in Pearl River County included a single archaeological reconnaissance survey around the Shaw Homestead, located west of the Wolf River along Barth Road. FEMA surveyed a total of 30 acres around this turn of the century farmstead, which is considered eligible for listing in the National Register. Additionally, archaeologists identified one small prehistoric site during the survey, but the site was ineligible for listing in the NRHP.


FEMA received SHPO concurrence on the Pearl River County Standard Survey Report Volume I: Archaeological Survey on October 10, 2015.


As part of the survey project in Pearl River County, 106 resources were documented. This figure includes individual resources, and contributing and noncontributing resources in historic districts. The majority of these resources are single family residential structures, of which there are 67. Other residential structures include four buildings that were constructed as dormitories. The non-residential resources mainly include commercial buildings, educational institutions, government buildings, and worship facilities.

Potential Historic Districts

The following potential historic districts were surveyed by FEMA in consultation with the SHPO. The areas surveyed included three distinct groupings of historic structures in Poplarville: North Poplarville; South Main Street; and the Pearl River Community College Campus. Further research is recommended to determine whether these areas meet the criteria for listing in the NRHP.

From left to right, 316 Hickory Street and 303 N. Main Street, North Poplarville Historic District, Pearl River County (FEMA photos 2014).


Poplarville U.S. Post Office (301 S Main Street), left and Pearl River County Courthouse, right with monument to Confederate and World War I veterans and women of the South (200 S. Main Street), South Main Street Historic District, Pearl River County (FEMA photos 2014).

From left to right, Huff Hall and Shivers Gym (101 U.S. Highway 11 North), Pearl River Community College Historic District, Pearl River County (FEMA photos 2014).


FEMA, with SHPO concurrence, identified 62 properties in Pearl River County that are potentially eligible for being individually listed in the NRHP. MRIFs were prepared for all of these properties. Ten of the properties are within the town of Carriere; 26 properties are in or near Picayune; 20 are in or near Poplarville and six are in historically small communities or rural areas. FEMA recommends further investigation of these properties and the application of the National Register criteria to determine whether they are eligible for listing.


FEMA received SHPO concurrence on the Pearl River County Standard Survey Report, Volume II: Architecture on August 18, 2015.

George County Archaeological Survey Findings

George County had approximately 125 archaeological sites recorded prior to Hurricane Katrina. One site, a shell midden, was listed in the National Register in 1992. An additional nine sites are listed as eligible for the NRHP. To date, George County has approximately 200 archaeological sites recorded, the majority of which are either along one of the numerous oil and gas pipelines that cross the county, or within the Pascagoula River State Wildlife Management Area in the western portion of the county.

George County was selected for two Phase I Reconnaissance surveys for the Secondary Programmatic Agreement. FEMA conducted both surveys on land currently owned by the Nature Conservancy, the Deaton Nature Preserve and the Harvell and Pellerree Jackson Sandhills Preserve. FEMA archaeologists recorded two new sites, one in each survey area. One site is considered eligible for the NRHP.

FEMA received SHPO concurrence on the George County Standard Survey Report Volume I: Archaeological Survey on October 10, 2015.



No potential historic districts were identified in George County as part of the MDAH/FEMA survey.


FEMA identified 57 individually eligible properties in George County with SHPO concurrence. MRIFs forms were prepared for all of these properties; 5 of the properties are within the area of Agricola; 2 properties are in or near Basin; 3 are around Earlville, 1 was in Harleston, 4 are in or near Howell, 35 are in or near Lucedale, and 6 are around Merrill. The majority of these are single family residential structures, of which there are 35. Non-residential resources include educational institutions, commercial and government buildings, and worship facilities. One bridge, a Parker through truss, was included in the survey.

All, with the exception of Lucedale, are in historically small communities or rural areas. FEMA recommends further investigation of these properties and the application of the National Register criteria to determine their eligibility.

FEMA received SHPO concurrence on the George County Standard Survey Report, Volume II: Architecture on October 16, 2015.


