Crater Lake National Park Administrative History

CHAPTER TEN

D. ADMINISTRATION OF THE PARK

In the early years under the National Park Service Crater Lake National Park was administered by a small staff. In 1917, for instance, the staff consisted of Superintendent Sparrow, one permanent first-class ranger, and three seasonal rangers for the months of July, August, and September. [37]

One of the first issues with which Sparrow had to grapple was the question of quarters and office distribution for his fledgling staff. In May 1918, as the summer season approached, Sparrow wrote a lengthy letter to Acting NPS Director Horace M. Albright:

As the opening of the park season approaches, the question of quarters again claims attention. So far as I am concerned a tent or stable is good enough, but there are times when I should be in a position to offer meals or a bed to stragglers or guests. This is only possible by retaining the big house and having some one live in it that is willing to feed me and any person I choose to entertain, and have all meals charged to myself. Had such an arrangement with Mrs Momyer last season, for meals, but did not feel justified in making much use of it in her small cottage, and the big house was practically empty after Mr. Steel went to Medford, Aug 28, he came in when you did, July 25.

I would suggest converting two rooms into an office and retaining two bed rooms for myself and guests, turn the kitchen, dining room and two bed rooms over to some person that could fill the bill.

Mrs. Steel would not do this and could not if she would, she appears to have a holy horror of anything that suggests work. With the exception of 1914 when her sister was clerk at headquarters, she never remained in the park more than four or five weeks during the season, and Mr. Steel must be where his family is. Those were the conditions when he was Superintendent, and we could not expect any more from a Commissioner.

Mrs. Momyer is capable of filling the bill and I believe she would be willing to do it, if not, I can find some one that will. Another arrangement would be to have some one live in the house and feed the employees, including myself, at a per diem rate, or I could get a cook of my own and let Mr. Steel have a bed room, provided he did not ask me to feed his wife.

With Mr. Momyer in the big house, the small cottage would be available for Mr. Steel, if he should take a notion to visit the park. For the short time that he is likely to remain there, it seems to me that he should get a tent at the rim and live in it or at the hotel.

I want to be reasonable with all concerned, especially Mr. Steel, but I don't feel justified in impairing the administration of the park to make it comfortable for people who did not live there when they were paid for doing so.

In justice to Mr. Steel and Mr. Momyer, I will say that they have not mentioned quarters to me in any way, and any arrangement with them can be changed on short notice.

This letter is written in view of verbal instructions last August, relative to the big house, and I would appreciate an expression of your opinion at this time. Any suggestions will be cheerfully carried out as of my own initiative. [38]

One week later, on May 24, Albright responded to Sparrow's letter by supporting the recommendations of the superintendent. He went on to state:

There is no likelihood of Congress authorizing the construction of the new administration building this year. It is, therefore, incumbent upon us to put the buildings we now have to the use that best meets the convenience of the superintendent and the more important park interests.

You are authorized, therefore, to assign the small building heretofore occupied by Mr. and Mrs. Momyer to Commissioner Steel and his wife, and to utilize the superintendent's residence as you see fit, permitting Mr. and Mrs. Momyer to reside in part of the building and utilizing another part of it for your offices as seems best to you.

Last summer when I was in the park you will recall that I told Mr. Momyer to remain in the cottage where he was then living. I gave him these instructions after he had apparently told Mr. Steel that he would have to move out of the superintendent's residence. My object in taking this action was to let Mr. Momyer clearly understand that he was not in charge of the park and that no disposition should be made of public buildings until after you had assumed control.

