John Day Fossil Beds Administrative History

ENDNOTES

INTRODUCTION

1. Chaney, The Ancient Forests of Oregon, Condon Lectures (Eugene: Oregon State System of Higher Education, 1948), p. xiv.

2. Elizabeth L. Orr, et al., Geology of Oregon (Dubuque, IA: Kendall Hunt, 1992), pp. 21- 22.

3. Thomas P. Thayer, The Geologic Setting of the John Day Country (Washington, DC: Government Printing Office, 1969), p. 4.

4. F.J. Frank and Eugene A. Oster, Water Availability and Flood Hazards in the John Day Fossil Beds National Monument, U.S. Geological Survey Water Resources Investigations, Open File Report 79-1487 (Portland: USGS Water Resources Division, 1979), p. 2.

5. USDI-NPS, Paleontological Research Plan, John Day Fossil Beds National Monument, 1989 draft, p. 9.

6. Ibid.

7. Merriam, "The John Day Fossil Beds," Harper's Monthly Magazine 102:610 (March 1901), pp. 581-590.

8. Shotwell, "A Report to the National Park Service on the Significance, History of Investigation, and Salient Paleontological Features of the Upper John Day Basin, Wheeler and Grant Counties, Oregon," 7/20/67, p. 22, L58 Proposed Areas folder, Klamath Falls Group Office files, John Day Fossil Beds National Monument (hereafter KLFA and JODA).

9. USDI-NPS, Strategic Plan, John Day Fossil Beds National Monument, January 1995, as cited by Jim Hammett, Superintendent, to Gretchen Luxenberg, Historian, Columbia Cascades System Support Office, 6/10/96, p. 2, no file code, copy in author's possession.

10. Theodor R. Swem, NPS Assistant Director, to [Governor] Tom McCall, 1/22/68, p. 1, L58 John Day Fossil Beds #1 1965-1970, KLFA, JODA.

11. The state scenic waterway and federal scenic river designation apply to an identical 147 mile segment from the John Day's mouth to Service Creek; USDI-NPS, Final Wild and Scenic River Study, John Day River, Oregon, September 1979, pp. 15- 18. The John Day and the system of Wild and Scenic Rivers are depicted on U.S. Geological Survey Map 38077-BQ-NA-05M-00, December 1990.

12. The original RNA proposal consisted of two areas: one adjacent to lower Rock Creek and another next to the Sheep Rock Unit's eastern boundary in sections 8 and 17; Benjamin F. Ladd, Superintendent, to Regional Director, Pacific Northwest Region [hereafter PNR], 12/4/85, N2215, Central files [hereafter CF], JODA. The current proposal for Rock Creek RNA and Sheep Rock RNA have somewhat different boundaries; Ken Till interview, 7/24/95.

13. Ladd to Regional Director, 7/2/90, H3019, CF, JODA; see also electronic message from Fred York [Anthropologist, NPS, Pacific Northwest Region] to the author, 2/15/93, H30, CF, JODA.

14. Gretchen A. Luxenberg, Historic American Buildings Survey documentation, James Cant Ranch, HABS No. OR-142, June 1988, p. 1, JODA Library. National Register listing took place on 6/21/84; David G. Talbot, State Historic Preservation Officer, to Daniel J. Tobin, NPS Regional Director, 7/24/84, H32, CF, JODA.

15. Listing took place on 3/20/73; George M. Baldwin, Administrator of Highways, Oregon State Highway Division, to Charles Steele, Mayor of John Day, 4/10/73, L58, CF, JODA. Subsequent correspondence concerning its significance includes Jeffrey G. Barlow, Department of History, University of Oregon, 1/14/76, John Day Fossil Beds file, Oregon Parks and Recreation Division, Salem, and Stephanie Toothman, Chief, Cultural Resources Division, PNR, to Ladd, 4/16/92, H30, CF, JODA.

16. USDI-NPS, Strategic Plan, JODA, January 1995, as cited in Hammett to Luxenberg, p. 1.

17. USDI-NPS, General Management Plan, 1979, p. 7. This statement originated in USDI- NPS, Summary Environmental Assessment, 1976, p. 6, and is found in the Statement for Management in 1976 (part of the same document), p. 160.

18. USDI-NPS, Strategic Plan, JODA, January 1995, as cited in Hammett to Luxenberg, pp. 1-2.

CHAPTER ONE

1. Kathryn Anne Toepel, et al., Cultural Resource Overview of BLM Lands in North- Central Oregon (Eugene: University of Oregon, Department of Anthropology, 1979), pp. 29-30.

2. Jeff Zucker, et al., Oregon Indians: Culture, History, and Current Affairs--An Atlas and Introduction (Portland: Oregon Historical Society Press, 1987), p. 13.

3. Zucker, et al., Oregon Indians, pp. 4-12.

4. Norm Steggell, et al., "Blue Basin Cultural Resource Inventory in Sheep Rock Unit, John Day Fossil Beds National Monument, Grant County, Oregon," MNF/640-1002, October 1981, p. 10; Wilbur A. Davis, "Survey of Historic and Prehistoric Resources in the John Day Fossil Beds National Monument," Report CX-9000-6-0058, May 1977, p. 5. Both reports are in cultural resources vertical files, JODA Library.

