Dam Removal and Historic Preservation

7/28/2019 Dam Removal and Historic Preservation

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$AM2EMOVALAND(ISTORIC0RESERVATION2ECONCILING$UAL/BJECTIVES

4ABLEOF#ONTENTS

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)NTRODUCTION

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2EMOVALCANBEASOLUTIONTOPROBLEMSOFUNSAFEINFRASTRUCTURE

ANDCANSTIMULATEWATERFRONTREVITALIZATIONPOSSIBLYPROVIDINGNEW

RECREATIONOPPORTUNITIESANDECONOMICDEVELOPMENT


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&OREWARD

3INCETHEEARLYSDAMREMOVALHASINCREASINGLYBECOMEALEGITIMATETOOLFORRESTORING

RIVERSANDAQUATICECOSYSTEMS2EMOVALCANBEASOLUTIONTOPROBLEMSOFUNSAFEINFRASTRUC

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TUNITIESANDECONOMICDEVELOPMENT4HE.ATIONAL0ARK3ERVICE.03n2IVERS4RAILSAND

#ONSERVATION !SSISTANCE 0ROGRAMHAS PARTNERED WITH!MERICAN 2IVERS TO HELP DEVELOP

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9ET .03 ISALSO VERY SENSITIVE TOPROTECTINGCULTURAL VALUES4HE MISSIONOF .03 ISTO

PRESERVE UNIMPAIREDNATURAL ANDCULTURAL RESOURCES FORTHE USEANDENJOYMENTOFCURRENT

ANDFUTUREGENERATIONSBOTHWITHINPARKSANDTHROUGHOUTTHECOUNTRY.03HASAROBUST

CULTURALRESOURCESPROGRAMAND ISTHEKEEPEROFTHE.ATIONAL2EGISTEROF(ISTORIC0LACES

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ANDHELPINGVISITORSRELATETHOSESTORIESTOTHEIROWNLIVES

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GRAPPLESWITHTHESEISSUESWHENITCOMESTODECISIONSSUCHASRESTORINGA#IVIL7ARERALAND

SCAPEORMAINTAININGTREECOVERTOBENElT WATER QUALITY IN THE #HESAPEAKE "AY .03 USES

ENABLINGLEGISLATIONFORSPECIlC PARKS TO GUIDE SUCH DECISIONS AS WELL AS MANAGEMENT POLI

CIESPROCEDURESFORENGAGINGTHEPUBLICINPLANNINGDECISIONSANDOTHERLAWS&ORNONPARK

LANDSTHELEGALFRAMEWORKFORADDRESSINGDECISIONSABOUTNATURALRESOURCERESTORATIONAND

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OFTHISDOCUMENTISTOPROVIDEBOTHDAMREMOVALPROPONENTSANDTHEHISTORICPRESERVATION

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PAGE

)NTRODUCTION

h(ISTORYISAGUIDETONAVIGATIONINPERILOUSTIMES(ISTORYIS

WHOWEAREANDWHYWEARETHEWAYWEAREv $AVID#-C#ULLOUGHAUTHOR

h!MERICAISAGREATSTORYANDTHEREISARIVERONEVERYPAGE

OFITv

#HARLES+URALTAUTHOR

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YOURCHILDHOOD7HETHERITISABRIDGEFARMADAMORSOMEOTHERMEMORABLELANDMARKTHEREARE