With further reference to Mr. Steel, I would observe that it is probably your duty to urge Mr. Steel to remain in the park during the entire tourist season. Congress authorized the appointment of a Commissioner to reside in the park in order to make it possible to promptly punish violations of the rules and regulations to points outside of the park, for trial before a U.S. Commissioner or a Federal Court. If the purpose of the Crater Lake Jurisdiction Act is not to be defeated Mr. Steel must remain in the park throughout the season, and as long thereafter as there is any danger of depredations being committed upon any of the natural features of the park. [39]

During the next several years the park staff increased slowly. In 1918 the number of employees was expanded to include one permanent ranger at headquarters, who manned the Anna Spring checking station during the summer, three seasonal mounted patrol rangers, three seasonal rangers at the entrance checking stations, and one temporary clerk-stenographer. [40]

By 1923 the park staff had expanded further. That year Superintendent Thomson described the park organization as follows:

The superintendent is the park executive. A clerk and a chief ranger assist him throughout the year, and during the travel season 6 additional rangers and about 50 men are employed. The superintendent directs all park activities except the United States commissioner's court and the post office; he also supervises public utilities. [41]

It was determined in 1923 to move gradually the park headquarters to what would become known as Government Camp in the Munson Valley area of the park.

Continuing low appropriations during the 1920s prevented the development of an adequate administrative staff and facilities at Crater Lake. In 1927, for instance, Superintendent Thomson observed that the park was "not abreast with requirements administratively, being among the most backward in this respect of any of the large parks." There was "a shortage of permanent and of temporary personnel and a regrettable lack of administrative facilities." There was, for example, just one employee's cabin which had been built that year. The park needed additional employee housing, a new bunk house and kitchen for work crews, mechanical snow equipment, several new trucks to replace worn-out vehicles that had been derived from war surplus, a new administrative building to replace the present unfit small log structure, warehouse and garage facilities, and expanded sewage disposal facilities. [42]

The following year Superintendent Thomson elaborated further on the administrative difficulties facing park management. The number of employees in the park ranged from a minimum of four in winter to a maximum of 75 in summer. Up to 70 temporary employees were added to the park rolls from June to October, including a maximum of ten rangers. Administrative problems facing the park included:

The Park season is from July 1st to September 20th but travel sets in when the road is free of snow in May or June and persists until snow permanently closes the Park in November or December. The rail head is Medford 79 miles from Park headquarters, the long truck haul of supplies and personnel adding to administrative difficulties and cost. The Park area is rugged and very heavily forested, presenting a serious fire hazard during the dry season. The heavy increase in travel has strained Park facilities, particularly as to campgrounds, water supply, and sanitation. In personnel we have been seriously cramped, being limited in permanent employees to a disbursing agent, a stenographer, and one permanent ranger.

Park visitation had multiplied "seven or eight times" during the past two decades, while appropriations had "little more than doubled." Thus, the "disparity between administration and demands upon it" was "becoming increasingly apparent." [43]

During 1929-30 the park staff was organized into departments, each with clearly defined responsibilities under the supervision of Superintendent Solinsky. The park's organization reflected the expanded scope and increasing complexity of park operations. The administrative department employed a chief clerk and a senior stenographer. This office staff was augmented during the summer by two clerk-stenographers and one telephone operator. These personnel handled general office work, correspondence, financial matters, information, timekeeping, and other administrative duties. The engineering department was in charge of Engineer Ward P. Webber who was connected with the Park Service field headquarters office in San Francisco and loaned to the park during the travel season This department was in charge of roads and trails and improvements and maintenance, snow removal, and building construction and maintenance. The sanitation department, consisting of four men, handled garbage and refuse removal and kept the campgrounds clean. The protection department headed by Chief Ranger W.C. Godfrey included ten to twelve seasonal rangers whose duties were road patrol, information, guide, and lecture service, compilation of travel statistics, communications and campground services, entrance travel checking, fish planting, wildlife protection, and insect and fire control. The information or educational department, which was in charge of lecture, guide, interpretive, and museum services, was under the supervision of Park Naturalist Earl U. Homuth (replaced by F. Lyle Wynd in July 1930), assisted by three temporary ranger naturalists. A master mechanic headed the mechanical department (consisting of two to three seasonal mechanics) and was responsible for keeping park vehicles, trucks, and equipment in repair. The maximum number of employees on the work-force at one time in 1930 was 160. [44]