5. Toepel, et al., Cultural Resource Overview, pp. 31-74; Luther S. Cressman, "Man's Relation to the John Day Country," in J.C. Merriam (comp.), The Earth Shall Teach Thee, typescript, John Day Fossil Beds file, Oregon Parks and Recreation Department, (hereafter JDFB, OPRD), pp. 5-6.

6. Davis, "Survey of Historic and Prehistoric Resources," p. 4; Donald M. Hines, The Forgotten Tribes: Oral Tales of the Teninos and Adjacent Mid-Columbia River Indian Nations (Issaquah, WA: Great Eagle, 1991), pp. 25-30; Verne F. Ray, et al., Tribal Distribution in Eastern Oregon and Adjacent Regions, American Anthropologist 40:3 (July-September 1938), pp. 385-386; see also Zucker, et al., Oregon Indians, p. 12. W.A. Langille also notes the absence of Indian names or terms in the John Day Basin in "The Mitchell Country in Wheeler County, " 7/31/47, p. 16, typescript, JDFB, OPRD.

7. Zucker, et al., Oregon Indians, p. 87.

8. Zucker, et al., Oregon Indians, pp. 88-89, 93, 103- 105.

9. Description of this auriferous area 50 miles wide and 100 miles long is in Waldemar Lindgren, The Gold Belt of the Blue Mountains of Oregon, U.S. Geological Survey 22nd Annual Report, Part 2 (Washington DC: Government Printing Office, 1901), pp. 551 - 776. The only mining activity to have an effect on lands within the present monument is some oil exploration at Clarno that took place during the 1920s and 1930s; see Jack Steiwer, "Communities: Past and Present," in F. Smith Fussner, Glimpses of Wheeler County's Past, (Portland: Binford and Mort, 1975), p. 29 and photos opposite p. 39, and Geological Report on Part of the Clarno Basin, Department of Geology and Mineral Industries Bulletin No. 5 (Salem: State Printer, 1938). The closest mining activity near Sheep Rock took place at Antone; see Steiwer, "Communities," pp. 17-18. Some exploration for coal apparently took place in the Painted Hills area but has gone undocumented, though the Bureau of Mines has identified areas of impure coal within the John Day Basin; USDI-NPS, Final Wild and Scenic River Study, John Day River, Oregon, September 1979, p. 32.

10. Phil Brogan, East of the Cascades (Portland: Binfords and Mort, 1964), p. 85.

11. Davis, "Survey of Historic and Prehistoric Resources," pp. 2-3. The various editions of Lewis McArthur's Oregon Geographic Names (the latest was published in 1990 by the Oregon Historical Society Press in Portland) have some chronological detail about settlements in the upper basin.

12. Rural settlement in Grant County is extrapolated from the Long Creek Valley northeast of Sheep Rock, though this matches descriptions of settlement in Wheeler County; see William F. Willingham, "Family and Community on the Eastern Oregon Frontier," Oregon Historical Quarterly 95:2 (Summer 1994), pp. 181-183, and F. Smith Fussner, "Overview," in Glimpses of Wheeler County's Past (Portland: Binford and Mort, 1975), p. 117. Most of these people were only a generation or less removed from settlers originating in Virginia, North Carolina, or Pennsylvania; Frank L. Owsley, Plain Folk of the Old South (Baton Rouge: Louisiana State University Press, 1949), pp. 56- 59.

13. Willingham, "Family and Community," p. 183. This pattern is largely that of the Scots-lrish, though somewhat diffused by the time they reached the Ohio Valley; David Hackett Fischer, Albion's Seed: Four British Folk ways in America (New York: Oxford University Press,1989), pp. 759-765. More description of their influence on western migration is in Bil Gilbert's Weltering Man: The Life of Joseph Walker (New York: Atheneum, 1983), pp. 13-28.

14. This generalization applies especially to the area around Mitchell; Steiwer, "Communities," pp. 46-49. It may also apply around Clarno, as Andrew Clarno echoed his forebears in expressing the preference to have no neighbors within ten miles; Phil Brogan, "Viewpoint 'Window' to ages long past," Portland Oregonian 1/7/73, p. 26. The Scots-lrish influence on settlement near Sheep Rock can only be inferred through what is known about Richard Mascall, Frank Butler, and Giles Kirk, though the Officer family is a product of this tradition; see Steven K. Shrader's interview of Eva Murray, 4/17/77, pp. 2, 5-6.

15. See figures in William F. Willingham's "Gold Strikes Spurred Conflicts Here," John Day Blue Mountain Eagle, May 14, 1981, p. 22. It should be noted, however, that Sheep Rock is named for bighorn found in the vicinity during the 1860s; Jack Steiwer, "50 million years in five hours," Portland Oregonian 4/19/70, Northwest Section, p. 13.

16. Judith Keyes Kenny in "Early Sheep Ranching in Eastern Oregon," Oregon Historical Quarterly 64:2 (June 1963), pp. 101-122, provides something of a regional picture of these changes, while references to situation in the Sheep Rock area can be found in Royal Jackson's interview with James and Freda Cant, Part 1, Monograph No. 7, Cant Ranch Oral History Program, CPSU Report 85-7, pp. 10, 29-30, 42. See also the Eva Murray interview of 4/17/77, pp. 4-6.

