Chapter Nine:
New Directions and a Second Century (1972-1990)
(continued)
Giant Forest Reconsidered
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Public involvement in the planning process soon had
an unexpected and startling impact. In response to planning problems
raised about Giant Forest in the Master Plan, the NPS decided to produce
a "Development Concept Plan" (DCP) for the Giant Forest/Lodgepole area.
Preparation of the development plan fell to a private contractor,
Sasaki, Walker Associates, working in conjunction with the NPS
systemwide planning staff at the agency's new Denver Service Center.
During preparation of the DCP, Sasaki, Walker Associates rediscovered
what others had known for several decadesthat the preservation of
Giant Forest required significant reductions in development within the
grove. The new DCP described the visitor experience at Giant Forest in
starkly unflattering terms:
Upon cresting the hill. . . the visual impression in
Giant Forest Village and Kaweah is that of old dilapidated buildings
bounding a rather large, disorderly area of asphalt pavingcars
every wheresome at a standstill . . . with occupants reading
signs. . . . This anticlimactic, confusing and disorderly arrival brings
traffic to a standstill and prolongs the frustration caused by the climb
into the Giant Forest. [2]
To correct the dismal situation, the DCP called not
only for the relocation of a portion of the accommodations, as had the
recent master plan, but also for full removal of all overnight visitor
facilities from the grove. Once again, Colonel White's grand plan
resurfaced, this time with a variety of complicated new twists. New
structures at Lodgepole would replace the hundreds of small Giant Forest
concessioner cabins. Near Wolverton, on the site of the existing pack
station, the DCP proposed the construction of a large "staging area,"
which would serve as the terminal for interpretive bus tours of Giant
Forest. The tours would make use not only of the existing Generals
Highway between the Sherman Tree and the Village, and the existing Moro
Rock/Crescent Meadow Road, but also of a new interpretive roadway to be
constructed across the northeastern portion of the grove, connecting
Crescent Meadow with Wolverton. Thus, the DCP went well beyond previous
plans for removing traffic from the grove by attempting to replace auto
touring with public transportation.
On the issue of camping, the plan remained vague. The
1971 Master Plan called for maintaining existing campsite
capacity and relocating the Giant Forest campgrounds to the "Clover
Creek-Willow Meadow" area north of Lodgepole. However, by August 1974,
after the three remaining Giant Forest campgrounds had been closed, the
DCP itself made no specific allowance for any camping construction at
all, except to note that: "All camping at Lodgepole may eventually be
phased out, allowing room for the village development with the balance
of open space to be returned to a more natural state." [3] On several other issues mentioned in the
master plan, including the proposed tramway up Alta Peak, the DCP
remained silent.
In August 1974, a confident Park Service released the
draft DCP to the public and held public hearings in Visalia, Fresno, and
Ash Mountain. At the hearings, required by NEPA, the Park Service ran
directly into a shocking crossfire. Frustrated campers complained
bitterly that first they had lost the Giant Forest campgrounds, and now
the Service wanted to phase out camping at Lodgepole, too, with only a
vague promise of additional development in the undefined future. To the
park's many longtime campers, the proposal to move Giant Forest
Village's functions to Lodgepole was offensive and biased in favor of
lodge visitors. Significantly, however, while repeated critics angrily
attacked the use of Lodgepole for accommodations construction, and
others questioned the need and potential impact of an additional road
through Giant Forest, most supported the concept of removing facilities
from the grove, if only another site could be found for the new
development.
The Park Service's first public hearing under the new
NEPA procedures had not gone well. Nobody on the park staff could have
expected such a vigorous and angry public response. But through the
cloud of criticism, park planners and managers saw the bright light of
opportunity. With apparent public support for removal from Giant Forest,
perhaps it would at last be possible to break the generation-long
stalemate that continued to threaten Sequoia National Park's most
cherished feature. Quickly, the Park Service moved to exploit the
limited public mandate it had received during the summer hearings. In
November Superintendent Henry Schmidt announced that since the public
agreed with the concept of relocating facilities to less fragile sites,
and objected only to the designation of Lodgepole as the new hotel site,
the park would revise the draft DCP and seek alternative development
locations. [4]
In his November 1974 news release, Superintendent
Schmidt promised to have a revised Giant Forest plan available for
public review by early summer, 1975. What came out instead, in May, was
a set of four "planning alternatives" together with a "response
booklet." Stung by the response to the Sasaki, Walker proposal, yet
encouraged by the public's general support for the removal of facilities
from Giant Forest, the Service now proceeded cautiously. The four
alternatives included a "no action" option, which left Giant Forest's
facilities largely intact, and three possible patterns of relocation.
One option followed closely the Sasaki, Walker plan of 1974, while the
remaining two proposed either centralizing most visitor accommodations
at Clover Creek, two miles north of Lodgepole, or scattering the
accommodations through the Lodgepole/Wolverton/Clover Creek region. All
the facility relocation options included proposals for a public
transportation system using only existing roads, and all four proposals
carefully spelled out provisions for maintaining a substantial number of
campsites. [5]
In July 1975, a chastened but quietly optimistic Park
Service held another series of public workshops to accept comments on
the four planning alternatives. Trying to avoid the camping problems
that had blown up so badly the previous summer, these workshops occurred
not only in Visalia and Fresno, but also at Lodgepole Campground. Parks'
officials also took their workshop format to six local service clubs.
Again, several themes came through clearly in the public's response.
Generally, the public strongly supported converting Giant Forest to a
day-use-only area and did not object to a public transportation system,
as long as accommodations and camping were maintained in the
Lodgepole/Clover Creek area and campsite numbers did not drop below the
existing level. Conspicuous in its absence was any strong criticism of
the removal alternatives from Government Services, Incorporated (GSI),
the company that had purchased the Fred Harvey concession operations
within the park in 1972. Previously, Howard Hays and George Mauger had
violently opposed removal for decades, insisting that the public would
never accept accommodations that did not stand beneath the Big Trees.
