ࡱ> u +bjbjii .xjxjW  {{{{{8t;T2L:> KKKKKKK(NPfKi{111K{{K6661{{K61K66HIw]T2^HmKL02LHDQ(3DQ(II`DQ{%JH"6'P,KK862L1111DQ A: Teaching Notes (Updated May 2025) Tse-Whit-Zen: An Ancient Klallam Village Reclaimed Territory Taken but not Forgotten By Barbara Leigh Smith & Arlene Wheeler Learning Objectives Understand the history of the Hood Canal bridge replacement project and the discovery of Tse-whit-zen. Understand the dynamics of inter-governmental decision making Explore cross cultural communication and conflicting worldviews Understand how legal and administrative systems structure decision making and prevent conflict Explore ways that tribes can initiate strategies to protect cultural resources Explore the role of the media in highly charged situations such as Tse-whit-zen Audience: Suitable for college students - undergraduate through graduate students. Case is especially valuable for study in history, sociology, anthropology, political science, Native studies, management/business/public administration, ethics, environmental science. Keywords: cultural preservation; inter-governmental decision making Update: Tse- whit-zen (May 6, 2025) From the Lower Elwha Tribe website. Written by Jamie Valadez and Carmen Watson-Charles. This information has been modified, only to add additional facts by Brenda Francis, Communications Manager In August of 2003, artifacts and human remains were found at the village site called ixcYn, located at the base of Ediz Hook in Port Angeles, Washington. The site is the largest pre-European contact village site excavated in Washington State. Nestled in the crook of what is now Port Angeles Harbor, the village of Tse-whit-zen (pronouncedch-WHEET-son) flourished for over 2,700 years. The ancient village was one of many in the Klallam territory, which stretched from the Hoko River on the Strait of Juan de Fuca into the Hood Canal. The earliest confirmed settlement at the village site dates back to 750 B.C. approximately the same time Rome was founded. The site was found after being buried for 100 years, while construction took place to build parts for the Hood Canal Bridge. During this time construction stopped and the Department of Transportation met with the Lower Elwha Klallam Tribe. Together they came up with a plan to remove the artifacts and human remains so that construction could continue. In March of 2004 an agreementand plan was signed. Construction and the removal of artifacts and human remains began in April of 2004. Eight months later, in December of 2004, all construction stopped. Although there were over 100 archeologists and tribal members working together, there were still numerous human remains and artifacts to be recovered. There were a total of 335 human remains and over 100,000 artifacts recovered. It is well recorded in historic documents that this area was a Klallam village site. Over a period of 60 years there were many mills built that desecrated the village site, but also preserved the site because when the mills were built, they covered the ground with 15 to 30 feet of back fill. Facts  Current status The archeological investigation that began in 2004 at ixcYnfound over 1,400 features and 64,700 artifacts of stone, bone, antler, and wood. These features included habitation, structures, smokehouses, drying racks, hearths, rock ovens, and ocher features. Currently, the artifacts are being stored at the Burke Museum. As a result of a legal settlement, the Tribe received $2.5 million to construct a cemetery and curation facility on the site. To date, this money has been used to construct a cemetery and reinter 344 Klallam ancestors. As of 2011 of the $2.5 million settlement, $2.1 million has been spent solely for restoration of the archeological site, leaving a balance of $400,000 dollars. For the Tribe to reacquire the artifacts that have been recovered from Tse-whit-zen, a curation facility that can hold at least 904 cubic feet of artifacts must be built that will honor the 2006 agreement with the Washington State Department of Transportation, City of Port Angeles, and Port of Port Angeles for a cultural center that will promote educational and research