17. Jane Sikoryak interview, 1/27/93.

18. John C. Merriam, "Report on the Expedition to the John Day Fossil Beds," Science Association of the University of California, Proceedings of Genera/ Meetings, 1:1 (1899), p. 219; Loye Miller, Lifelong Boyhood: Reflections of a Naturalist Afield, (Berkeley: University of California Press, 1950), p. 118. Miller made specific reference to the Bridge Creek area, though this point could also be made near Sheep Rock where W.R. Mascall once grazed 12,000 sheep; see " Dayville Economy, " Pendleton East Oregonian, 6/19/53, p. 9. The situation in 1900 is in marked contrast to that of the 1870s in Wheeler County, when grass supposedly grew as high as a horseman's stirrups; Kathleen T. Buhl, "Sheep Ranching in Wheeler County," in Fussner, p. 86.

19. "Billy Mascall Tells of the Pioneers," John Day Valley Ranger, 3/3/39, reprinted in Grant County Historical Society Newsletter, 6: 11 (6/10/87), pp. 1 -2.

20. Miller, Lifelong Boyhood, p. 117; William A. Langille, "Highway Glimpses of the John Day Fossil Beds area in central Oregon," ca.1948 typescript, p. 6, JDFB, OPRD. For a description of haying for the sheep on Cherry Creek, see Buhl, "Sheep Ranching in Wheeler County," in Fussner, pp. 92-93.

21. Eva Murray interview, 4/17/77, p. 1. Fraud tainted a few of these efforts to acquire additional holdings. The most notable case occurred north of the present Clarno Unit where the Butte Creek Land, Livestock and Lumber Company illegal fenced a large area around 1900; see S.A.D. Puter, Looters of the Public Domain (Portland: Portland Printing House, 1908), pp. 358-366. This case is part of a much wider incidence of land fraud in Oregon around the turn of the century as the subject heading in the Portland Oregonian for 1904 to 1908 indicates. Most of the information about the Butte Creek case appeared in January and February of 1908.

22. Toepel, Cultural Resource Overview, p. 153.

23. Stephen Dow Beckham, Taylor Grazing Act in Oregon, 1934-1984 (Portland: USDI- Bureau of Land Management, 1985), p. 2. This legislation favored cattle over sheep, as indicated by the estimated ten million sheep on public land the year before its passage falling to only 10,000 in 1935.

24. Dick Lawton, "Long History of the Cant Ranch to end soon," Ruralite 11 (April 1976), p. 17. In Wheeler County, where an estimated 200,000 sheep grazed in 1900, their numbers had dwindled to only 4,000 in 1975; see Buhl, "Sheep Ranching in Wheeler County," in Fussner, p. 96.

25. Population increases Fossil and John Day after World War II are largely tied to logging; Toepel, Cultural Resource Overview, p. 158, and Steiwer interview, 3/1/93. Logging and a box factory account for Dayville's highest population of 286, reached in 1950; see "Dayville Economy," Pendleton East Oregonian, 6/19/53, p. 9.

26. J. Arnold Shotwell, "A Report to the National Park Service on the Significance, History of Investigation, and Salient Paleontological Features of the Upper John Day Basin, Wheeler and Grant Counties, Oregon", 7/20/67, p. 12, L58 Proposed Areas folder, Klamath Falls Group Office files (hereafter KLFA).

27. Robert Clark, The Odyssey of Thomas Condon (Portland: Oregon Historical Society Press, 1989), p. 174, and Jane Sikoryak, "Review of Paleontological Specimens and Related Records from the Vicinity of John Day Fossil Beds National Monument," a report submitted to the Pacific Northwest Region, National Park Service, 4/9/88, pp. 90-100, JODA Library.

28. Joseph Leidy, "Remarks on a collection of fossils from...Thomas Condon," Academy of Natural Sciences, Philadelphia, Proceedings, volume 22, p. 112; see also Condon, "The Rocks of the John Day Valley," Overland Monthly 6:5 (May 1871), pp. 393-398.

29. Ellen T. Drake, "Horse Geneology: the Oregon Connection," Geology 6 (October 1978), pp. 587-591.

30. Marsh, "Ancient Lake Basins of the Rocky Mountain Region," American Journal of Science [3rd series] 9(1875), p. 52. The basin has as its namesake a trapper named John Day. It is doubtful that he ever ventured any further up the river after being robbed by Indians in 1812 near its confluence with the Columbia; Lewis McArthur, Oregon Geographic Names (Portland: Oregon Historical Society Press, 1974), pp. 392- 393.

31. J. Arnold Shotwell, "A Report to the National Park Service," p. 12.

32. Shotwell, "A Report to the National Park Service," p. 13; Chester Stock, "Memorial to John Campbell Merriam," Bulletin of the Geological Society of America, 1947, p. 184.

33. Merriam's contributions to paleontology in the John Day Basin are listed in Stock, "Memorial," pp. 187-197. A reading bibliography of newspaper accounts and other references to Merriam and the basin has not been compiled, though one of the first entries would be "What California Scientists Found in Oregon Fossil Beds, " Portland Evening Telegram, 6/21/02.

34. Editorial in John Day Blue Mountain Eagle, 12/1/16.

35. Ibid. For more about how the Worthless Lands Argument has been used in proposals for national park areas, see Alfred Runte, National Parks: The American Experience (Lincoln, NE: University of Nebraska Press, 1987), pp. 48-68.

