Big Bend Administrative History

Another, more curious promotional angle about Big Bend came from J. Frank Dobie, whom the Pampa News said had "run out on English classes he teaches in the University of Texas to 'hole up' in the [Chisos] mountains here while he works on his next book, 'Texas Longhorns.'" Dobie told an interviewer that he had come to the abandoned CCC camp in the Chisos Mountains "to spend some six weeks working on his book, which is to be a comprehensive history of the development of the Longhorns from the time the first Spanish cattle were unloaded on the island of Sant[o] Domingo by Columbus on his second voyage to America." The Texas folklorist had sought in the Big Bend remnants of the longhorn breeds that he knew as a youth on his family's ranch in the Live Oak country. Those animals, Dobie told the Pampa News, "would lift sand upon their backs and necks with their fore feet, bellowing constantly." After "working themselves into the proper mood for battle," the longhorns "would lower their heads and charge, and acres of brush would be trampled before one bull succeeded in goring to death or whipping out the other." This Dobie called "'a grand spectacle,'" and one that he hoped to witness while in the future national park. He then remarked to the Pampa reporter on the distinctive features of life in the former CCC camp. "To clear his mind between working hours," said the reporter, "Dobie chops stove wood or explores the wild mountain peaks about him, sometimes accompanied by the only other occupant of the camp, Custodian Lloyd Wade." [12]

Yet a third news story spawned by the media campaign surrounding Senate Bill 123 was more worrisome to Herbert Maier and his NPS colleagues. The local newspaper in Fort Stockton reported that Senator Winfield had "announced that definite assurance had been received from a scientific foundation that it would donate $1,000,000 for the Big Bend National Park project." Maier quickly contacted Everett Townsend for advice, noting that "I do not think that Senator Winfield would give out such a statement in his home paper unless the statement had a sound basis in fact." "Naturally," Maier cautioned, "we are very much interested in this statement since we, like others, have wondered about the delay in getting the fund raising campaign under way." Maier realized that "Mr. Carter was flirting with various foundations," and asked if Townsend could "look into this and drop us a line at the earliest moment?" [13]

While Maier awaited word from Townsend about Winfield's claim of a million-dollar donor for Big Bend, the Texas state parks board registered some surprise late in February when the new Region III director, Hillory Tolson, wrote to William Lawson about other potential NPS sites in Texas. "We, of course," responded chief clerk Will Mann Richardson, "have no objection to Palo Duro Canyon becoming a National Park." Yet the parks board warned Tolson that "we should call to your attention one or two facts in regard to the area" south of Amarillo. "In the first place," said Richardson, "we do not believe it will be possible to get the Legislature to appropriate money to purchase this land now when we are trying to get the Big Bend area purchased for a National Park." Another concern for the parks board, said its chief clerk, was that "it would take an Act of the Legislature to transfer whatever interest the State may have in the area to the National Park Service." Even if the Lone Star lawmakers agreed, "we would hate to transfer to anyone the obligation, which we now have, to pay a grossly exorbitant price for the [Palo Duro] property." Richardson contended that "the indebtedness against the land at the present time is around one-half million dollars and out of all proportion to the value of the property." He then warned Tolson: "If the landowners are going to insist on such a valuation being placed on the property we feel that you should be aware of this fact before anything further is done." [14]

Within days of Tolson's inquiry about NPS status for Palo Duro Canyon, Will Mann Richardson contacted W.F. Ayres with news that Governor O'Daniel, in the words of Herbert Maier, "is planning to introduce a bill for conveying the Big Bend land to the Federal Government, and, apparently, will include in the bill a request for a large appropriation for land purchase." Maier worried that "this second bill, if introduced, will confuse the situation." He then advised Ayres "that apparently State Park Chairman Lawson, who is now Acting Secretary for the Governor, and Secretary of State Beauchamp may have advised the Governor to introduce his own bill so as to 'steal the show' from Amon Carter." Maier speculated that "the Governor may, however, be ignorant of the fact that a Big Bend bill was already introduced a month ago by Senator Winfield." Since "we do not know what has prompted the Governor's action," said Maier, "I advised Ayres that . . . he should not contact Lawson or the Governor, but should immediately contact Senator Winfield and Representative Cauthorn, and have them size up the situation and report to this Office by air mail." The associate regional director surmised that "if the Governor's bill calls for a large appropriation, and if it comes up about the time the fund-raising campaign is under way, the public may become confused and private subscriptions discouraged." This realization came just as the NPS had completed a "relief model of the Big Bend area made at Fort Hunt." Maier had received permission to display the model at the Texas state capitol, but complained that "the map was not painted in realistic colors but in a monotone, and this is certainly unfortunate," as well as the map itself being assembled in two pieces, "which is further unfortunate." [15]

