Indiana Dunes Administrative History

Operations, 1973—1976 (continued)

1975

On January 1, 1975, the National Park Service received a Special Use Permit from the General Services Administration for the deactivated NIKE missile base. The permit became void the following month when the entire facility passed into Park Service ownership. The lakeshore asked for Midwest Region funds to rehabilitate the base structures into headquarters for administrative and land acquisition offices, the environmental education program, seasonal dormitory space, and a future Youth Conservation Corps center.

Notice to proceed for rehabilitation and construction at the Tremont visitor center came on August 4. The $430,000, six—month project resulted in the rehabilitation of the auditorium, basement, and front building facade; installation of a "bio—disc" sewage treatment plant; relocation, black topping, and landscaping of the parking area; construction of restroom facilities; and construction of an interpretive trail with handicapped accessibility.

Two weeks later, construction activities began at West Beach following completion of the environmental impact statement (EIS).* Tonn and Blank, Inc., of Michigan City began a $1.9—million development scheduled to be completed by August 16, 1976. West Beach facilities included a bathhouse with a capacity of 3,500 people, an entrance and service road, 600—car parking lot, and utilities.

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*The Service and Department were accused of unduly delaying the EIS to stall West Beach development. Whitehouse noted that an EIS typically was so complex and reviewed at so many levels that it would inevitably be sent back several times to be redone—a practice not unique to Indiana Dunes. See Whitehouse interview, 11 March 1987.

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The land acquisition program finally moved ahead after two years in the doldrums. With three million dollars in fiscal 1976 funds available on July 1, the program faced the disheartening specter of a Federal hiring freeze. Receiving a special exemption, the lakeshore was able to hire between fifteen to twenty temporary employees to administer the program funds. Because of the remodeling of the visitor center and the general lack of space there, the Land Acquisition Office moved to an office building in Michigan City's Marquette Mall complex.

In maintenance, 1975 saw three more government quarters added bringing the total to ten. Workers renovated a building in the Roads and Trails maintenance area for curatorial storage. The Neighborhood Youth Program began and, although no new activities or facilities were initiated in 1975, the youths assisted lakeshore maintenance crews with various projects. Area Eagle Scouts assisted the division in building foot bridges across streams and spreading wood chips along trails. For one month during the summer, a non—residential Youth Conservation Corps (YCC) program also rendered maintenance assistance.

Early in the year, Superintendent Whitehouse began negotiations with the District Engineer of the Indiana State Highway Department to transfer a 5.2—mile segment of Highway 12 to Park Service ownership. The scenic roadway, which stretched from west of the Bethlehem Steel entrance east to Kemil Road, was to serve as a parkway under the Lakeshore's Master Plan. By mid—year, the highway commission announced the relocation of Highway 12 from the intersection of U.S. 212 and 20 east of Michigan City west to where Highway 12 and 20 converge in Gary. In this area, U.S. 12 would follow U.S. 20.

Two additions to the interpretive staff had positive implications for the park as well as the Region. Interpretive Planner and Specialist Robert Foster and Communications Specialist Helen Steeves entered on duty in 1975 assigned to help not only Indiana Dunes's interpretive/naturalist program, but those of Lincoln Home National Historic Site (Illinois), Lincoln Boyhood National Memorial (Indiana), George Rogers Clark National Historical Park (Indiana), Sleeping Bear Dunes National Lakeshore (Michigan), and Pictured Rocks National Lakeshore (Michigan) as well. [21]

Securing ownership of the beach at Ogden Dunes was always a Lakeshore goal—one which became clouded in January 1975. At that time, the Ogden Dunes Home Association, owner of the beach, deeded it to the town of Ogden Dunes. Taking advantage of the 1966 lakeshore organic act that public lands within the lakeshore boundaries could only be acquired through donation, the deed suggested that the Ogden Dunes beach could not be purchased without the town's consent—an unlikely event. [22] However, the park's legislative history includes a stipulation in Senate Report 94—991 that the Service can acquire private property "when private property is transferred to public ownership subsequent to the authorization of federal acquisition." While the move seemed to be designed to frustrate acquisition by the national lakeshore, the effort did not succeed. [23]