HISTORICSTRUCTURESANDPLACESACROSSTHECOUNTRYTHATHAVESPECIALSIGNIlCANCE TO THEIR COMMUNI

TIES(ISTORICPRESERVATIONLAWSWEREDEVISEDTOPROTECTCULTURALARCHAEOLOGICALANDARCHITECTURAL

SITESSTRUCTURESANDLANDSCAPESTHATARESIGNIlCANT TO OUR HERITAGE 7HILE ONE GENERALLY ENVISIONS

HOUSESCEMETERIESANDBATTLElELDS AS HAVING HISTORIC SIGNIlCANCE OTHER STRUCTURES SUCH AS DAMS

ANDBRIDGESCANBEHISTORICALLYSIGNIlCANT AND MAY RECEIVE PROTECTION IF THEIR ENGINEERING IS UNIQUE

ANDORTHEYSERVEDANIMPORTANTROLEINLOCALSTATEORNATIONALHISTORY(ISTORICPRESERVATIONAND

CONSERVATIONORGANIZATIONSOFTENPARTNERONISSUESSUCHASURBANSPRAWLANDSMARTGROWTHlNDING

WAYSTO SIMULTANEOUSLYPRESERVEOUR NATIONSHERITAGEAND NATURALENVIRONMENT !SOUR NATIONS

INFRASTRUCTURECONTINUESTOAGEANDWECOMETORECOGNIZEITSIMPACTONTHEENVIRONMENTRIVERRES

TORATIONPROJECTSCANCREATEOPPORTUNITIESFORHISTORICPRESERVATIONANDENVIRONMENTALRESTORATION

INTERESTSTOWORKTOGETHER

)NSOMECASESEFFORTSTORESTORERIVERSINVOLVEPROPOSALSFORTHEREMOVALOFDAMS!MAJORITYO

DAMSWERECONSTRUCTEDPRIORTOPASSAGEOFBOTHTHE.ATIONAL(ISTORIC0RESERVATION!CTAND

THE.ATIONAL%NVIRONMENTAL0OLICY!CTANDTHUSWEREBUILTWITHOUTTHEPROCEDURALSAFE

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GROWTHPROVIDINGPOWERFORGRISTMILLSANDINDUSTRIALCITIESMUNICIPALDRINKINGWATERANDELEC

TRICITYNOLONGERSERVETHEIRINTENDEDPURPOSECOSTLYREPAIRMAYBENEEDEDTOPREVENTTHEIRFAILURE

ANDENSURESAFETYASTHESESTRUCTURESAGE!CCORDINGTOTHE!MERICAN3OCIETYOF#IVIL%NGINEERS

ONEQUAR TEROFTHENATIONSDAMSAREOLDERTHANYEARSTHATNUMBERWILLINCREASETOPERCENTBY

THEYEAR"ECAUSEOFTHEIRDETERIORATIONANDADDITIONALDOCUMENTATIONONTHEDETRIMENTALEF

FECTSDAMSHAVEONRIVERECOSYSTEMSDAMREMOVALHASBECOMEANINCREASINGLYPRAGMATICMETHOD

FORRESTORINGNATURALRIVERFUNCTIONSANDELIMINATINGUNSAFEINFRASTRUCTURE2EMOVINGADAMCAN

PROVIDEMANYBENElTS SUCH AS ALLOWING MIGRATORY lSH SPECIES ACCESS TO HISTORIC SPAWNING GROUNDS

IMPROVING WATER QUALITY AND THE NATURAL MOVEMENT OF SEDIMENT AND OTHER NUTRIENTS AND


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REESTABLISHINGTHENATURALmOW REGIME(OWEVERRESTORINGENVIRONMENTALBALANCETOOURNATIONS