36. John C. Merriam, Chester Stock, and Clarence L. Moody, "An American Pliocene Bear," University of California Publications, Bulletin of the Department of Geology 10:7 (11/1/16), pp. 87- 109.

37. Stock, "Oregon's Wonderland of the Past--The John Day," Scientific Monthly 63 (July 1946), p. 64. Merriam realized the importance of this discovery as Stock and Moody notified him of the find; Merriam to Stock, 8/2/16, Box 4, C-B 970, Merriam Papers, Bancroft Library, University of California, Berkeley.

38. Luther S. Cressman, "Archeological Research in the John Day Region of North Central Oregon," Proceedings of the American Philosophical Society 94:4 (August 1950), p. 371; Judith A. Farmer, et al., An Historical Atlas of Early Oregon (Portland: Historical Cartographic Publications, 1973), p. 10.

39. The contract stemmed from an Act of Congress dated February 26, 1867, which made transfer of public domain land conditional on road improvements. This legislation followed a series of wagon road land grants made to Oregon beginning in 1864.

40. Jerry O'Callaghan, "Klamath Indians and the Oregon Wagon Road Grant," Oregon Historical Quarterly 53 (March-December 1952), p. 24. "Military" wagon road grants coincided with the federal government's land grants to railroads; James Long, "Of Grants and Greed: How 19th century financiers made off with the biggest transfer of public lands into private hands in U.S. history," Portland Oregonian, 5/23/93, pp. A1, A16-17.

41. Toepel, Cultural Resource Overview, p. 131; O'Callaghan, p. 24; see also Jerry L. Mosgrove, The Malheur National Forest: An Ethnographic History (John Day: USDA- Forest Service, 1980), pp. 35-36, and Jane Sikoryak, "Review of Paleontological Specimens," pp. 122-123. J.H.D. Henderson, the congressman who wrote the land grant bill, was one of the few who defended the road's condition; see "The Dalles Military Road," Canyon City Journal, July 26, 1869, copy in JODA library.

42. This road entered the John Day drainage southeast of Antelope near the head of Currant Creek and then wound its way through Muddy Creek and Cherry Creek, then up Bridge Creek to Mitchell. From there it climbed to joined Mountain Creek, then east to descend Rock Creek. Just north of Antone the road avoided Picture Gorge by taking an upland route, rejoining the John Day's main branch four miles west of Dayville. It is retraced in Lawrence E. Neilson, et al., Pioneer Roads in Central Oregon (Bend, Ore.: Maverick Publications, 1985), pp. 36-62. A map of the road also appears in J. Arnold Shotwell (ed.), Journal of First Trip of University of California to John Day Beds of Eastern Oregon by Loye Miller, Bulletin No. 19 of the Museum of Natural History (Eugene: University of Oregon, 1972), pp. 8-9.

43. Oregon State Highway Commission, First Biennial Report, 1913-1914 (Salem: State of Oregon, 1914). The highway's arrival coincided with installation of the first gasoline pump in Fossil; Mike Wells, "Chronology," in Fussner, p. 131.

44. The road's arrival at the Cant Ranch is an estimate; Royal Jackson, James and Freda Cant, Jr., Part 1, Monograph No. 7, Cant Ranch Oral History Program, Cooperating Park Studies Unit Report 85-7, (Corvallis: Oregon State University, 1985), p. 37. Local resident Walt Weatherford stated that the first road through Picture Gorge was constructed in 1917 and improved in 1922; "Information Collected by Daron Dierks," 5/12/78, p. 2, administrative history file, JODA library.

45. This road, often designated as state highway #5 on maps of the period, followed the present route of state highway 206 from Biggs to Condon, then state highway 19 to Picture Gorge, and what is now US 26 to John Day.

46. Oregon State Highway Commission, "Proposed State Highway System, 1919," map files, Douglas County Museum, Roseburg.

47. Oregon State Highway Commission, Report for the 1924-26 Biennium (Salem: State of Oregon, 1926), p. 23.

48. Oregon State Highway Commission, "Oregon Highway Map, 1938," History files, Crater Lake National Park.

49. VIP [Jane Sikoryak] to Superintendent, "Historic Sites Along Oregon State Highway #19, Sheep Rock Unit, Grant County, Oregon," 5/17/84, p. 3, H1415 Area and Service History, Central Files, JODA.

50. Brogan, East of the Cascades, p. 206. This route had been known as the Ochoco Highway and US 28 prior to its redesignation as part of US 26 in the early 1950s; Oregon State Highway Commission, Biennial Report 1951-52 (Salem: State of Oregon, 1952). p. 64.

CHAPTER TWO

1. Lawrence C. Merriam, Jr., Oregon's Highway Park System, 1921-1989: An Administrative History (Salem: Oregon Parks and Recreation Department, 1992), p. 57.

2. Merriam, Oregon's Highway Park System, p. 261; see also Thomas R. Cox, The Park Builders: A History of State Parks in the Pacific Northwest (Seattle: University of Washington Press, 1988), pp. 49-50. Originally composed of the governor and two other elected state officials beginning in 1913, the OSHC experienced difficulties securing funds from the legislature until Congress passed a $75 million Federal Road Act in 1916. This measure was aimed at improving post roads and encouraged states to organize their own highway departments by providing them with funds; James H. Kunstler, The Geography of Nowhere: the Rise and Decline of America's Man-Made Landscape (New York: Simon and Schuster, 1993), p. 90.