opportunities. This curation facility must be built so that it meets the Secretary of Interior standards for a museum36 C.F.R. Part 79. Implementation: The case can be best taught over multiple class sessions because of its complexity and the division of the cases into multiple parts. Small group discussion is a good approach with the discussion questions tailored to the audience in terms of disciplinary interest and student sophistication. Encouraging students to do additional research is also recommended. Field Test: The first use of this case was in a class called Battlegrounds in Indian Country, a case-based 1 credit class that meets four times per quarter in three hour sessions. About 60 Native students who live near the area described in this case were the audience. Students varied in background and age and included freshmen through graduate students in a Tribal Administration program. Most of the students had heard about the situation described in the case but had only a superficial prior understanding of what actually happened. The case was taught over four classes, each 3 hours long. Students also explored the valuable Seattle Times website, Unearthing Tse-whit-zen (see references) and viewed the short video on it which provides a vivid picture of the actual site of the case. For the first class session which focused on Part 1 we brought in guest speakers who were principals in the case: Douglas MacDonald (then Secretary of the Washington State Department of Transportation) and Lynda Mapes (Seattle Times reporter). The second class focused on small group discussions of Part 1 and 2 with students divided into 8 small groups of 6-8 students. Each of the groups was given different discussions questions to discuss and report on. The third class and discussion of Part 3 included presentations by the Chair of the Elwha Tribe (Francis Charles), and the author of the case (Arlene Wheeler). In addition to hearing the guest speakers, students worked the various parts of the case in small groups around set questions. A final class session focused on summative analysis of the major lessons of the case. Students kept a journal tracking various aspects (key concepts, timeline, major players, critical turning points, questions) of the case throughout the quarter. This was the first case we had done over multiple class sessions, and it was very successful. Student evaluations particularly noted the valuable information the guest speakers provided, noting that they gave a face to the case. Teaching the Case Key terms Area of potential effect Authority Centennial Accord Determination of non-significance Due diligence Government-to-government relations Graving dock Inadvertent discoveries Memorandum of agreement Mitigation NIMBY Public interest Risk Section 106 SHPO (State Historic Preservation Office) Shell midden Site treatment plan Part 1- Discussion Questions What were the major turning points in Part I? Develop a timeline describing the major events in Part 1 of this case. Who were the major players and interests at play in Part I of this case? What were their issues and concerns? What were some of the important factors influencing the early stages of this decision process? What factors complicated the decision-making in this case? How does a public agency such as the Department of Transportation protect the public interest in large scale construction projects such as the replacement of the Hood Canal Bridge? Discuss the concept of risk as it is raised in this case. What were the risks? How is risk assessed and minimized? What does the concept of due diligence mean, and how was it exercised or not exercised in this case? In what ways does the decision making process described here strive to include the representation of diverse interests? In what ways was it successful and not successful? Why did the Department of Transportation select Port Angeles as the graving dock/fabrication site? How were the tribes included in this process? What do government-to-government relationships require? What are the various reasons why the tribe(s) may not have participated? How might tribal participation have been increased? Part 2- Discussion Questions 1. Key terms: What are important technical terms in this case thus far and what do they mean? 2. Is this a conflict between different cultures and ways of knowing? In what ways do you think this might describe what happened here? 3. How did everyone try to accommodate each others interests? What was the impact of these compromises? 