Chapter Nine:
New Directions and a Second Century (1972-1990)
(continued)
The Baby Boomers And The Backcountry
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In the early years of the 1970s the demographics of
the postwar "baby boom" led to an extraordinary assault on the
backcountry resources of Sequoia and Kings Canyon national parks. The
combination of unprecedented numbers of young people, increasing
environmental awareness, and great strides in the quality of backpacking
equipment resulted in the single most drastic short-term use increase
borne by the two parks during their first century. In 1962, 8,054 people
entered the backcountry of the two parks; thirteen years later, the
comparable figure totaled 48,207, an increase of nearly 600 percent.
By 1973, a decade of rapid growth in backcountry use
had made the trend fully obvious to parks' management. Already, in July
1972, park officials had imposed daily use quotas on the popular Rae
Lakes Loop in Kings Canyon National Park. During the winter of 1972-73,
they worked rapidly on the new Backcountry Management Plan, to
address these problems and update the 1963 plan. In May 1973, the Park
Service released the new plan, and with it came bold new regulations
aimed at tighter control of both human and stock use. [23] The plan established both seasonal and
daily wilderness permit limits along with limits on total group size,
length of stay per person, and the number of stock per party. New rules
excluded campers from within 100 feet of water sources and from meadows
and the grassy margins of lakes, prohibited open use of soap or
detergents, and required that only dead and down wood be burned.
Backpackers thenceforth were required to pack out all their trash. Park
managers closed a number of areas to camping entirely and restricted
access in the bighorn sheep areas near Sawmill, Baxter, and Shepherd
passes to all but scientists or those with special permits. Stock-use
capacity remained more loosely controlled, but several more meadows were
ruled off limits. Of greatest significance, the new Backcountry
Management Plan extended the permit/quota system to all of Kings
Canyon National Park during 1973 and to both parks in 1974. Although the
Park Service still strove to expand its protective control in the
backcountry, the agency finally achieved there what it had shied away
from in the frontcountrylimits on the number of visitors allowed
on the land.
During the following decade backcountry managers
continued to expand controls as particular problems became apparent. The
issue of campfires soon grew to be a problem as the number of users
remained high. In alpine areas wood grew so slowly that once consumed by
campers it might take centuries to replace. As the 1970s proceeded, the
Service closed one area after another to camp fires. Finally, the agency
imposed broad-based restrictions that prohibited all fires above certain
altitudes. Often the new problems demanded the addition of physical
facilities, a fact that worried parks' officials as they attempted to
maintain a wilderness atmosphere in the backcountry. The problem of
bears, in particular, fueled wilderness management debates of the
National Park Service. The great increase in human activity in the
backcountry eventually attracted to the wilderness the same sort of bear
activity that had long plagued frontcountry campgrounds in the two
parks. As adaptable and intelligent animals, bears recognized that
backpacker food justified summer forays into areas which previously had
not supported them. Park Service responses, none of them truly
successful, included seemingly endless attempts to teach the public how
to hang food so that bears could not reach it, experiments with the
design and manufacture of portable bearproof canisters, and installation
of bear cables and ultimately bear boxes, both designed to separate
bears from human food. Each of these tactics had its flaws, however.
Visitor training efforts were not consistent enough in their results to
discourage bears, and the introduction of physical measures like bear
boxes led quickly to such heavy use at designated campsites that
sanitation and congestion problems developed.
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Not all of the backcountry's needs could be resolved
locally. In 1984, Congress finally took up again the long-standing
question of wilderness status for the backcountry of Sequoia and Kings
Canyon national parks. In that year Congress, formally designated 85
percent of the two parks as wilderness. This figure matched that
proposed in the 1971 Master Plan, which had been savagely
attacked at the time by the Sierra Club and other preservation groups.
Their acceptance of the final proposal a dozen years later was due to
several changes and factors. First, the final 1980 recommendation of the
agency had eliminated the "swiss-cheese holes" which could, in theory,
be later developed. In addition, the wilderness status of the two parks
had really ceased to be a significant political issue, because the Park
Service managed the lands in question as de facto wilderness, and would
have had to consult the public through the NEPA process if it had
decided to develop the area. Finally, the proposed designation had been
attached to a much larger and more complex California Wilderness Bill.