But now, with visible public support for removal, the new concessioner
remained largely silent, tacitly accepting at least the concept of
change.
Two years passed while professional park planners at
the Denver Service Center analyzed the public comment received in 1975
and converted it into a viable redevelopment concept. Finally, in
December 1977, the Park Service announced the availability of a new
draft plan for the Giant Forest/Lodgepole area. [6] The package the NPS presented to the public
in late 1977 differed markedly from that first experiment of three years
earlier. No longer did the plan set out boldly to solve every problem
once and for all. Indeed, the first words inside the document set a
cautious tone: "This plan has not yet been approved. Its purpose is to
provide planning information for further consideration and discussion,
and it may undergo considerable revision." [7] In content, the new plan drew mostly from
elements evaluated during the 1975 public review. It called for the
redesign of Giant Forest as a day-use-only area, with public
transportation access near Wolverton. At Clover Creek, north of
Lodgepole, the concessioner would build its new lodges, keeping to the
limit of 1,240 pillows established in 1964. Camping would remain at
Lodgepole, with no significant change in the number of sites. Additional
provisions included interim improvement of waste-water processing in
Giant Forest and major changes in NPS employee housing and maintenance.
[8] To meet the requirements of NEPA, an
additional public document supported the new draft DCP, the Draft
Environmental Statement. This 280-page document discussed in detail
the possible environmental impacts of the proposed action. [9] Altogether, the 1977 package, based on public
reaction to the four alternatives of 1975, and supported by a detailed
environmental assessment, reflected how thoroughly NEPA had changed park
planning in Sequoia during the 1970s. Never again would the Service have
the luxury of planning park development without having to explain its
actions to the public.
On December 21, 1977, new Superintendent David D.
Thompson, Jr., announced public meetings to discuss the new plan. At two
February meetings, in Fresno and Visalia, a majority of the attending
public voiced support for the central portions of the scheme. Again, the
concessioner did not object. However, during the public comment period
which followed the meetings, Government Services, Inc. President Walter
Williams clarified the concessioner's stance with an ominous warning:
"in our past comments we have not suggested that it was within the
concessioner's purview to argue against the relocation of visitor
facilities from the Giant Forest Village area." Yet, Williams continued,
"the scope of concessions activities at Sequoia/Kings Canyon National
Parks is not sufficient to finance, either through debt or revenue . . .
a capital investment approaching $11 million." [10] Williams had picked that figure from the
total project construction costs estimated in the new draft DCP, which
called for almost $20,000,000 of NPS work and over $11,000,000 of
"concessioner-related costs." During the 1980s, the issue of economic
feasibility for the concessioner would prove to be yet another stumbling
block in the ongoing effort to restore Giant Forest.
In November 1979, still moving slowly and
deliberately, the Service issued the final Environmental
Assessment for the project, and on December 31, 1979, the last
public comment period for that plan passed without additional surprises.
NPS Regional Director Howard Chapman quietly approved the final
Development Concept Plan for Giant Forest/Lodgepole on January
17, 1980. The final plan differed little from the second draft that had
been released in 1977. For the first time since 1952, when the removal
effort instigated by Colonel White collapsed, the Park Service had a
formal plan to restore Giant Forest and correct the development mistakes
of the 1920s. It took nearly a decade to secure the new plan, starting
from the vague 1971 Master Plan and the 1972 concession contract
which called for no real changes, and persevering through a seemingly
endless cycle of planning documents and public meetings. Those meetings
proved crucial, however, for they allowed the public, an interest group
whose views had long been assumed by both the NPS and the concessioner,
to speak for itself about Giant Forest development, and to show its
willingness to accept change. With public support, the other necessary
aspects of the plan, including acceptance by the concessioner, followed
in due time.
With the plan in place, restoration of Giant Forest
moved from the arena of policy to the arena of implementation. During
the early 1980s the fight to restore Giant Forest became a battle for
money, a battle intensified by a new round of federal budget cutting
under President Ronald Reagan which began in the same year that the
final Giant Forest plan was approved. By 1982, parks' managers perceived
the funding shortage to be so acute that they feared that removal of
Giant Forest facilities might be delayed indefinitely. In response to
this fear, and to pressure from the concessioner to upgrade worn out
facilities in Giant Forest, the park reluctantly granted permission to
replace fifty old housekeeping cabins in the Giant Forest Village area
with fifty new motel units. Park planners retained enough faith in the
plan, however, to insist that the new buildings be constructed modularly
so that they could be dismantled and moved.
The 1982 push by the concessioner to improve
facilities in Giant Forest led finally to a commitment by the director
of the Park Service to initiate funding for Clover Creek development in
fiscal year 1984. Actual work on the site began that summer. During the
next three summers the NPS constructed roads and utilities at the site,
including a four-mile water line from Wolverton Creek, and a new
maintenance yard at nearby Red Fir. By the end of 1987, when national
funding shortfalls caused work on the project to stop temporarily,
nearly half of the necessary Clover Creek infrastructure had been
constructed. During the same years the money issues raised by the GSI's
Walter Williams began to receive attention. An agreement in 1987 finally
resolved the value of the company's existing facilities in Giant Forest,
all of which the government had to purchase before they could be closed
and razed. At the time these words were being written, removal of
visitor facilities from Giant Forest looked more likely than at any
previous time in the history of Sequoia National Park. With strong
public support, with tacit concessioner acceptance, with new resolve
among Park Service management, and with almost $20,000,000 already
invested, it seemed possible that critical momentum had been achieved at
last.
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