Another public relations concern involved Northern Indiana Public Service Company's (NIPSCO) Michigan City generating station. The company installed strobe lights at regular intervals up and down the stack. The strobe lights, intended to serve as a beacon of safety for low—flying aircraft, attracted even more attention to the plant from scenic vantage points in the national lakeshore. Concerned about the visual blight, the Indiana Dunes Advisory Commission requested that J. R. Whitehouse investigate the matter. In discussions with Federal Aviation Administration (FAA) officials, Whitehouse discovered that the elaborate strobe lighting was unnecessary. Contacting NIPSCO, Whitehouse secured an agreement whereby the company removed all but the top tier of lights. [24]

1976

An amendment to the Operation of the National Park System (ONPS) appropriation provided $296,000 for Indiana Dunes to cover operating costs of the new Bailly Administrative Area (the former NIKE missile base); monitor air, water, and noise pollution; removal of structural debris; and beautifications along the new U.S. 12 scenic parkway. During the year, four new permanent full—time positions were filled from an authorized five add—on positions. Four less—than—full—time positions were converted to permanent full—time bringing that total to thirteen. [25]

Rehabilitation of the NIKE base came to $186,000 and was administered by the Midwest Region's Office of Planning and Resource Preservation which provided specifications and contract supervision. Interior modifications were performed by day—labor contracts.

Maintenance activities became more refined in 1976 as more structures and areas became operational. The maintenance staff grew only slightly. Permanent employees totaled two, less than full—time stood at six, and seasonal laborers numbered twenty—seven. The division added another unit to maintain landscaped areas. With the contractual activation of three buildings at the NIKE base, the Maintenance Division incorporated the following areas into its jurisdiction: 1) ranger activities* and YCC storage and office space; 2) a YCC dormitory; and 3) a mess hall. Workers continued cleaning five miles of beach each day, seven days a week; maintained three and a half miles of the Tremont horse trail and three miles of other foot trails; and maintained all park buildings including ten government quarters, five maintenance area buildings, and the visitor center and headquarters buildings. Laborers also installed water and sewer lines and enlarged the parking lots at East State Park Road and at Central Avenue.

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*Energy conservation measures mandated that this division relocate to the basement of the Tremont visitor center, only to return to the former NIKE base in mid—1977. See former Special Assistant to the Chief Ranger John Townsend to author, review comments, February 1988, Cultural Resources Management files, Midwest Regional Office.

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Interpretation and Resource Management programs focused on observing the United States Bicentennial of the Revolution while striving to garner increased participation and awareness in the national lakeshore. The division launched an intensive five—day orientation training course for the fifteen—member seasonal interpretive staff. While the visitor center renovation progressed throughout the year, an open house on June 5 and 6 featured a discussion by Pulitzer Prize—winning author Edwin Way Teale and sneak previews of the Harpers Ferry Center—produced audiovisual program," A Patch of Green."

Restoration activities at the Bailly Homestead began in January 1976 following public hearings and final reviews. Professionals at the Denver Service Center completed a historic structure report which determined the historic period for Homestead restoration at 1916 and 1820s for the other structures. A primary interpretive theme was to show the progress of the Bailly family through several generations. Work performed included demolition and removal of a concrete block addition; reconstruction of the front and rear porches; installation of a new heating system; installation of a new roof; painting; replacing deteriorated logs and adding wood shingle roofs to the historic out—buildings; construction of a trail system uniting the Bailly complex; and installation of three audio—visual stations and wayside exhibits. [26]

Completion of the exterior restoration of the Bailly Homestead occurred in time for a Bicentennial—flavored dedication on July 11. Two—hundred—fifty people attended the brief ceremony led by Superintendent Whitehouse with dedicatory remarks by Representative Floyd Fithian. Following the ceremony, the National Park Service—sponsored traveling play "We've Come Back for a Little Look Around" performed on the Bailly Homestead grounds. [27]