O'Daniel's rumored intervention forced NPS officials and park sponsors to assemble in Austin, where they converged on the office of Secretary of State Tom Beauchamp. Once there, NPS inspector Ayres learned that the governor merely planned "to send up a message to the legislature endorsing the Big Bend Park movement in general." Senate Bill No. 123 had been reported out of the finance committee, but Senator Winfield still awaited the "action of Amon Carter and the executive committee." One concern for Ayres was "that the legislature is deadlocked on this old age pension business, and its attendant Transaction Tax." Yet Ayres could report to Maier that "both Winfield and Cauthorn feel confident that a substantial appropriation bill could be passed, and if the Carter faction don't act pretty soon they may introduce an amendment to this bill carrying a big appropriation." Winfield also indicated to Ayres that "the Senate at least will retain the 'mineral rights' clause, and convince the School Lobby that they will get more from their share of the gasoline tax (1 cent per gallon) on the increased travel than they ever would from developed minerals in the area." Ayres also had been able to inquire of Winfield the significance of his remarks to the San Angelo Times about the "'definite assurance'" of a million-dollar donation to the Big Bend campaign. Winfield had meant "merely a 'possibility,'" Ayres told Maier. Yet "of course this kind of publicity is bad for a public subscription campaign," said the NPS inspector, noting also that "there are a surprisingly large number of people who feel that it would be much better and easier to have the legislature appropriate the funds." [16]

True to his word, Governor O'Daniel sent to the state house and senate on March 1 his message in favor of the Big Bend land-acquisition program. He wished to point out "a few interesting facts concerning this great 'GIFT OF GOD' to Texas and to our Nation." O'Daniel further wanted to "declare that an emergency exists and that great loss may accrue to our people unless immediate action is taken on the pending bill." Speaking lyrically of the beauty and grandeur of the future national park, O'Daniel told the state's lawmakers that the Chisos Mountains "have been described as the most rugged mountains in the world, wherein we find deep gorges and cliffs and mile-high peaks dyed in deep mineral coloring and dressed with nature's most wonderful blanket of trees, vines and grasses." The governor, himself a visitor to the Chisos, claimed that "from many large peaks the gorgeous scenery is as impressive as a vast fairy land." Saving special praise for the South Rim, O'Daniel claimed that "from high mountain cliffs we may look down upon a landscape . . . which has been proclaimed by many as the most gorgeous on the continent." The Chisos in particular, said the governor, "have become the garden for a most unusual plant life comprising a variety of nearly one thousand species." They constituted what O'Daniel called "both a vegetable island and an animal island," as scientists "find here life of both in abundance which is strange to the country around for hundreds of miles away." Among these was an "oyster shell thirty six inches in diameter." Big Bend's cultural and historical resources also rendered the landscape worthy of NPS protection, said the governor. "The word Chisos means 'Ghost,'" O'Daniel intoned, "and it was believed that in the early days the ghost of many who ventured the climb into them constituted the strange inhabitants." He also spoke of the archaeological surveys undertaken by Harvard University and Sul Ross State Teachers College, with the conclusion of one "eminent geologist . . . that the grandsons of the geologist of today will not have completed the lesson which they are now studying in this great classroom." [17]

In order to convince the Texas legislators of the merits of Big Bend, O'Daniel recited the by-now familiar economic data of tourist expenditures and ancillary benefits from increased tax revenues. "I have been informed," said the governor, "that many parks have been offered to the National Government for National Parks, but this Big Bend areas is perhaps the last important area which the National Park Department so strongly desires." He then highlighted the "talk of Mexico setting aside one million acres directly across the Rio Grande." This gesture would make "an International Park, unequalled anywhere else on earth, and a strong influence toward the 'Good Neighbor' policy." O'Daniel closed his plea to the legislature by reading from a letter written by President Franklin Roosevelt. "'As you may know,'" said FDR, "'I am very much interested in the proposed Big Bend National Park in your State.'" The president had "been hoping that this Park could be dedicated during my Administration." Roosevelt thus requested of O'Daniel that "'this large and very interesting area could be bought for a comparatively small sum--a sum that would be insignificant in comparison with the economic return that would follow to the State of Texas and to the Nation, from every point of view.'" FDR then summarized his appeal to the Texas governor: "If the Texas legislature at this session should see fit to make an appropriation for the acquisition of this land, it would be very gratifying to me personally, and I am sure that it would win the general approval of people everywhere.'" [18]