3. These dates correspond to a second Federal Road Act in 1921 and the adoption of a national system of numbered highways in 1925. This corresponded to an increased expenditures, as 1925 was the first year when the nation spent one billion dollars annually for roads; Kunstler, The Geography of Nowhere, p. 90.

4. Merriam, Oregon's Highway Park System, p. 77; David G. Talbot interview, 4/2/93. That year the state parks began to be weaned from gas tax revenue and lost any access to these funds in 1980 upon passage of a ballot measure.

5. Chester Armstrong (comp.), Oregon State Parks History, 1917-1963 (Salem: Oregon State Highway Department, 1965), p. 187.

6. W.A. Langille, "John Day Fossil Beds, A State Park of the Yesterdays," typescript, John Day Fossil Beds file (hereafter JDFB), Oregon Parks and Recreation Department (hereafter OPRD), Salem, p. 2; Oregon State Highway Commission, Eighth Biennial Report, 1927-28, (Salem: State of Oregon, 1928), p. 92.

7. "Report of August Third [1928] Meeting of Highway Parks and Recreation, Portland, Oregon," pp. 2-3, ODOT General Files/History Center, Salem.

8. Merriam, Oregon's Highway Park System, pp. 21-23; Cox, The Park Builders, pp. 49-56. Sawyer argued that composition of the OSHC changed so frequently that parks might not receive as high a priority from future members and thought advisory bodies to be largely ineffectual. He was dismissed by an incoming governor in 1930.

9. Merriam, Oregon's Highway Park System, p. 26; Cox, The Park Builders, pp. 79-103. Boardman has an autobiographical account of his career in Oregon State Parks System: A Brief History (Portland: Oregon Historical Society, 1956).

10. Armstrong, Oregon State Park History, p. 15.

11. Oregon State Highway Commission, Eighth Biennial Report, 1927-28, pp. 2021; Merriam to Sawyer, 8/23/28, and Sawyer to Merriam, 10/1/28, R.W. Sawyer file, Box 157, Merriam Papers, Library of Congress (hereafter MP, LC).

12. Merriam wanted to continue research by Chester Stock, Ralph Chaney, and John Buwalda, and Remington Kellogg funded through the University of California by his benefactress Annie Alexander; see "Annual Report on the Work of the Department of Paleontology, University of California, for the year ending June 30, 1920," Box 3, Alexander file #2, MP, LC, and Carnegie Institution of Washington Yearbook 1921 (Washington, DC: CIW, 1922), pp. 447-451.

13. Merriam to Stock, 6/15/23 and 8/29/23, Box 169, Stock file 1922-25, MP, LC; see also Merriam to Buwalda, 2/8/23, Box 30, Buwalda file 1920-26, MP, LC.

14. Buwalda publicized the maps as important to future research; Buwalda, "Paleontological and Geological Investigations in the John Day Region of Eastern Oregon, " Science 66:1701 (August 5, 1927), pp. 135-136. Although he described the mapping as virtually completed in the article, Buwalda outlined for Merriam what needed to be done during 1928; Buwalda to Merriam, 9/4/27, Box 30, Buwalda file 1927-29, MP, LC.

15. Merriam to Buwalda, 816127, Buwalda file 1927-29 file, MP, LC.

16. Buwalda to Merriam, 8/11/27, Buwalda file 1927-29 file, MP, LC. Buwalda projected the first to be located two-thirds of a mile southeast of Picture Gorge, situated so as to provide a "good statement of the geology to be seen." The second was to be built at what is now the Sheep Rock Overlook. Buwalda also suggested that the cottonwood trees at the south end of Picture Gorge be maintained as a natural area with trails, but no campground; Buwalda, "A Plan for Immediate but Preliminary Utilization of the Picture Gorge Area for Park and Educational Purposes, " 10/25/28, Box 30, Buwalda file 1927-29, MP, LC.

17. Merriam to Van Duzer, 8/18/28, Box 175, Van Duzer file, MP, LC; see also Merriam to Sawyer, 8/23/28, Box 157, Sawyer file, MP, LC. Merriam centered his attention on an area delineated by Township 12 South, Ranges 25 and 26 East, Willamette Meridian.

18. Sinnott to Sawyer, 9/25/28, Box 157, Sawyer file, MP, LC. A state highway engineer also identified available public domain lands in T11S, R26E, but these were not included in the petition; C.W. Wanzer to Sawyer, 9/12/28, Box 138, OSHC file, MP, LC.

19. The temporary withdrawal totaled 1,760 acres. It was based on Buwalda's suggestions for land to be reserved; see "Picture Gorge Area, Reservations Suggested by J.P. Buwalda, September 18, 1928," as part of Sawyer to Secretary of the Interior, 9/24/28, Box 138, OSHC file, MP, LC. The petition is referenced in Sawyer to Merriam, 10/1/28, and Sawyer to E.C. Finney, First Assistant Secretary of the Interior, 10/3/28, Box 157, Sawyer file, MP, LC.