4. What did the term walking together mean? What are some of the specific ways you saw this enacted? 5. What were the forces pushing the project forward ? 6. What were the various technical failures in Part 2 of this case? 7. Did all the key players in this case mean the thing when they talked about cultural resources and preserving cultural resources? What did this mean to the Tribe? To the archaeologists? To WSDOT? To those overseeing policies such as the National Historic Preservation Act? Part 3-End of Case Summative Discussion Questions Using Multiple Small Groups Group One: Leadership Without Easy Answers (This was one of the books used during the quarter) You have been brought in to help Ronald Heifetz write a new edition of his classic book, Leadership without Easy Answers. He is thinking about featuring the Tse-whit-zen case study in the new edition of his book. Prepare an argument for why this would be a good addition to his work and a detailed sketch of what this might look like. Address how the Tse-whit-zen case and the major leaders in that story exemplify the key concepts in the Heifetz book. As you report out to the larger class you should explain what the major points of the Heifetz book are and why the Tse-whit-zen case is a good example of leadership without easy answers. Group Two: Learning from Tse-Whit-Zen In a recent speech, Patricia Cochran said Indigenous communities provide an opportunity for the rest of the world to see the earth and environment from a unique worldviewone that is based upon tradition, culture, spirituality, and our role as stewards of the land. How can others learn from the knowledge of the indigenous community and how can this knowledge be incorporated into decision-making process and community learning? Using the Tse-whit-zen case as a touchstone for answering this question, brainstorm a response and a proposed action with specific activities and steps to enact it. Be sure to specifically speak to all the audiences you wish to reach and how you propose to do that. You might, for example, think of this as a detailed editorial to the Port Angeles Daily News or a presentation to the city council and/or... Group Three: Consultation and Participation The Tse-whit-zen case involved an often bewildering arrays of agencies, laws, and players at all levels of government. And, of course, the Tribe also had to do consultation within the tribe. Various administrative processes and legal processes exist to protect the sovereignty of tribes and ensure consultation and participation. What do consultation and participation mean? Are they the same? What are the various formal and informal vehicles for enacting this? Develop a list of methods for assuring effective consultation with tribes with very specific guiding principles, critical elements and core values. What are 5 major lessons youve learned about effective consultation processes with tribes with various agencies and audiences? Group Four: Looking Ahead How can the Tribe do to move ahead to take maximal advantage of opportunities provided and learning from the Tse-whit-zen case ? If Frances Charles and Arlene Wheeler asked you to come brainstorm with them on what to do, what would you say? Be sure to get clear on your goals and consider all of the Lower Elwhas relationshipsinternal and external. Also consider where might they find support and assistance. Group Five: What did we learn? Your job is to produce a rigorous, original final examination for students to assess their learning from the Tse-whit-zen case using the collaborative examination development procedures described in the handout. Develop questions at three levels of analysis: fact questions, concept questions, and thesis/hypothesis questions. Be sure to review your journals as you consider