RIVERSMAYAFFECTHISTORICSTRUCTURESANDARCHAEOLOGICALSITESTRIGGERINGSTATEANDFEDERALHISTOR

ICPRESERVATIONLAWSANDINTERESTINPRESERVINGAPIECEOFLOCALHISTORYASWELLASPROVIDINGAN

OPPORTUNITYFORHISTORICDISCOVERY

$AM2EMOVAL AND(ISTORIC0RESER VATION2ECONCILING$UAL/BJECTIVESWASWRITTENBECAUSETOO

OFTENADVOCATESFORRIVERRESTORATIONTHROUGHDAMREMOVALlND THEMSELVES IN THE MIDDLE OF A PROJ

ECTANDATODDSWITHPOTENTIALPARTNERSOVERMATTERSOFHISTORICPRESERVATION$AMREMOVALPRO

PONENTSNEEDTOBETTERUNDERSTAND THEPROCESSESESTABLISHEDTOPROTECTHISTORICVALUESSOTHEY CAN

WORKMOREEFFECTIVELYINPARTNERSHIPWITHHISTORICPRESERVATIONINTERESTSTOESTABLISHANDACHIEVE

MUTUALGOALS7HILETHEHISTORIClSHERIES THAT HELPED BUILD THIS NATION FROM PROVIDING SUSTENANCE

TO7ASHINGTONSTROOPSDURINGTHE!MERICAN2EVOLUTIONTOTHEIRROLEASASACREDSPECIESTOMANY

TRIBESDESERVERECOGNITIONITISALSOIMPORTANTTORESPECTTHEROLEOFTHEDAMANDINSOMECASES

THEIMPOUNDMENTINBUILDINGLOCALCOMMUNITIESANDSOMETIMESASTHESOCIALCENTERFORATOWN

4HEPRIMARYAUDIENCESFORTHISREPORTAREDAMREMOVALPROJECTMANAGERSSUCHASSTATEAGENCIES

COMMUNITYLEADERSWATERSHEDGROUPSCONSULTANTS)TISALSOOURHOPETHATLOCALHISTORICPRESERVA

TIONSOCIETIESANDASSOCIATIONSWILLALSOlND IT USEFUL &URTHERMORE WE HOPE THAT THIS DOCUMENT

WILLHELPPARTIESINVOLVEDINSUCHENDEAVORSTOBUILDCONSTRUCTIVERELATIONSHIPSANDSUCCESSFULLY

RECONCILEPOTENTIALLYCOMPETINGOBJECTIVES

4HISREPORTBEGINSWITHAPRIMERON3ECTIONOFTHE.ATIONAL(ISTORIC0RESERVATION!CTTHEFED

ERALLAWTHATAPPLIESTOMANYPROPOSEDDAMREMOVALPROJECTS3TATEANDLOCALHISTORICPRESERVATION

LAWSMAYALSOPERTAINTOPROPOSEDDAMREMOVALPROJECTS)NMOSTCASESSTATEANDLOCALHISTORIC

PRESERVATION LAWSPARALLELTHEFEDERAL LAWAND COMPLIANCE WITHALL LEVELSOF JURISDICTION CAN BE

ACHIEVEDINASINGLEPROCESS

4HEREPORTALSOEXAMINESOPPORTUNITIESFORHISTORICPRESERVATIONANDENVIRONMENTALINTERESTSTO

PARTICIPATEINPRODUCTIVEDISCUSSIONSABOUTWHETHERAPROPOSEDDAMREMOVALCOULDADVERSELY

AFFECTHISTORICRESOURCESANDIFSOWORKTOGETHERTOIDENTIFYMETHODSFORAVOIDINGMINIMIZING

ORMITIGATINGTHEADVERSEEFFECTSOFTHEDAMREMOVALPROJECT

&INALLYTHISREPORTPROVIDESCASESTUDIESOFACTUALDAMREMOVALPROJECTSTHATHAVEADDRESSEDHISTOR

ICISSUESSEE!PPENDIX!ANDANOVERVIEWOFFEDERALSTATEANDTRIBALHISTORICPRESERVATIONLAWS

SEE!PPENDIX"7HETHERYOUAREADAMOWNERCOMMUNITYMEMBERSTATEORFEDERALAGENCYHIS

TORICALSOCIETYANADVOCATEFORRIVERRESTORATIONANDORHISTORICPRESERVATIONTHISREPORTPROVIDES

YOUWITHIMPORTANTINFORMATIONABOUTRECONCILINGTHEDUALOBJECTIVESOFDAMREMOVALANDHISTORIC

PRESERVATIONANDMAKINGTHEOFTENDIFlCULT CHOICES BETWEEN COMPELLING CASES TO RESTORE RIVERS OR

RETAINHISTORICVALUE


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3ECTIONOFTHE.ATIONAL(ISTORIC0RESERVATION!CT

)N#ONGRESSPASSEDTHE.ATIONAL(ISTORIC0RESERVATION!CT.(0!4HEINTENTAS

STATEDINTHEOPENINGSECTIONOFTHE.(0!ISTHAThTHEHISTORICALANDCULTURALFOUNDATIONS

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PROCESS TO CONSIDER THE EFFECTS OF ALL THEIR UNDERTAKINGS ON HISTORIC PROPERTIES WHETHER

THOSEPROPERTIESAREFEDERALLYOWNEDORNOT4HE!DVISORY#OUNCILON(ISTORIC0RESERVA

TION!#(0MUSTBEAFFORDEDTHEOPPORTUNITYTOCOMMENTONANYFEDERALPROJECTTHATMAY

AFFECTPROPERTIESTHATARELISTEDONORELIGIBLEFORLISTINGINTHE.ATIONAL2EGISTEROF(ISTORIC

0LACES

h4HE.ATIONAL2EGISTEROF(ISTORIC0LACESISTHE.ATIONSOFlCIAL LIST OF CULTURAL RE

SOURCESWORTHYOFPRESERVATION!UTHORIZEDUNDERTHE(ISTORIC3ITES!CTOFAND

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TIFYEVALUATEANDPROTECTHISTORICAND ARCHAEOLOGICALRESOURCES0ROPERTIESLISTEDON

THE2EGISTERINCLUDEDISTRICTSSITESBUILDINGSSTRUCTURESANDOBJECTSTHATARESIGNIl

CANTIN!MERICANHISTORYARCHITECTUREARCHAEOLOGYENGINEERINGANDCULTURE4HE.A

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ERATIONINPLANNINGANDDEVELOPMENTDECISIONS

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APRIVATEPROPERTYORTHEMAJORITYOFPRIVATEOWNERSOFAPROPERTYORDISTRICTWITHMULTIPLE