20. The power site withdrawal was made in 1917 and affected 160 acres in Section 20, T12S, R26E; J.W. Donnelly, Registrar, U.S. Land Office, The Dalles, to [William Spry], Commissioner, GLO, 10/13/28, Box 138, OSHC file, MP, LC. Merriam did not appear to be overly concerned about this development, because he wrote to Sawyer and stated that a dam could be handled without interfering with the park; Merriam to Sawyer, 1/24/29, Box 157, Sawyer file, MP, LC.

21. Sawyer to Van Duzer, 4/15/30, Merriam file, Box 12, Sawyer Papers, University of Oregon (hereafter SP, UO).

22. Sawyer to Merriam, 5/14/30, Sawyer file, MP, LC.

23. Merriam to the Secretary of the Interior, 5/15/29, Merriam file, SP, UO.

24. Merriam to Wilbur, 5/31/30, Merriam file, SP, UO. In telling Wilbur that the lands classified as nonrecreational appeared worthless for uses as grazing, mining, forestry, or agriculture, Merriam supported broader application of the term recreation. He acknowledged to Sawyer that it had generally been applied to physical recreation, but emphasized scenic values as enhancing parks established to promote public recreation; Merriam to Sawyer, 5/31/30, Merriam file, SP, UO.

25. Merriam to Sawyer, 6/16/30, Merriam file, SP, UO.

26. Sawyer to Merriam, 11/6/30, Sawyer file, MP, LC.

27. All of it is located in T12S, R26E. The only omission from the 1600 acres originally requested for which there is specific reference concerns 160 acres in Section 20 previously reserved as potential dam site.

28. This consists of six 40 acre parcels located in T11, R25E, sections 1 and 2; Jim Morris, Chief Ranger, JODA, to Chief, Division of Lands, Pacific Northwest Region (hereafter PNR), 2/2/89, L1425 Land Acquisition, Central Files, JODA.

29. OSHC approved the purchase on December 11, 1930; H.B. Glaisyer, Secretary, OSHC, to Sawyer, 1/13/31, Glaisyer file, Box 9, SP, UO.

30. At the end of 1934, Picture Gorge State Park had 1602 acres in a state park system totaling 11,324 acres. By 1965, it had grown to 4,344 acres as part of a system embracing 68,000 acres.

31. Boardman acquired the parcel because of its pictographs; Armstrong, Oregon State Park History, p. 205. It held what was once described as the largest number of pictographs seen anywhere in Oregon; L.S. Cressman, Petroglyphs of Oregon (Eugene: University of Oregon, 1937), p. 23. The site was destroyed in 1964 when the state straightened a curve in the highway; Richard D. Cheatham, Assistant Archeologist for Highways, to Environmental Section, OSHD, 2/9/93, p. 3, archeology file, JODA Library.

32. The easement was intended for a road to go from the highway to the overlook, providing sufficient right-of-way so that cars could stop at two or more points. At the overlook, however, Merriam wanted the automobiles no less than 100 feet away; Merriam, "Memorandum on Proposed Exhibit of Scenic Features in the Picture Gorge Region of John Day Valley, Oregon," 7/28/34, pp. 6-7, Box 21, Boardman file #1, MP, LC. Merriam first discussed what can be seen from the area of the overlook in "A Contribution to the Geology of the John Day Basin," University of California, Bulletin of the Department of Geology, 2:9 (April 1901), pp. 269-314.

33. "Official Park," acquired from James Cant for Picture Gorge Park, June 1935, one sheet, John Day Fossil Beds file, Oregon Parks and Recreation Department, Salem (hereafter JDFB, OPRD).

34. Boardman to Merriam, 12/15/37, Box 21, Boardman file #1, MP, LC. This acquisition had been delayed by attempts to arrange a land swap with a claimant who attempted to file a homestead entry on the tract in 1934; W.A. Langille, untitled memorandum, 8/2/43, JDFB, OPRD.

35. Boardman to Merriam, 1/24/38, Box 21, Boardman file #2, MP, LC; see also "Reconveyance to the United States," 6/17/75, L1429 Land Acquisition, CF, JODA.

36. Langille, "John Day Fossil Beds, A State Park of the Yesterdays," p. 2. Merriam named the dike for Leander Davis who guided the University of California expeditions of 1899 and 1900; Merriam to Boardman, 10/21/35, Box 21, Boardman file #1, MP, LC.

37. Boardman to Sawyer, 10/13/45, Joel David Wolforth, Assistant Commissioner [GLO] to J.W. DeSouza, Assistant Counsel, OSHC, 914145, and Boardman to Wolforth, 10/15/45, Box 14, OSHC file, SP, UO; Boardman to Wolfson, 4/8/48, Box 3, Boardman file, SP, UO.

38. OSHC granted authority to purchase 40 acres of Mascall property south of Picture Gorge, roughly 80 acres of Humphrey property along the John Day River just south of Goose Rock along with the Cant parcels; see Boardman's note attached to "Picture Gorge Park," October 1944 (IR-1-187), one sheet, OSHC file, Box 14, SP, UO.

39. Merriam, Oregon's Highway Park System, p. 39.

40. These tracts are located in T11S, R26E, section 31 and T12S, R26E, sections 6, 7, and 17; "Park Information Sheet, John Day Fossil Beds State Park," 5/17/51, p. 2, JDFB, OPRD. The sale excluded land containing a service station owned by Cant at the junction of state highway 19 and US 26.