alternative questions. As you decide what questions to include be sure that the questions are of high quality and cover all the most important information in the case. Pick out three of the most important questions and answer them. Group Six: Pulling it all together What are the major factors shaping the Tse-whit-zen case we studied this quarter? Who were the major players and how did their roles evolve over time? What accounted for any changes? Why did the situation turn out the way it did? Why did the State ultimately agree with the Lower Elwha Tribe that the site should be abandoned? What does this say about power and where power comes from and how it can be exercised? Why did the state and media end on a note of reconciliation while the Elwha people continue to deal with various issues (which ones?) in the aftermath of the decision to abandon the Port Angeles graving dock? Research Possibilities Explore the impact of the media on this situation by examining press coverage through the Seattle Times and the Port Angeles Daily News. Explore the early history of the Klallam people and Tse-whit-zen by reading some of the books in the bibliography. What is known about their culture and traditions? What are the various challenges the Klallam faced in the last 200 years? Explore different conceptual theories of decision making that might explain the major decisions in this case using the framework in Graham Allison and Philip Zelikow classic study of the Cuban Missile Crisis, Essence of Decision: Explaining the Cuban Missile Crisis (1999). 2nd edition. New York, NY: Addison-Wesley. Then describe three theoretical approaches: 1) Rational Actor Model 2) organizational behavior model, and 3) government-politics model. In his important book Leadership without Easy Answers, Ronald Heiftez argues that an important distinction can be drawn between decisional situation which call for technical vs adaptive leadership skills and technical v adaptive leadership challenges. Looking at what Heifetz means by this distinction and make an argument about whether this framework is useful in analyzing this case. Do research on the various agencies, laws and procedures (National Historic Preservation Act, Endangered Species Act, National Environmental Policy Act, Centenntial Accord), referred to in this case and describe what they require and how they strive to work with tribes. Do they provide clear guidance for the situation at Port Angeles? Do research on other archaeological sites in Washington state at Ozette and Mud Bay and compare what happened at these sites with the Tse-whit-zen case. What are the major lessons that you draw from these three examples? Annotated Bibliography of Additional Resources Ames, K. and Maschner, H. (1999). Peoples of the Northwest Coast: Their Archaeology and Prehistory. New York: Thames and Hudson. A good overall resource on Northwest Coast Native prehistory. Boyd, R. (1999). The Coming of the Spirit of Pestilence. Seattle: University of Washington Press. This is the definitive work on the introduction of infectious diseases and population declines among Northwest Coast Indians in the time period from 1774-1874. Ells, Myron. (1996). The Twana, Chemakum and Klallam Indians of Washington Territory. Fairfield, Wa: Ye Galleon Press. A re-publication of Ells 1889 annual report to the Smithsonian Institution. Ells (1843-1907) was assigned by the American Missionary Association to minister to the Skokomish people. He studied Puget Sound tribal history, culture and languages around 1874 and wrote numerous articles and books describing in vivid detail the culture of the Klallam people. Though this book is highly ethnocentric to contemporary readers, it is still a classic and widely read. Erikson, P. with Ward, H. and Wachendorf. (2002). Voices of a Thousand People: The Makah Cultural and Research Center. Lincoln, Neb: University of Nebraska Press. The definitive work written from a tribal perspectives on the establishment of the Makah Cultural Museum and the important lessons it offers about ways of knowing and redefining civilization. . Federal Advisory Council on Historic Preservation. 