Forrest County Archaeological Survey Findings

Based on the scope of work consultation with MDAH in 2012, FEMA did not conduct any fieldwork on archaeological sites in Forrest County. The presence of the DeSoto National Forest in the southern and eastern portions of the county, combined with the presence of the University of Southern Mississippi’s robust archaeology program, ensured that many archaeological surveys have been completed in this county. FEMA archaeologists, instead, completed a literature review of previously recorded sites, mapped their locations, and provided a comprehensive inventory of site types by chronological period. Most notably, FEMA identified forty sites considered eligible for listing in the NRHP, but not yet nominated or listed. Additionally, FEMA conducted extensive archival research and developed a cultural context unique to Forrest County. These two products will allow for rapid identification of previously recorded eligible resources and provide themes for future research should another disaster impact Forrest County.

FEMA received SHPO concurrence on the Forrest County Standard Survey Report Volume I: Archaeological Survey on December 21, 2015.


The Forrest County survey supplements existing documentation of historic properties in Hattiesburg. FEMA and the SHPO agreed that the current project would focus on potentially eligible individual properties outside existing National Register and local historic district boundaries; and that previously registered individual properties would not be surveyed. The agencies further agreed that FEMA would identify study areas in Hattiesburg to provide opportunities for future survey projects and, potentially, designation of historic districts. Among survey goals that were identified by the SHPO were: the delineation of study areas related to the post-World War II era; and the identification of individual properties associated with the Civil Rights era. Generally, properties within the study areas were not surveyed, except in two study areas associated with historically black neighborhoods, where some properties related to the Civil Rights movement were identified. In all study areas, research was conducted to determine potential areas of significance.


The following study areas were identified by FEMA in consultation with the SHPO. The areas include eight distinct groupings of historic structures in Hattiesburg. Further research is recommended to determine whether these areas meet the criteria for listing in the NRHP as historic districts. These areas include: Kamper Park East; Pineview Drive; West Suburban; Dabbs-Willis; Dearborne-Broad; Mobile Street; Dahmer Park; and Pinehills Drive/Hattiesburg Homesteads.


Streetscape views of 205,203, and 201 South 14th Avenue, left and 1401, 1403, and 1405 Concart Street, Study Area 1: Kamper Park East, Forrest County,(FEMA photos 2014)

From left to right, streetscape views of 212 and 211 Cypress Avenue; and 305 (Antioch Baptist Church), 307, and 309 Fredna Avenue, Study Area 4: Dabbs-Willis, Forrest County,(FEMA photos 2014)

Newly Identified National Register Individually Eligible Structures

FEMA identified 38 potentially eligible individual properties in Forrest County with SHPO concurrence. MRIFs were prepared for all of these properties. The largest category of these resources are (or were originally) residential structures, of which there are 13. Additionally, 12 churches were surveyed. Other non-residential resources mainly included commercial buildings, educational institutions, government buildings, and civic buildings. One bridge, a concrete rigid frame structure, was included in the survey.

Twenty-four of the properties were within the Hattiesburg city limits; 10 properties were in Petal; 2 were in Palmers Crossing, and 2 were in Rawls Springs. FEMA recommends further


investigation of these properties and application of the National Register criteria to determine whether they are eligible for listing in the NRHP.

FEMA received SHPO concurrence on the Forrest County Standard Survey Report, Volume II: Architecture on January 6, 2016.

Survey Data Publications In order to promote and facilitate public understanding of the historic properties surveys, the 2PA under Stipulation IX.C., required FEMA to develop publications documenting the historic properties for each of the three lower (coastal) counties of Hancock, Harrison and Jackson, once they received concurrence on the final copy of the County Survey Reports for these counties. Similar to the Standard Survey Reports, the Survey Data Publications (SDP) included data from the below ground archaeological surveys and the aboveground structures and integrated maps and photos. The SDPs included a background of the field survey and data collection survey strategies employed during FEMA’s survey efforts; the history of development in these counties; examples of the surviving historic properties in each county and their significance; any newly identified archaeological properties which FEMA identified during its debris removal/demolition actions including properties that were exposed by the storm surge and describe the historic properties that were destroyed by the disaster or demolished as part of the Undertaking. They also include a description of existing historic districts and individually listed historic properties; the revised and proposed revisions to existing National Register-listed historic districts; historic properties identified by FEMA in consultation with the SHPO and determined eligible for the NRHP as historic districts and/or individually eligible historic properties. The SDPs contain photographs of representative historic properties, including streetscapes of residential, commercial and industrial areas and maps showing the boundaries and contributing and non-contributing properties in the existing and newly identified historic districts. The information in the SDPs can also be used as a tool for property owners and/or local governments involved in cultural resource preservation and historic property disaster preparedness, mitigation, response and recovery.