41. Boardman had this rationale for proposing a 1600 acre acquisition from GLO; Boardman to President, Carnegie Institution of Washington, 1/20/50, OSHC file, CIW central files.

42. Armstrong, Oregon State Park History, p. 207. This purchase also included a permit for an entrance road.

43. Merriam, Oregon's Highway Park System, p. 51.

44. The Munro tract included a trail easement from the highway to Blue Basin; Armstrong, Oregon State Park History, p. 207.

45. Boardman to Merriam, 10/17/35, p. 1, Box 21, Boardman file #1, MP, LC. See also Merriam, Oregon's Highway Park System, p. 28.

46. Cox, The Park Builders, pp. 86-87.

47. Boardman to Merriam, 4/2/34, and Merriam to Boardmam, 7/12/34, Box 21, Boardman file #1, MP, LC.

48. Merriam, "Memorandum on Proposed Exhibit of Scenic Features in the Picture Gorge Region of John Day Valley, Oregon," p. 5, Box 21, Boardman file #1, MP, LC.

49. "Memorandum under date of July 24, 1934, from Dr. Chester Stock Regarding Development of Viewpoints at Picture Gorge, Oregon," p. 2, Box 21, Boardman file #1, MP, LC.

50. Merriam, "Memorandum on Proposed Exhibit," pp. 8-9.

51. Boardman to Merriam 8/6/34, Box 21, Boardman file #1, MP, LC; Boardman to Henry F. Cabell, Chairman, OSHC, 10/21/42, p. 3, Boardman file, SP, LC. The CCC did a considerable amount of improvement work at Shelton Wayside in 1935 because Boardman acquired 176 acres from Kinzua Lumber Company in 1930; Armstrong, Oregon State Park History, p. 24.

52. Boardman to Sawyer, 9/19134, Boardman file, SP, UO. Construction of roads and parking places was accomplished with state funds and equipment because Boardman thought Merriam's plans so reduced the number of man months that he gave up the idea of establishing a CCC camp to do the work.

53. Merriam to Chester Stock, 8/25/38, Stock file, Box 169, MP, LC.

54. The marker was part of a statewide program initiated in 1937 after Sawyer initiated an effort to make the state more attractive to tourists; Sawyer to H.F. Cabell, Chairman, OSHC, 1/14/35, p. 1, OSHC file, Box 14, SP, UO. Removal of the marker took place in 1979. A photo of it is in W.M. Scofield, Oregon's Historical Markers (Pleasant Hill, Ore.: Souvenir Publishing, 1966), p. 28.

55. Merriam to Vannevar Bush, President, Carnegie Institution of Washington, 9/11/41, p. 1, Merriam folder, CIW Files. A summary of what the committee on educational problems in the national parks accomplished is in the NPS Director's Annual Report to the Secretary of the Interior, 1929, pp. 12-15, and the report for 1930, pp. 18-19.

56. Membership included three from the University of Oregon (Ralph Leighton, Luther Cressman, Warren D. Smith), two from Oregon State College (Ire Allison and Earl Packard), two from the California Institute of Technology (Chester Stock and John Buwalda), two from the University of California (Howel Williams and Ralph Chaney), and the two NPS representatives (Ernest P. Leavitt and George Ruhle). Most of these men had been Merriam's proteges, either as graduate students or as recipients of research funds from the Carnegie Institution.

57. R.W. Leighton, Chairman, "Meeting of Board on Educational Problems of Parks in Oregon," June 15, 1942, p. 4, History files, Crater Lake National Park.

58. Merriam to Boardman, 9/20/38, p. 1, Box 21, Boardman file #2, MP, LC; Leighton, "Meeting," p. 8.

59. E.P. Leavitt, Superintendent, Crater Lake National Park, to Regional Director, Region Four, 1/17/46, p.1, RG 79, 67A772, Box 24723, File 843-03.1 University of Oregon Branch School at Crater Lake, Federal Records Center (hereafter FRC) Seattle. Negotiations with possible publishers never moved beyond the idea stage; "Report of the Sub-committee on Educational Problems of Parks in Oregon, regarding the publication of the book being prepared, dealing with the John Day area," 9/23/43, JDFB, OPRD.

60. Merriam, "Relation of J.C. Merriam to the Continuing Activities in Study of the John Day Region, 8/5/44, p. 3, Box 3, MS Misc. (12th folder), MSS 71/100, Merriam Papers, Bancroft Library, University of California, Berkeley (hereafter MP, BL, UCB).

61. Merriam's vague idea for a museum eight years earlier may have sparked committee member Earl Packard to suggest that a small exhibit located at the highway junction might be situated so that an attendant working at the gas station there could watch it; Leighton, "Meeting," p. 5.

62. Leavitt to Regional Director, 1/17/46, p. 2; Paul and Ellen Ewing, "Lots of Life in Oregon's Old Bone Pile," Portland Oregonian, Northwest Magazine, 11/10/46, p. 6.

63. Phil F. Brogan, "John Day: It's Dame Nature's Own Museum," Portland Oregonian, 8/1/43, p. 6; Leavitt to Regional Director, 1/17/46, pp. 2-3.