2008. Consulting with Indian Tribes in the Section106 Review Process. Retrieved January 29, 2009 at  HYPERLINK "http://www.achp.gov/nhpa.html" www.achp.gov/nhpa.html A recent excellent resource on consultation with tribes. Foster, Rhonda, Larry Ross, and Dale Croes. 2007. Archaeological/Anthropological-Native American Coordination: An Example of Sharing the Research on the Northwest Coast of North America. Good case study of tribal-college partnerships. Gantenbein, D. 2005. Graving Yard, Graveyard. American Archaeology 9 (2): 12-18. Gantenbein, D. 2007. Waterlogged Wonders. American Archaeology. Winter 2007-08. Vol. No 4. 12-19. An excellent account of the Mud Bay excavation and the work between the Squaxin Tribe and anthropologists at South Puget Sound Community College. Gunther, E. (1927). Klallam Ethnography. Seattle: University of Washington Press. This is the only ethnography available focusing specifically on the Klallam people. It contains extensive information on all aspects of Klallam economic, social, and religious life. Joint Legislative Audit and Review Committee (JLARC). Review of Port Angeles Graving Dock Project-Preliminary Report. Transportation Performance Audit Board. June 2, 2006. This is the official review of the Port Angeles Graving Dock Project commissioned by the Legislature. MacDonald, D. (2006) The Hood Canal Bridge Rehabilitation Project and Graving Dock Program. A Report to the Governor and Legislature of the State of Washington. Olympia, Wa: Department of Transportation. This 225 page report is the internal Washington Department of Transportation report on the Hood Canal Bridge Graving Dock project at Port Angeles and provides the most detailed information on this subject. It includes internal technical information as well as media reports. Mapes, L. (2005) Unearthing Tse-whit-zen. A Seattle Times Special Report May 22 - May 25, 2005. Retrieved at  HYPERLINK "http://seattletimes.nwsource.com/news/local/klallam/" http://seattletimes.nwsource.com/news/local/klallam/ This excellent permanent website includes all of the four stories published in the Seattle Times, a vivid slide show, photos of artifacts, additional resources, and discussion questions. The emphasis is on Native culture and includes a reproduction of a Klallam village. Mapes, L. (2009). Breaking Ground: The Lower Elwha tribe and the Unearthing of Tse-whit-zen. Seattle: University of Washington Press. Written by the author of the extensive Seattle Times stories on Tse-whit-zen, this is the definitive work on the inadvertent discovery of one of the largest Coast Salish villages ever in Washington State, and decision by the state of Washington at the request of the Lower Elwha Klallam Tribe to stop a major construction project to respect Native American graves. National Environmental Justice Advisory Council-Indigenous Peoples Subcommittee. 2000. Guide on Consultation with Indian Tribal Governments and The Public Participation of Indigenous Groups and Tribal Members in Environmental Decision Making. Environmental Protection Agency: Washington D.C. Available on the EPA website. This is an excellent guide to procedures for consultation with tribes and includes a brief synopsis of the programs within the purview of the Environmental Protection Agency. Northwest Indian News. January 2005 video edition focuses on Tse-Whit-Zen. For further information and to purchase the dvd email  HYPERLINK "mailto:info@nwin.tv" info@nwin.tv or call 1-800-869-8287 extension 4330 Port Angeles Thumbnail History. HistoryLink.org See the brief discussions of Port Angeles history. Stewart, H. (1996). Stone, Bone, Antler and Shell Artifacts of the Northwest Coast. Seattle: University of Washington Press. A revised edition of Hillary Stewarts 1973 volume, Artifacts of the Northwest Coast Indians, this book contains exquisite drawings and photographs and descriptions of the material artifacts of the tribal cultures of the Pacific Northwest. Stauss, J. 2002. The Jamestown SKlallam Story: Rebuilding a Northwest Coast Tribe. Jamestown SKlallam: Sequim, Wa. An excellent recent account of the history and culture of the Jamestown SKlallam Tribe with considerable information on the Klallam people as a whole. Suagee, Dean and Lowndes, J. Due Process and Public Participation in Tribal Environmental Programs. 