The drafts of the SDPs were submitted to the SHPO, THPO, 2PA signatories, local officials and interested parties for the each of the three counties. FEMA staff revised the publications (as necessary) to reflect any changes requested by the consulting parties. The documents were then submitted for final SHPO and THPO concurrence. FEMA funded the printing of 500 copies of the final version of each of the three publications as well as 100 copies on disks/per publication and all of this was delivered to the SHPO for distribution. FEMA also worked with the SHPO to ensure that these publications were prepared to be shared on the web.

FEMA received SHPO concurrence on the Hancock County SDP on May 6, 2014

FEMA received SHPO concurrence on the Harrison County SDP on February 26, 2016.

FEMA received SHPO concurrence on the Jackson County SDP on March 10, 2016.


***The 3 SDPs (Hancock, Harrison and Jackson) will be available to the public on FEMA’s Library website (https://www.fema.gov/media-library/assets/documents/119151) after October 1, 2016.

Comprehensive Report The Comprehensive Report was required by Stipulation IX.D of the 2PA. The Comprehensive Report documented FEMA’s compliance efforts to meet the Section 106 compliance requirements for historic properties that may have been affected directly or indirectly by FEMA’s disaster assistance programs including: PA (including debris removal/demolition undertakings and permanent repairs); the Hazard Mitigation Program (HMGP); and IA over a three year period, September 2005 – September 2008, following Hurricane Katrina. In addition, the report included those mission-assigned activities undertaken by the United States Army Corps of Engineers (USACE) and the United States Coast Guard (USCG) that occurred primarily during the first 10 months of operations after Katrina. FEMA’s EHP staff consulted with the SHPO and the Tribes to identify key lessons learned through FEMA’s response to Katrina and identified policy level issues that may have limited FEMA’s ability to identify alternatives that may have avoided adverse effects on historic properties.

FEMA received SHPO concurrence on the Comprehensive Report on December 27, 2012.

***The Comprehensive Report will be available to the public on FEMA’s Library website (https://www.fema.gov/media-library/assets/documents/119151) after October 1, 2016.

Historical Marker Program Across the Coastal Mississippi Counties of Hancock, Harrison and Jackson, properties of exceptional significance were destroyed by Hurricane Katrina and/or demolished as a result of subsequent Undertakings. Stipulation IX.E. Historical Marker Program of the 2PA required that FEMA, in consultation with the SHPO, identify properties of exceptional significance that were destroyed in this manner. As part of the agreement to maintain compliance with the National Historic Preservation Act, FEMA agreed to identify such properties and to work with the SHPO to install historical markers on those sites to commemorate those structures. FEMA and the SHPO identified twenty-nine such properties. Four of those properties were located in Hancock County, in Bay St. Louis; 19 of those properties were located in Harrison County; three in Pass Christian; four in Gulfport; and 12 in Biloxi. Six of those properties were located in Jackson County, in Pascagoula and were individually listed in the NRHP.

The SHPO’s staff drafted the text for all 29 markers which were reviewed and approved by local entities. Eight of the markers have a drawing/sketch of the building on one side with the historic significance noted on the other. On the 21 others, the markers contain the written information on both sides. The drawings/sketches were done under a contract with the SHPO’s office. The markers were manufactured by SEWAH Studios, Inc., whose trademarked Magnolia design has been used for state approved historical markers in Mississippi since 1951. Most of the markers




were installed in the public rights-of-way by the Mississippi Department of Transportation (MDOT). Those that were unable to be located in the public right-of-way were installed by the owners or local entities.

Brielmaier House Marker, 710 Beach Boulevard, Biloxi (FEMA photos 2014).

Historical Marker sketch of the Brielmaier House by Richard Cawthon (2014).


FEMA received SHPO concurrence on the completion of the Historical Markers Program on March 20, 2015.

Development of Hazard Mitigation Plans The 2PA required FEMA to work with MEMA and the SHPO to identify opportunities to integrate historic preservation considerations into State and local hazard mitigation plans. The 2PA incorporated Hazard Mitigation into cultural resource management through Stipulation IX.F., Development of Hazard Mitigation Plans. Stipulation IX.F has two parts, IX.F.1. Hazard Mitigation Planning and IX.F.2. Hazard Mitigation Demonstration Project.