This both delayed passage and defused potential challenge of individual
parts of the legislation. Thus, the Park Service and preservationists
opted not to object when the final bill omitted several areas of Sequoia
National Park that had been parts of previous wilderness proposals,
including the Yucca Mountain/North Fork area west of the Generals
Highway, the Hockett Meadow country, and all the alpine basins in the
Mineral King addition. On the other hand, with the exception of the
floor of Kings Canyon from Cedar Grove to Copper Creek, the entire main
section of Kings Canyon National Park received wilderness
designation.
Ironically, the most intense backcountry management
controversies of the 1980s in the two parks did not come from
backpackers, but rather from stock users, a group that represented
barely 5 percent of backcountry users. In the early 1980s the Service
initiated a new planning effort for the parks' backcountry that stirred
up a great deal of controversy by attempting to place additional limits
on stock use. In reality, the attempt reflected not a change in
perceived resource impacts but a change in park standards. Prior to the
1960s, when backcountry use remained below 10,000 people a year and
stock use comprised a major percentage of that use, the Service received
few complaints about the impacts of horses and mules on trails and
meadows. All this changed, however, with the arrival in the 1970s of
tens of thousands of backpackers. Trail hikers responded angrily to
muddy, stock-disturbed trails. Additional impetus came from the
increasing realization that preservation of backcountry resources
required careful attention to the impacts of exotic animals like horses
and mules on fragile alpine vegetation. Perhaps park managers, who had
become accustomed to dealing with fairly cooperative backpackers,
underestimated the stubborn influence of the stock users.
The controversy arose from the efforts of the Service
to update the parks' management plans for the backcountry. As the 1980s
began, the 1963 Backcountry Management Plan remained technically
in effect, together with its 1976 supplement. Backcountry use patterns
and visitor expectations had changed so much during the 1970s, however,
that the need for a new plan had become obvious. In February 1984, the
Service released draft environmental assessments for both a new
Backcountry Management Plan and a new Stock Use and Meadow
Management Plan. In his news release about the two new complementary
plans, Superintendent Boyd Evison announced a thirty-day public comment
period. [24] However, instead of the quiet
public support for the plans, which planners had come to expect in
recent years, the park received strong protests from an organization of
private stock users known as the High Sierra Stock Users Association
(HSSUA). It demanded much more time to study and evaluate the Service's
proposals. On March 29, Evison, under political pressure and sensing
that public review of the two plans would not be as simple as previously
hoped, announced that the review period would remain open for the
remainder of the calendar year. No steps to implement the new plans
would be made during that period. [25]
During the summer, distrust of the proposed plans
mounted, despite the fact that the Service intended the plans as a mere
clarification of needed backcountry controls. Particularly upsetting to
private stock users were proposed new controls on when stock could be
used in the backcountry and which of the parks' many meadows would be
closed completely to grazing. Then in the fall, rumors began circulating
among stock users that animal use would be phased out of the parks
altogether. They responded furiously with letters and calls of protest.
Critical among their complaints was the apparent lack of a connection
between regulation or closure on one hand and demonstrated actual damage
on the other.
By March 1986, when Regional Director Howard Chapman
finally authorized implementation of the two plans, two full years had
passed since the Service initiated what in had intended to be a mere
thirty-day comment period. As finally authorized, the Stock Use and
Meadow Management Plan in particular reflected a great deal of input
from both private stock users and commercial packers. Through careful
negotiations with user groups the Service eventually gained most of what
it originally thought important, but the agency had suffered much
negative criticism and substantial political pressure on behalf of the
stock users. For the first time since the 1974 public meetings about
Giant Forest, the Service had received significant public criticism of
its plans. Several times during the previous decade, the parks
successfully resolved difficult problems through public input from
limited interest groups. When it issued drafts of the Backcountry
Management Plan and accompanying Stock Use and Meadow Management
Plan, the Service was reminded that sometimes the public that chose
to pursue an issue could be critical and unsupportive of the government
position. Another important issue came to light during the backcountry
use controversies of the 1980s. Park management realized that
backpackers, the user group they had expected to dominate the planning
process, did not involve themselves to any significant degree. Several
possible explanations were advanced, but perhaps the most significant
was that the baby-boom generation had begun to age. Backcountry use
dropped significantly in the middle 1980s. Following the peak year of
1975, when over 48,000 people entered the backcountry, annual use
stabilized for a decade at approximately 42,000. Then, beginning in
1985, backcountry entries dropped and stayed below 40,000. In 1988
barely 32,000 people entered the Sequoia-Kings wilderness. As the decade
ended, the demographic implications of wilderness management in an aging
America were just beginning to sink in.
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