Behind the scenes, however, a controversy raged within the Park Service over the historical significance of the Bailly Homestead. Based on the history and significance section of Denver Service Center Historian A. Berle Clemensen's Historic Structure Report, Midwest Regional Historian David A. Clary believed the Bailly Homestead's popular significance did not reflect historical accuracy. In response to Clemensen's conclusion that the property be deleted as a National Historic Landmark from the National Register of Historic Places, Clary recommended a review of the Bailly Homestead's original statement of significance. The controversy was nothing new. For several years, historians in the Midwest Regional Office, Washington Office (including Chief Historian Harry Pfanz), and the Denver Service Center were dubious about the national significance of Bailly Homestead. Clary stated, "The significance of Bailly Homestead at the time of its landmark designation [1965] seems to have lain in issues more recent than historic." [28]

The issue struck a nerve at the lakeshore. For many citizens, the Bailly/Chellberg complex represented the "heart" of the Federal park because the enormously popular festivals were held there. Bailly/Chellberg was a place where Democrats and Republicans, conservatives and industrialists came together and achieved a oneness seldom realized in the area. According to Whitehouse:

There was a meeting of the minds and all at once Indiana Dunes became a viable thing in a lot of minds that wouldn't even consider it before. Had nothing to do with historical significance. The only thing that a lot of people would have said, "Well, look, they're backing out; they're backing out of Indiana Dunes and they're saying nothing's of consequence any longer." [29]

While not objecting to any reevaluation, Superintendent Whitehouse informed Midwest Region:

Our only question is whether this is a propitious time. We suggest it is not, primarily because of the restoration work now being done, the large amount of publicity associated with it and the developments that are to be started this fall.

Whether the site is on the Registery of National Historic Landmarks or the National Register of Historic Places probably would not mean a great deal to the general public. It is only that the process of formally changing the designation might be construed by some as unnecessarily lowering the status of a locally cherished symbol.

Regardless of whether the request for restudy goes forward promptly, our suggestion is that the formal redesignation be delayed for perhaps a year or so. [30]

No reevaluation took place; the Bailly Homestead remains listed as a National Historic Landmark.

A team of Park Service historical architects visiting the lakeshore evaluated buildings within the boundaries against National Register criteria of eligibility. In the team's opinion, six houses in Beverly Shores transplanted from the 1933—34 Chicago World's Fair were eligible for nomination to the National Register. This set in motion a process which culminated in 1986.

In another preservation vein, Advisory Commission Chairman William Lieber successfully lobbied Assistant Secretary of the Interior Nathaniel P. Reed to utilize the Secretary's Contingency Fund to purchase Hoosier Prairie. Arguing that the ecologically unique Hoosier Prairie was in danger of commercial or residential development, Lieber believed acquiring the area expeditiously would lower the cost of any future park expansion bill. Whitehouse agreed. Even though Hoosier Prairie was ultimately included in the 1976 expansion bill, he believed the detached unit, some thirty miles away, should be managed by Indiana. The lakeshore simply could not spare the manpower. At the Commission's May 22 meeting, Lieber proudly announced Secretary Morton had approved the use of the Contingency Fund. With matching State funds, the Hoosier Prairie could become a State Nature Preserve under Indiana's administration.

Coordination of programs between the national lakeshore and the Dunes State Park began in earnest following an initial strategy meeting in Indianapolis in January 1976. Meeting with Department of Natural Resources staff and the Dunes State Park Manager, a new spirit of cooperation between the two parks emerged. [31] The group approved signing for Interstate 94 indicating "Indiana Dunes Recreation Areas"; once visitors arrived in the area, more specific signage would direct them to their choice: the national lakeshore or the state park. [32] The festering question of the Dunes State Park donation—a thorn of contention locally—had faded over the ten years since the national lakeshore's authorization. Advisory Commission Chairman William Lieber believed the issue was moot. The Dunes State Park was among the top money—makers in the Indiana State Park System, supporting those units with low visitation. Because two—thirds of the state park operated as a nature preserve, donation of the nature preserve segment would be more complicated than the remaining one—third. Federal acquisition would not only require approval of the Indiana Legislature, but decommissioning by the Indiana Department of Natural Resources Commission and final approval by the Governor as well. Lieber did not believe the donation would ever transpire. Reassuring a fellow Hoosier, Lieber wrote,

It is the "crown jewel" of the National Lakeshore but it will remain in state hands. Naturally, the National Park Service would like to have the best part of our Lakeshore but the State of Indiana has too much heritage and pride plus the need for economic support derived from this marvelous facility. [33]