Medical and first-aid services were provided in the park for employees, as well as visitors, for the first time during the summer of 1930. Dr. Fred N. Miller, head of the University of Oregon's health service program, provided such services under contract. His sister Elizabeth Miller, who was affiliated with the Public Health Service of the Pennsylvania State Department of Health, aided Miller during the summer season. Tents were set up at Government Camp, the park headquarters area at Anna Spring, where the medical services were dispensed. Miller would continue to provide such services during the summer seasons under contract until the early 1940s when he engaged in medical services for the war effort. Throughout this period in the park he was paid by monthly deductions from the paychecks of employees of the park, concessioner, and road contractors operating in the park. [45]

The park staff continued to expand during the early 1930s. A park personnel list from 1932 indicated that the staff consisted of 8 permanent and 22 temporary positions. The permanent positions were superintendent, chief clerk, associate park naturalist, chief ranger, general park mechanic, two park rangers, and senior stenographer. The temporary positions were senior stenographer, assistant clerk, junior stenographer, clerk-telephone operator, twelve park rangers, three ranger-naturalists, two fire guards, and one storekeeper. Approximately 220 per diem employees were employed on park construction and maintenance projects during the year. [46]

The administrative work of Crater Lake National Park was increased greatly in August 1933 as a result of the placement of Oregon Caves and Lava Beds national monuments under the supervision of the park superintendent. The two monuments were transferred to the National Park Service from the U.S. Forest Service as part of the government-wide reorganization under Executive Order 6166 issued on June 10, 1933. While funds for the administration of these areas did not become available until July 1, 1934, Ranger Don C. Fisher, by a transfer of funds, was stationed at Lava Beds by June 1, 1934, and Breynton Finch, a veteran temporary park ranger, was assigned to Oregon Caves. [47]

The economic downturn of the Great Depression had a major impact on the park staff during the fall of 1933. After the park staff was analyzed in terms of park needs by Superintendent Solinsky under directives issued by the Bureau of the Budget seven permanent and twenty-two seasonal or temporary positions were retained. These included the permanent positions of superintendent, chief clerk, senior stenographer, chief park ranger, general park mechanic, associate park naturalist, and park ranger. The seasonal/temporary positions were: park ranger naturalist (4); park ranger (9); park ranger checker; senior stenographer; storekeeper; and assistant storekeeper. [48]

Investigations of park financial affairs and operations were begun in March 1934 by agents of the Division of Investigation created by Secretary of the Interior Ickes. Two accountants from the General Accounting Office arrived in June to make an examination of park financial records. As a result of the preliminary investigations three men were suspended from the park staff by Ickes without pay pending further study--Superintendent Solinsky and Chief Clerk A.R. Edwin on May 15 and Superintendent of Construction I. F. Davidson on June 8. On August 30 the three men were given involuntary dismissals. David H. Canfield, former chief park ranger, was named as acting interim superintendent. [49]

The investigations by the General Accounting Office auditors and Division of Investigation agents continued for some thirteen months. In December 1934 Solinsky, Edwin, and Davidson were indicted on charges of conspiring to falsify park payrolls from May through October 1932 and presenting false claims against the government which were paid by Edwin as park disbursing officer. The total fraudulent proceeds charged to Solinsky were approximately $3,000, a sum which he apparently used to construct a residence in Medford. At the trial which began in April, Edwin and Davidson pleaded guilty to the charges and testified against Solinsky. Defense attorneys contended that Solinsky was the victim of government red tape and had condoned accounting irregularities at the park to better visitor services, purchase new equipment, and construct a new park boat. On April 30, however, Solinsky was found guilty on fourteen counts, and on May 4 he received a two-year sentence at the McNeil Island Federal Prison and a $2,500 fine. Edwin and Davidson received lesser sentences of thirteen and eight months, respectively. [50]

The investigations and scandal had a major impact on park administration and operations. In July 1935 Superintendent Canfield observed that an almost complete turnover in key personnel had occurred:

Directly or indirectly resulting from investigations of park affairs the superintendent, chief clerk, chief ranger, permanent ranger, superintendent of construction, and storekeeper changed, making smooth operation difficult until such time as the new appointees are thoroughly broken in. . . . [51]

During the summers of 1934 and 1935 the park administrative officers were quartered in the recently completed Ranger Dormitory pending completion of the new Administration Building. These years also witnessed an effort by Klamath Falls to have the park winter headquarters transferred there from Medford. In 1935, for instance, Superintendent Canfield observed that favorable "arguments and data, for years in the embryonic stage, are approaching crystallization in Klamath Falls' bid to have the park offices transferred there." He noted, however, that it was "possible that at the last moment the formal request will never be made because of enmity that might be incurred." [52]

By 1936 the issue of moving the winter headquarters office from Medford to Klamath Falls had lessened in intensity. Canfield noted wistfully that the "maintenance of a branch office" in Klamath Falls would "take care of the situation no doubt for some time to come." [53] The following year Canfield reported wryly that "an old ambition" of Klamath Falls "to eventually move park headquarters there from Medford has been kept in bounds by advice from the park superintendent." [54]

The new Administration Building was completed in the autumn of 1935 and park personnel moved their summer offices into the structure in June 1936. Superintendent Canfield noted happily that the building "can be regarded as one of the most modern in any of the parks," and he observed that the "new headquarters supply sufficient room for park administrative activities, eliminating crowded conditions which had been such a handicap for years." According to the superintendent park visitors were favorably impressed by the structure and the remark was commonly heard that "the Government is giving the taxpayers something substantial for tax money." [55]

Canfield continued to be pleased with the new Administration Building. In 1937 he observed:

The novelty of having adequate space to carry on park business had not yet disappeared at the end of the year, crowded conditions of previous years and rat-infested quarters in a decrepit log building still being too fresh in memory. Park visitors still continue to be impressed with the dignified architecture of the building and as in the first year are frequent in complimentary expressions. [56]

As the national economy slowly recovered from the Great Depression the Crater Lake staff increased. In 1937, five additional permanent employees were added to the park payroll. [57] In March 1938 Thomas C. Parker was transferred from his position as assistant superintendent-engineer in Zion National Park to assistant superintendent at Crater Lake. This position was created to enable the superintendent not only to administer the park but also oversee Oregon Caves and Lava Beds national monuments. [58]

On August 1, 1937, Leavitt became park superintendent, a position that he would hold for nearly fifteen years. Many of the administrative issues that had confronted Canfield continued to face Leavitt. In 1938, for instance, he commented on the winter headquarters issue by stating that the

park administrative offices were located in crowded quarters in the Federal Building in Medford from October 14 to June 12. A branch office was maintained in Klamath Falls during the winter months. Citizens of Klamath Falls continue to occasionally present the advantages of their city as winter headquarters for the park. [59]

At the end of fiscal year 1939, the first full year of his superintendency, Leavitt observed that despite the fact "the park organization was by necessity not a highly centralized one, administrative matters were handled most efficiently in the three National Park Service areas under the administration of the superintendent of Crater Lake National Park." From October 15 to June 15 the park administrative offices were located in crowded quarters in the federal building in Medford, 82 miles from the park, 82 miles from Oregon Caves National Monument, and 125 miles from Lava Beds National Monument. Frequent trips, according to Leavitt, were made from the headquarters to the park and two monuments, and daily contacts with the areas was made by short wave radio. During the period November 1 to May 1 a branch office with the park's chief ranger in charge was maintained in Klamath Falls. The chief ranger served "as the winter representative of the National Park Service and for the benefit of the traveling public" and was "conveniently located for trips to Crater Lake and Lava Beds." During the summer months official headquarters were at the park, a temporary acting custodian representing the superintendent at Oregon Caves. At Lava Beds the superintendent was represented throughout the year by an assistant chief ranger in the capacity of acting custodian. Among the priorities of Leavitt were the promotion of "good will of the various communities in the vicinities of the area" and use of the various department heads of the park "as consultants in administrative matters."