With the endorsement of Franklin Roosevelt, and the enthusiastic support of the governor, park sponsors began to imagine a grander scenario in which they appealed to the Texas legislature for a substantial sum of money. Inspector Ayres filed daily reports with NPS officials in Santa Fe to offer them a sense of the momentum building among Lone Star lawmakers for the land-acquisition program. On March 4, Ayres informed his superiors that "there is the feeling, which I share, that now is a very good time to insert a clause raising the appropriation to $750,000." The more controversial measures awaiting legislative action had yet to be addressed, and "I am afraid if we wait too long," said the NPS inspector, "the bill may get involved in the general fight, and get slugged as an economy gesture by tax opponents." Ayres learned from capitol insiders that "the legislature could start the movement with this amount, and public subscription, private foundation[,] etc[.] could supplement the funds." Should park sponsors not prevail in their donation campaign, "this is all the money the [parks] board could spend for land in the next two years, and then they could get the balance from the next legislature." Most surprising was the consensus, as reported by Ayres, that "in any event it looks as though they may not wait for Amon Carter, since we are in the third month of a four month session, and pass the bill anyway." [19]

Sentiment for avoiding the dilatory tactics displayed by Amon Carter faded as the NPS realized the importance of the Fort Worth Star Telegram to their efforts at publicity for Big Bend. Thus Hillory Tolson wrote on March 7 to Carter to seek his advice on the language contained in the land-acquisition bill. The park service agreed in principle with the objectives of Winfield and Cauthorn, offering only two suggested changes. The first requested that the document read: "Which a sales tax is levied in this State, and to tax persons and corporations, their franchises and properties, on land or lands deeded . . . ." More substantial, in the minds of Tolson and his superiors, was the need to delete a sentence that "provides for the free admission of all school children under eighteen years of age." The NPS counsel ruled that "the inclusion of this sentence would present an administrative limitation by the State on the exercise of Federal authority over the area after it becomes a national park." Tolson reminded Carter that "an admission charge as such is not being charged nor is any contemplated in any of the national parks." He admitted: "It is true that a guide fee is charged at Carlsbad Caverns National Park, but groups of school children under 16 years of age are admitted without charge when accompanied by an adult teacher, upon payment of the regular fee by that teacher." Tolson suggested that Carter encourage the removal of the sentence on fees, in order that NPS officials not raise "a serious technical objection." [20]

Whatever the language of the Big Bend park bill, word circulated by mid-March of problems with its passage. Herbert Maier learned from Conrad Wirth that officials from the El Paso chamber of commerce had informed him that "Governor O'Daniel is having a great deal of difficulty in getting the Big Bend bill through the legislature." Maier indicated to NPS personnel in Austin that "some definite urging by way of a strong letter to the Governor, on the part of the Secretary of the Interior, appeared advisable at this time." Maier himself had no evidence of "any real difficulty" confronting the park bill, with both house and senate committees reporting favorably on its contents and "a great many newspaper clippings" generated by the publicity campaign. Nonetheless, Maier did acknowledge that "the Governor is having much opposition in getting many of his proposals through," and that "some legislators will call attention to the likelihood that the $1,000 appropriation called for may be many times increased before final action on the bill is consummated." Wirth's suggestion that Harold Ickes endorse the park measure concerned Maier, given the highly publicized letter from FDR. Some in the Texas capital might perceive this strategy "as excessive pressure on the part of the Government, since the acquiring of large blocks of land by the Federal Government is very much of a new idea in Texas." Thus Maier solicited the opinion of Amon Carter, asking James Record to "obtain information and advice from him as to the exact status of the bill, and its chances for passage, and as to whether the proposed letter from either the Secretary of the Interior or the Director of the National Park Service would be the advisable thing to do." [21]

Maier and the Big Bend sponsors expressed relief that Texas lawmakers had not singled out their measure for particular criticism. The park bill's advocates maintained their vigil in Austin, working with Senator Winfield and Representative Cauthorn to assess the temper of the legislature. The former told W.F. Ayres that "the Senate was in an ugly mood provoked by discussion of the very controversial budget bill." Lieutenant Governor Stevenson advised Winfield "to wait for the proper opening when the members were in a better frame of mind generally." Everett Townsend sought out the opinion of a former legislator, Judge Walter E. Jones, identified by Townsend as "probably the best informed man in Austin on just what is going on in the legislature." Jones dismissed fears about the lawmakers' state of mind, reminding Townsend that "no bill of importance has passed either house." He predicted "no serious trouble ahead," and "advised to leave well enough alone." All parties consulted by park sponsors counseled against intervention by NPS officials from Washington, yet the state parks board's Richardson noted that "the younger House members from East Texas . . . are for the Big Bend bill, but are going to try to hang on an amendment providing for establishment of the Big Thicket also as a National Park." Given the interest growing in the state for national park units, L.C. Fuller, state supervisor of recreation studies for the NPS, suggested to Maier that "a telegram from the Secretary or the Director should be prepared and held in readiness for dispatch to the Governor at the proper time." He then closed his "confidential" memorandum to Maier by noting the attitude expressed by Townsend, "who thinks the bill will pass but has recently placed added emphasis on the word 'dam' which always precedes the word 'schoolteachers' in his conversation." [22]