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OWNERSOBJECTSTOTHENOMINATIONTHEHISTORICPROPERTYCANNOTBELISTEDINTHE.ATIONAL

2EGISTER4HE3(0/4(0/MAYHOWEVERFORWARDTHENOMINATIONTOTHE.03FORAFORMAL

DETERMINATIONOFELIGIBILITY

-OST STATESAND MANYCOUNTIES AND MUNICIPAL GOVERNMENTSALSO MAINTAINREGISTERS OF

PROPERTIESTHATARESIGNIlCANT TO THEIR HISTORY

)TISIMPORTANTTONOTETHATTHEAPPLICABLEREGULATIONSAREDESIGNEDTOPROVIDEAFRAMEWORK

FORPROBLEMSOLVING3ECTIONREGULATIONSDONOTMANDATEANOUTCOMETHEYPRESCRIBE

APROCESS)FITISDETERMINEDTHATADAMSREMOVALMAYHAVEANADVERSEEFFECTONHISTORIC

PROPERTIES THE 3ECTION PROCESS REQUIRES THE CONSIDERATION OFALTER NATIVEWAYSTO AC

COMPLISHTHEGOALSOFTHEPROPOSEDPROJECTEGlSH PASSAGE PUBLIC SAFETY ELIMINATION

OFLIABILITY WATERQUALITY IMPROVEMENTS IN CONSULTATIONWITH THE 3TATE4RIBAL(ISTORIC

0RESERVATION/FlCER FEDERALLYRECOGNIZED )NDIAN TRIBESTHATATTACHRELIGIOUSANDCULTURAL

SIGNIlCANCE TO AFFECTED PROPERTIES REPRESENTATIVES FROM LOCAL GOVERNMENT THE DAM AD

MINISTRATORIFANAPPLICANTFORAFEDERALLICENSEORPERMITANDOTHERINTERESTEDPARTIES4HE

FEDERALAGENCYWITHJURISDICTIONOVERTHEUNDERTAKINGMUSTALSOSEEKANDCONSIDERVIEWSOF

THEPUBLICDURINGTHE3ECTIONPROCESS

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TALLAWSANDREGULATIONS3EE!PPENDIX"FORAMOREDETAILEDDESCRIPTIONOFTHE3ECTION

PROCESS!LTERNATIVESMUSTBECONSIDEREDTOAVOIDMINIMIZEANDWHENIMPACTSARE

UNAVOIDABLEMITIGATE THEIREFFECTSON HISTORICPROPERTIES!LTHOUGH3ECTIONSTRONGLY

ENCOURAGESPRESERVATIONITALSORECOGNIZESTHATPROJECTSMAYPROCEEDDESPITEADVERSEEF

FECTSONHISTORICPROPERTIESIFTHELEADFEDERALAGENCYDETERMINESITTOBEINTHEBESTINTEREST

OFTHEPUBLIC$ECISIONSTOPROCEEDWITHADAMREMOVALPROJECTTHATWOULDADVERSELYAFFECT

HISTORICPROPERTIESARETYPICALLYFORMALIZEDTHROUGHA-EMORANDUMOF!GREEMENT-/!

!N-/!SPELLSOUT THEVARIOUSMEASURESAVOIDANCEMINIMIZATIONMITIGATIONTHATARE

AGREEDUPONBYTHEFEDERALAGENCYANDCONSULTINGPARTIESIDENTIlES WHO IS RESPONSIBLE FOR

CARRYINGTHEMOUTANDPROVIDESFORMALDOCUMENTATIONTHATTHEFEDERALAGENCYHASMETTHE

REQUIREMENTSOF3ECTION

7HO)S2ESPONSIBLE&OR)MPLEMENTING3ECTIONAND

$ETERMINING)F4HE0ROJECT#OULD!FFECT(ISTORIC0ROPERTIES

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MOVALPROJECTTOCOMPLYWITH3ECTION;#&2eA=4HISINCLUDESBUTISNOT

LIMITEDTOFEDERALAGENCIESTHATPROVIDEFUNDINGORTECHNICALASSISTANCETOIMPLEMENTTHE

PROJECTANDFEDERALAGENCIESTHATHAVEJURISDICTIONALAUTHORITYTOGRANTAPERMITAPPROVALOR


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LICENSE FOR THE DAMREMOVALPROJECT 7HILE PLANNING FUNDING FOR PLANNING ANDINITIA