Hazard Mitigation Planning

FEMA’s EHP staff worked with MEMA Mitigation, MDAH, and FEMA Region IV Mitigation Planning to further integrate historic preservation considerations into the State’s Hazard Mitigation Program. FEMA facilitated two conference calls with the above entities, provided a written copy of their recommendations and a marked up copy of the State of Mississippi Standard Mitigation Plan. Hazard mitigation is the responsibility of local and state governments. FEMA’s role as per the 2PA was to help identify opportunities to protect historic resources. The extent to which FEMA’s suggestions/opportunities are incorporated into the State’s Hazard Mitigation Plan is determined by MEMA Hazard Mitigation and MDAH. The submittal by FEMA’s Environmental/Historic Preservation Section of these suggestions satisfactorily fulfilled Stipulation IX.F.1. of the 2PA.

Hazard Mitigation Demonstration Project

Stipulation IX.F.2. Development of Hazard Mitigation Plans required FEMA, in consultation with SHPO, to develop a demonstration project that provided techniques for protecting historic properties from future disasters in the context of the Mississippi Gulf Coast. In accordance with that stipulation, FEMA’s Historic Preservation and Mitigation staffs drafted a report illustrating a demonstration project for the Picayune, MS City Hall Administration Building Shuttering Project. FEMA carried out this hazard mitigation demonstration project that integrated hazard mitigation measures into the restoration of a historic building, illustrating methods of increasing the resilience of historic buildings. This project also demonstrated how a previously unknown historic resource was discovered through the HMGP and the Section 106 review process and how all parties worked together to successfully implement the hazard mitigation treatment measure (wind retrofit), while maintaining the historic integrity of the facility.


The front entrance to the Picayune City Hall Administration Building constructed in 1937, top left.

“…the historic tilt-out window would not function with accordion styled shutters in place…” top right.

Chief Keith Brown, Fire Chief for the City of Picayune, demonstrates …the rails and shields…can be easily removed immediately following a wind event, left (all FEMA photos 2010).

FEMA received SHPO concurrence on the completion of the Mitigation Plan Development and the Hazard Mitigation Grant Program - City of Picayune Shuttering Demonstration Project on April 25, 2013.

Conclusion FEMA’s EHP staff has completed all of the stipulations of the 2PA which entailed the following:

• FEMA’s EHP staff surveyed seven southern Mississippi counties (Hancock, Harrison, Jackson, Pearl, Forrest, Stone, and George) impacted by Hurricane Katrina in order to identify buildings and structures potentially eligible for the NRHP. These surveys combined GIS survey and evaluation techniques, developed by the NPS, with extensive historical research to produce surveys that provide complete, easily accessed information


for future disaster response and recovery efforts. Agency staff recorded 6,077 buildings; identified 25 proposed new historic districts (10 have been listed in the National Register); and proposed boundary expansions for 11 existing districts (6 have been listed). They also resurveyed individually listed National Register buildings and identified new properties eligible for individual listing.

• FEMA’s archaeologists conducted 43 surveys, identifying 55 previously unrecorded archaeological sites and carrying out additional evaluations of 35 existing sites. The surveys included a site-testing component, designed to assess damage caused by Hurricane Katrina and by subsequent debris removal in the seven southern Mississippi counties. It also assessed the National Register eligibility of these sites. This information will support the planning and response phases of future disasters and may help avoid damage to these sites during the response and recovery phases.

• All survey information was provided to the MDAH, who will make this information available (as appropriate) to those interested in preserving historic properties or who may be interested in utilizing any historic tax credits that may be available to owners of historic buildings.

• FEMA funded the production of 29 historical markers. These markers, produced by the Mississippi SHPO, document the history and appearance of significant historic buildings on the Gulf Coast that were lost in the storm or as a result of FEMA undertakings.

• FEMA’s EHP staff wrote three Survey Data Publications for the three coastal counties. These publications were written to facilitate the public’s knowledge and understanding of the historic resources in their counties. FEMA funded the reproduction of 500 copies of these documents per county as well as 100 disks for distribution by the SHPO. These documents will be available to the public on FEMA’s library website (https://www.fema.gov/media-library/assets/documents/119151) after October 1, 2016.


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