Despite these obstacles, sponsors of Big Bend National Park persevered in their lobbying efforts throughout the spring of 1939. By April 28, the Texas State Representatives had voted 23 to 2 in favor of the measure, and sent it over to the state senate. Conrad Wirth kept NPS director Cammerer apprised of the Big Bend legislation, informing him that "the bill calls for an appropriation of only $1,000." This Wirth believed "is included merely to give it the status of an appropriation bill," and "the amount can be increased indefinitely in committee in order to make up any deficit in the [fundraising] campaign." This latter initiative still concerned Wirth, who had asked Herbert Maier to "furnish a report on the progress." Wirth then reminded Cammerer of the significance of FDR's personal endorsement of Big Bend to Governor O'Daniel, and of Interior Secretary Ickes's request to Vice President John Nance Garner to do likewise, but "so far the Vice President has not indicated what action he will take." Yet the newspapers of Texas found the state house's actions reassuring, as the Dallas News of April 30 reminded its readers: "With many families already planning summer trips, it is not too early to point out some of the advantages of vacations in Texas." "If one is not hardy enough for the still undeveloped wilds of the Big Bend," said the News's editors, "there are attractive dude ranches in the Davis Mountains and fishing and bathing resorts on the Gulf coast." The Dallas News noted how "with help from the Civilian Conservation Corps, the state parks of Texas have undergone a surprising transformation in the last six years." The CCC had expanded recreational sites, "and accommodations have been provided for picnickers and overnight visitors." Big Bend National Park would become part of this outdoor experience, said the News, and "despite the lure of far-off places, it will pay to see Texas first." [23]

While Texans contemplated a visit to their future national park on the Rio Grande, and lawmakers in Austin prepared to pass a bill making that more of a reality than ever, the fundraising campaign continued to lag. A telling example of the caution exercised by Amon Carter and the park sponsors came on May 3, when Adrian Wychgel of New York City wrote to Arno Cammerer about receiving a copy of the NPS booklet promoting Big Bend. "It was awfully good of you to place my name on your mailing list," said Wychgel, "and I appreciate this courtesy." Whether Wychgel was sincere or cynical, he told Cammerer: "I am still urging the Committee in Texas to get started on the money-raising effort." Wychgel had been informed by "Mr. Carter and his associates . . . that when the time is right, that my services will be retained in connection with the fund-raising endeavor." Yet the New York consultant was "fearful, to speak very confidentially to you, that like all matters of this kind, the committee is just putting off from month to month." Wychgel had heard of the imminent passage of legislation in Austin, a move that he considered "in the right direction." Yet "the matter of interesting the public and engaging their attention should not be delayed any longer." Sounding as if he saw little chance for his firm to bid on the fundraising contract, Wychgel advised Cammerer: "Knowing how interested you are in seeing the Big Bend Project become a National Park, I am just wondering if there is anything you could do to urge the Committee to immediate action." [24]

Wychgel's anxiety had some basis in fact, even when the Texas state senate on May 12 passed and sent to the governor the Big Bend measure. The Houston Chronicle carried a statement from Amon Carter that "passage . . . of the Big Bend Park bill and signing of the same by Governor O'Daniel did not mean that the park is now an accomplished fact, or even near an accomplished fact." Carter told the Chronicle that "the real work is now before us," the raising of some $1.5 million to acquire land "which the bill gives us the authority to buy and to present to the National Park Service." The Star Telegram publisher noted that "this bill is only enabling legislation." He then outlined the steps to be taken by the "Texas Big Bend Park Association," with a "'working fund'" that still required "'that all subscribers . . . complete their quotas so that the state-wide campaign can begin.'" Carter declared that tourism in 1938 had generated some $45 million in Texas, and that "a national park will double and treble this sum the first year." He also cautioned readers of the Chronicle that "'the impression gained circulation that the recent action of the legislature in passing the enabling bill has been the final step toward establishment of the park.'" Carter instead declared that "the purpose of this statement . . . is to correct this wrong impression and to let the public know that the fate of the park is now in the hands of Texas as a whole.'" Once Lone Star citizens contributed to the fund, said Carter, "'we hope to complete the campaign in short order, as we want to dedicate the park during the administration of President Franklin D. Roosevelt and Vice President John N. Garner.'" [25]