DESIGNARENOTCONSIDEREDUNDERTAKINGSUNDER3ECTIONDISCUSSIONSWITH3(0/4(0/

STAFF DURING THE PLANNING STAGESCANSAVE YOUTIMEANDMONEY INTHELONG RUN&EDERA

AGENCIESTHATARELIKELYTOHAVEJURISDICTIONINCLUDETHE!RMY#ORPSOF%NGINEERS"U

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lCIENT AND CONSISTENT APPROACH DURING THE PROCESS OF STUDYING DESIGNING AND IMPLEMENT

INGADAMREMOVALPROJECTINCLUDINGHOWTHEPROJECTMAYIMPACTHISTORICPROPERTIES

4HEFEDERALAGENCYISSOLELYRESPONSIBLEFORDETERMININGWHETHERITSUNDERTAKINGEGl

NANCIALORTECHNICALASSISTANCEPERMITAPPROVALISATYPEOFACTIVITYTHATHASTHEPOTENTIA

TOAFFECTHISTORICPROPERTIES;#&2eA=!TTHISEARLYPOINTINTHEPROCESSITDOES

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POTENTIALFORHISTORICPROPERTIESTOBEAFFECTEDEXISTS

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ENABLESTHE DEVELOPMENTOFPROJECTALTERNATIVESTO CONSIDEREFFECTSTOHISTORICPROPERTIES

7AITINGTO START THIS CONSULTATIONUNTILA DAMREMOVAL PROJECTHAS BEEN DESIGNEDAND A

PERMITAPPLICATIONHASBEENSUBMITTEDHASTHEPOTENTIALTORESULTINPERMITTINGDELAYSORDE

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TORIC 0RESERVATION /FlCER ANDOR 4RIBAL (ISTORIC 0RESERVATION /FlCER 3(0/4(0/


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FEDERALLYRECOGNIZED)NDIANTRIBESOR.ATIVE(AWAIIANORGANIZATIONSTHELOCALGOVERNMENTS

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BUILDINGSTR UCTURESITEOBJECTORDISTRICTTHATCONTAINSMULTIPLEBUILDINGSSTR UCTURESAND

CULTURALLANDSCAPES4HESIGNIlCANCE OF A DAM AND ITS IMPOUNDMENT NEED TO BE EVALUATED

WITHINTHEHISTORICCONTEXTANDCULTURALLANDSCAPE

4HEFEDERALAGENCYlRST ESTABLISHES A SCOPE FOR THE INVESTIGATION CALLED THE !REA OF 0OTEN

TIAL%FFECTS!0%7HILE!0%SARESITESPECIlC THE !0% OF MOST DAM REMOVAL PROJECTS

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-OSTDAMSWILLNOTBEELIGIBLEFORLISTINGINTHE.ATIONAL2EGISTERASANINDIVIDUALPROP

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COMPONENTSMAYLACKINDIVIDUALDISTINCTIONOR


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D4HATHAVEYIELDEDORMAYBELIKELYTOYIELDINFORMATIONIMPORTANTINPREHISTORY

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THEM)FAFEDERALACTIONWEREINVOLVEDTHESECRITERIAWOULDMOSTLIKELYBEFOLDEDINTOA

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7ILL(ISTORIC0ROPERTIES"E!DVERSELY!FFECTED

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OTHERPROPERTIESSUCHASARCHAEOLOGICALSITESORHISTORICMILLBUILDINGSWITHINTHE!0%MAY

BEADVERSELYAFFECTEDBYADAMSREMOVAL


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PAGE

)TISIMPORTANTTONOTETHATDAMSANDORASSOCIATEDPROPERTIESTHATARELISTEDORELIGIBLETO

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4HElNAL RESULT OF THESE DISCUSSIONS IS AN -/! THAT SPELLS OUT THE MEASURES THAT ARE AGREED

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TORESOLVEADVERSEEFFECTSONHISTORICPROPERTIESITISIMPORTANTFORTHERESPONSIBLEFEDERAL

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0HOTO#REDIT,EVIATHOR


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PAGE

"YPERFORMINGANAPPROPRIATELYDESIGNEDPARTIALBREACHRIVERFUNCTIONSSUCHASSEDI

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19/56

PAGE

THESESTRUCTURES4HESECHALLENGESHOWEVERCANALSOPRESENTUNIQUEOPPORTUNITIESFOR

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0HOTO#REDIT!MERICAN2IVERS0HOTO,IBRARY


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PAGE

4HEPURPOSEOFDOCUMENTINGASTRUCTUREANDTHEHISTORICCONTEXTINWHICHITEXISTSISTO

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