Leavitt initiated a publicity campaign during the winter months of 1938-39. Daily publicity was issued from the Medford and Klamath Falls offices to local chambers of commerce, newspapers, and travel bureaus relative to road, snow, and weather conditions in and near the three Park Service areas. This publicity effort was successful in improving relations with the park's surrounding communities and was a major thrust of Leavitt's administrative endeavors until World War II curtailed park operations. [60]

Leavitt was also instrumental in establishing better mail service to the park. With the cooperation of the U.S. Post Office Department a Star Route was established to the park beginning June 1, 1939. Thereafter, mail was received seven times per week both from Medford and Klamath Falls. On June 1 an acting postmaster (former postmaster R.W. Price having resigned) assumed duties in the new post office quarters in the Administration Building. [61]

By the late 1930s the park's winter headquarters offices in the Post Office Building in Medford were becoming increasingly inadequate. The office space used by the Park Service was provided through the courtesy of the U.S. District Court to which organization the office space was allocated. Problems with this arrangement, however, arose in 1937 as the result of more frequent and extended sessions of the court The difficulties were outlined in a letter sent by Assistant Secretary of the Interior Oscar L. Chapman to the Fourth Assistant Postmaster General on March 10, 1938:

Until recently it has been the custom for the Court to meet once each year, usually during the month of October. After adjournment of the Court the National Park Service unit was permitted to utilize the space until the following spring. Last year, however, there was a session of the Court in December and it was necessary for the National Park Service unit to vacate the space usually occupied and to move into two small rooms in the basement where there are neither telephone facilities nor proper light and ventilation. This year the number of Court sessions was increased and the sessions were postponed several times so that it has been necessary for the National Park Service unit to occupy the entirely unsatisfactory basement space during the major portion of the winter. It is understood that, in the future, the Court plans to hold sessions every month or two as circumstances may require. This is a change in policy on the part of the Federal Court which in the past held most of its sessions in Portland, Oregon. [62]

During the fall of 1940 the Post Office Building in Medford was remodeled and enlarged. Thus the park was provided with a suite of six rooms, a decided improvement over its former cramped office space. [63]

The entry of the United States in World War II following the bombing of Pearl Harbor in December 1941 had a profound effect on park operations and administration. In October 1942 Leavitt described the situation at Crater Lake during the first months after Pearl Harbor:

Activities of the past year are marked by contrasts--definite, sharp contrasts--characterized, on the one hand, by operations at the peak of peace time, and, on the other hand, by operations in the confusion and bewilderment of the first few months of war. Unprecedented travel with accelerated activities resulting therefrom during the summer and fall of 1941 was followed by abrupt and sudden transition to the grimness of war at the echo of enemy bombers and exploding bombs over the quiet waters of Pearl Harbor.

Shadows of events to come were cast early in this year with the acute reduction of CCC enrollees and supervisory personnel, loss of employees through the Selective Service Act, and the difficulty encountered in finding qualified and willing replacements. In spite of it all and because of the facility with which the regular organization can expand or contract, depending upon the exigencies at the moment, the apparent difficulties were admirably met and overcome. The chameleonlike readiness with which the regular staff met and accomplished tasks ordinarily expected of others accounts in no small measure for the willingness and ability to carry on. [64]

Despite the optimism expressed by Leavitt wartime restrictions took an increasing toll on park operations. Crater Lake was closed during the winter months from 1942-45, and the war years witnessed a drastic curtailment of travel cutbacks in park appropriations, personnel, and visitor services, and difficulty in securing personnel for construction and maintenance work. All snow removal equipment was transferred to the U.S. Army, and the park found it increasingly difficult to secure parts, materials, supplies, gasoline, tires, and fuel oil required for normal operations. The chief ranger and park naturalist undertook the major responsibility for trail repairs and other maintenance work and furnished crews or individual employees to assist the park carpenter, plumber, road foreman, and engineer in their duties. The only unskilled labor the park was able to hire consisted of "a few young boys just old enough to qualify under the age regulations, and a few old men."