13 !"#WXz{$ % 0 S d  " S g q ¾Ѩ{wpi h#Eh#E hGhghwhgh,hGh IhG% hGhG hGh@h@ hGhdchaNh6w5CJaJ h#E5 h6w5h6wh Mh=h h6wh6w h=h5h6wh6w5h9h95CJaJh(5CJaJh6wh6w5CJaJ("#Xz{% d  S  & FgdG & Fgd@gd6w$a$gd=h$a$gd6w   ) 4 o y  & 2 6 8 : D J L ~ øq^^^^^^qSSh`wCh`wCOJQJ%h96OJQJ]eh@r@+h`wCh`wC6OJQJ]eh@r@%haNh`wCB*CJOJQJaJph1%)%h9h`wCB*CJOJQJaJph1%)h9h`wCCJaJhaNh`wCCJaJh`wCh M h Mh MhaNh M5CJaJ h M5 h6w5hqh#E h#E5 h#Eh#Eh3 6 : z  9D[$\$gd9d9D[$\$gd9gd6w d9Dgd`wC d9D@&gd`wC 9Dgd`wC9Dgd`wCd9D[$\$gd`wC9z99l  |~FUVW:;<FHg{w{p hqh6whq hqhq hq5h hg h#Eh#E h#E5 h6w5h9OJQJ%h9h9B*CJOJQJaJph1%) h95 h Mh#E h Mh`wC(jh`wCh`wCOJQJUmHnHu#haNh`wC5B*OJQJ\ph1%)h`wCh`wCOJQJ, ~;<X!Y!#'$'6'8'D'E'^'h'z'''''' (((,(2(>(gd6w 9D[$\$gd9g6 H J X!Y!!!!!!!!""U"X"\""""#1#3#@#J#L##"$7$$$$$$$$%%%&;&"'#'$'5'6'8'C'D'E']'Ͷͧ h h h 5 h,5h,h,5 h#Eh6whkhF; hqhqh h 6h h8f4h8f46h=hh8f46h8f4hqhg h#Eh#Eh#Eh=hh9]'^'g'h'z''''''''' (((,(2(>(h(u(((((((((($)M)U)))))) **.*/**Y+r+s+++++++8,l,m,,,,---------;źͺͶͺͶޱhbh6w5 h< 5hF;h h[qh6wh3h,h6whVqh6w5 h 5 h6w5 h,h h h, h,h, h h,B>(h(u(((((($))/**Y++m,,----5..'/// 01gdF; & Fgd6w & Fgd3gd6w---..4.5.6.8...'/(/*/////// 0 0 01 1!1(1>1R1n1o1p1111111*2I23U4V4|45}7777777ɵ뎉 hy%hX@8 hX@86hy%hX@86hy%hX@85h1QjhX@86h[h M5 h MhX@8 h Mh Mh[hX@85 h< 5 h M5 hX@85h< h< 5h< hGh3h@hX@8hF; hp,hF; hF;531 1!1o1p111U4V4|47777:::<<<??;???@A & FgdDDNgdDDNgd< gdF;777779:::;<<<===??;????@AAAAAB,B5BLBNBBBBBBB=C>CdCwCCD>D?DHDRDTDEE;EEEFF GGGGHHʾʺʮʡʮʺh6whG%h,H* h,6h@h,6h2hwh&|[h,h,6h,hGh,5 h#5h4bhYhX@85hhX@85 hX@85hfhX@85hX@8>AAAANB>CEFGHHHHHpIqIIIJJJJ0K1K^gdwgdw$a$gdwgdfYgd6w & Fgd,gd,^gd#HHHHHIPIpIqItIIIIIIIIJJJJJJJJKK K/K0K1K2KKKKK&L2LNLQLWLҸҭŭҍssisisish!6B*phhD hD 6B*phhD h&|[6B*phh1+hD B*phh&|[B*phh1+hw6B*phh1+hwB*phhZ]lhw6B*phhhw6B*phhwB*phhw5B*CJaJph h1+hw5B*CJaJph hfYh*(1KKMMMMkNlNIOJOOOCPDPuPvPPP1Q2QQQRR^gdkgd4bgdQkT^gdw^gdD gdwWLLLLLLLLMMM4MwMMMM NN4NhNkNlNNNOO/O0O1OGOHOIOJOKOǺǭǑzgz^zVhkB*phh h&|[0J$jh h&|[B*Uphjh&|[B*UphhQkT6B*phhQkTB*phhw6B*phhk6B*phhZ]lhw6B*phh2hw6B*phhwB*phh&|[B*phhD B*phh26B*phhD hD 6B*phhk6B*ph!KOOOOOOAPBPCPDPEPuPvPPPPPPPPPPPP QQQ1Q2QQQQQQԿzzzzmzzzmmzbUh1+hw6B*phh1+hwB*phhkhk6B*phhkB*phh1+hkB*phhkhk6B*phhwB*phh4bh4b6B*phh4bB*phhkB*phhVB*phhVhV6B*phhVhVB*phhV6B*phh&|[6B*phh&|[h&|[6B*ph!QRRRRRRRSFS~SSSSSSSTTTUUUUV=V>VVVVVVVVVVWWW쵨xixahFhw6h1+hw0JB*H*phh1+hw0JB*ph$j^h1+hwB*Uphjh1+hwB*Uphh&|[h&|[6B*phhkB*phh1+hw6B*phh!h!6B*phh!hD 6B*phh!B*phhwB*phh1+hwB*ph&RRRSSSSTTUUVVWWWSXTXXYY[[[[^gd ^gdw^gd&|[gdw^gd!WWW(XSXTXXXXYYYZZZ[[[[[[[[[9\:\[\\\]\i\j\\\\\\\ ]J]u]v]] ^^f^ŽѰyyty hwFf6h!h!6hfYhw6 hfYhwh h520Jjh52Ujh52Uh52h52h526 h 6h h 6h h;h;6h;hFhw6hk6B*phhAhw6B*phh8f4hw6hw,[\\\\\v]g^h^^^x_y_*+ÌČDEgdw^gdw^gdMgdM^gd!`gdwgdwf^g^h^y^|^}^^^^^^^^^x_y______)*+ÌČΌЌԌ܌CDEލEx)+,;uݏŽ޵ޭޘhwFfhwFf6h52hwFf6hwFfht Ohw6hw6CJaJhwCJaJhmg6hw6hfYhw6 hfYhwhbhb6Uhbh hwhMhMhM6 hMhM hM6 h!65Tulane Environmental Law Review 1 (1999). Suagee, Dean. Tribal Voices in Historic Preservation: Sacred Landscapes, Cross-Cultural Bridges, and Common Ground. 21 Vermont Law Review 145 (1996). Suttles, W. ed. (1990). Handbook of North American Indians. Vol. 7, Northwest Coast Washington D. C.: Smithsonian Institution. One of the definitive scholarly works on the history of North American Indians, this volume includes a short description of the early history and culture of the Klallam (Clallam) Coast Salish people. Valadez, J. 2002. Elwha Klallam in J. Wray (ed). Native Peoples of the Olympic Peninsula: Who We Are. University of Oklahoma Press: Norman, Okla. This small volume contains valuable short chapters on each of the tribes of the Olympic Peninsula written by members of each tribe. Wray, J. 1997. Olympic National Park Ethnographic Overview and Assessment. A Report to the Olympic National Park. This extensive report was written to acquaint Olympic Park managers with the eight tribes adjoining the National Park, their history and culture. A short history is included of each tribe along with a description of the relevant treaties, and a discussion of sacred places. 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