For the first time since 1935 virtually all park employees, except for a minimum number of administrative and protective personnel to secure government property, were moved out of the park when it closed for the winter on November 23, 1942. Many of the personnel were transferred temporarily to Olympic National Park and other western national parks. Equipment and machinery from the park garage were moved to Lava Beds for overhaul and repair by the park mechanic, who was transferred there for the winter. [65]

As the months passed the war had an increasing impact on park operations and administration. During the summer of 1943 Superintendent Leavitt commented on the situation:

Crater Lake was just beginning to realize the returns from seven years of year-around operation. The administrative, protection, construction and maintenance forces were built up to a point where an efficient organization for summer operation was assured, which served as a nucleus around which to build the seasonal summer force. With the closing of the park for the winter, the protective and maintenance divisions have been so greatly reduced in numbers that we are now facing the difficult task of protection of the park with a very limited force of trained and efficient personnel . As war conditions have brought this about, we face our problems cheerfully, determined to do the best we can with what we have. [66]

In May 1944 Acting Superintendent Richard J. Smith elaborated further on the effects of the war on park operations:

1. Instead of an all-year park as in prior years, snow removal operations have been discontinued and the park permitted to become blocked by snow during the winter season from approximately November 1 to June 15. Our snow removal equipment was loaned to the U.S. Army.

2. Park travel declined from 273,564 visitors during 1941 to 100,079 in 1942, and to 27,656 in 1943. Of the 27,656 visitors in 1943, 6,392 were members of the armed forces.

3. The park permanent staff has been reduced from 25 to 9 permanent employees, including the complete abolishment of the interpretative division for the war s duration, and administrative, protective, maintenance, repair and operation services curtailed to a minimum basis. The entire park organization is devoted primarily to protection of the park from fire during the summer months.

4. Surplus trucks, tools, equipment and supplies were transferred to war agencies.

5. For the duration of the war the park concessioner has suspended all public service operations in the park--transportation, lodging, meals, boat service, etc.

6. Special courtesy and consideration has been given to the men and women of the armed forces who find it possible to visit the park.

Men from the field of education made up the seasonal ranger force and high school boys constituted the fire protective organization. [67]

With the approach of the end of the war, NPS park, regional, and Washington Office administrators engaged in lengthy debate whether Crater Lake should be reopened as a summer or year-round operation. Political pressure, generated by various organizations, influential individuals, and nearby communities, was building for resumption of year-round operation of the park. In a memorandum to the Region Four Director on October 6, 1944, Superintendent Leavitt analyzed the options of the Park Service in responding to these pressures:

If the Service were in a position to resist this pressure on the ground that it was detrimental to the park and contrary to park policies--an argument which is applicable in resisting the pressure for grazing, for example--we might be able to maintain Crater Lake as a summer park only, but we have no such argument to justify such a policy, in view of the successful operation of the park on an all-year basis for more than seven years. . . .

About the only justification that we can make against all-year operation is:

1. The difficult living and working conditions in an area of such heavy snowfall. . . .

2. That the cost of administration, protection, operation, maintenance and repair during the winter months is an excessive expense when compared with the relatively small number of visitors that take advantage of the facilities the park has to offer during the winter season. . . . [68]

During the months following the end of the war it was determined to reopen the park on a year-round basis. To facilitate this decision it was announced in March 1946 that as soon as funds became available an all-year park headquarters area would be established near the south entrance of the park. Behind this decision was the belief that Crater Lake suffered more severely from the lack of a suitable park headquarters and utility area than from any other problem. The existing park headquarters in Munson Valley had been constructed more than a decade before for summer operation only and was not laid out for economical and efficient operation during the winter months, nor were any of the buildings constructed for year-round use. The proposed area was located on a southern exposure with flat terrain and had an average winter snow depth of only three to four feet. The issue of the new headquarters, however, would continue to be discussed and studied until 1964 when the Park Service resolved to establish year-round headquarters at Munson Valley. [69]