64. Leighton, "Meeting," p. 8 (Resolution); Boardman to Cabell, 10/21/42, p. 1.

65. Leighton, "Meeting," p. 5.

66. Extract from "Researches of John P. Buwalda," Annual Report of John C. Merriam, 1942," Merriam Papers, MSS 71/100, Box 3, MS Misc. (10th folder), BL, UCB; Leighton, "Meeting," pp. 5-6.

67. Merriam even mentioned patterning a parkway in the redwood region after one in the John Day Basin; Merriam to Lawrence C. Merriam, 7/27/42, Merriam Papers, Save-the-Redwoods League Collection, BL, UCB.

68. Boardman to Sawyer, 4/10/43, p. 1, Boardman file, Box 3, SP, UO

69. Boardman to Cabell, 10/21/42, p. 4, Boardman file, SP, UO. Other references to the Lake District are in Boardman to Sawyer, 4/10/43, p. 1, and Brogan, "John Day: It's Dame Nature's Own Museum," Portland Oregonian, 8/1/43, p. 6.

70. Boardman to Cabell, 10/21/42, p. 3. Boardman also had difficulty accepting Merriam's proposal to let the public dig in one area, even though he once put forth this idea to Merriam; Boardman to Merriam 4/2/34, Box 21, Boardman file #1, MP, LC. He also had his differences with a proposal from CEPOP members involving concrete replicas of fossilized animals because of possible vandalism.

71. Leighton, "Report of the Advisory Committee on State Parks of the O.S.B.H.E.," 11/21/42, p. 2, JDFB, OPRD.

72. Leighton, "Advisory Committee on Educational Problems of State Parks," 5/26/43, p. 1, JDFB, OPRD.

73. Merriam to Lawrence C. Merriam, 4/15/43, Merriam Papers, SRL Collection, BL, UCB. Charles Sprague's term as governor ended in January 1943, whereupon Earl Snell assumed office and appointed an OSHC headed by T.H. Banfield rather than Cabell; Boardman to Sawyer, 4/10/43, Boardman file, Box 3, SP, UO.

74. Boardman to Sawyer, 5/22/43, Boardman file, Box 3, SP, UO; Leighton, "Advisory Committee," 5/26/43, p. 1.

75. Ralph Chaney, "C.E.P.O.P. Meeting," 9/23/43, p. 3, JDFB, OPRD.

76. CEPOP members in the John Day Associates included Allison, Buwalda, Chaney, Cressman, Merriam, Smith, and Stock. Other scientists who became John Day Associates include LeRoy Detling (University of Oregon), Eustace Furlong (California Institute of Technology), Ralph Lupher (Washington State College) and Charles W. Merriam (U.S. Geological Survey).

77. E.P. Leavitt, Superintendent, Crater Lake National Park, to Regional Director, Region Four, 1/17/46, p. 3; "Minutes of the Meeting of Advisory Board on Educational Problems of Parks in Oregon," 2/17/45, p. 3, RG 79, 67A612, Box 4418, File 0-7.11-1 Advisory Board - National Parks, FRC Seattle.

78. Paul and Ellen Ewing, "Lots of Life in Oregon's Old Bone Pile," Portland Oregonian, Northwest Magazine, 11/10/46, p. 6; Merriam, "Paleontological, Geological, and Historical Research," in Carnegie Institution of Washington Yearbook 1943-44, p. 192. See also the distinctions outlined in Merriam, "Memorandum Regarding Organization of the John Day Project within Activities of the State of Oregon," 6/16/44, Merriam Papers, MSS 71/100, Box 3, MS Misc. (2nd folder), BL, UCB.

79. He specifically mentions an area below Turtle Cove where "horizontal lavas rest upon older formations on the valley's north side"; Merriam, "Memorandum Relating to Preservation of Areas Important in a John Day Reservation," 7/17/43, pp. 2-3, JDFB, OPRD.

80. Merriam to Boardman, 7/19/43, JDFB, OPRD.

81. Boardman, "Proposed John Day Recommendations," n.d., attached to W.A. Langille, "John Day Fossil Beds, A State Park of the Yesterdays," 5/12/48, JDFB, OPRD. In effect, Langille had produced such a pamphlet for this and a number of other state parks as information officer and state parks historian. These mimeographed pamphlets, available on request from Salem, represented most of the effort made to interpret Oregon's state parks during Boardman's tenure.

82. Boardman, "Proposed John Day Recommendations."

83. This bronze plaque is mounted on a rock weighing 3,000 pounds. GSOC members Lon Hancock and Murray Miller selected the rock which had to be moved from its location in a small gorge near the highway between the Cant and Humphrey ranches; Phil Brogan to C.H. Armstrong, 4/25/54, JDFB, OPRD.

84. Armstrong, memorandum to the files, 4/26/54, JDFB, OPRD; "Famed Fossil Beds to be Renamed, Honoring Finder," Portland Oregonian, 5/24/54.

85. Shotwell, "A Report to the National Park Service...", 7/20/67, p. 23; "Development Study at Sheep Rock Parking Area," December 1954, two sheets, JDFB, OPRD. Shotwell's main research interests lay in paleontology associated with the northern Great Basin. Consequently, he took part in identifying fossil mammals excavated near Clarno in the early 1950s; Brogan, "Scientist Noted for Paleontology," Portland Oregonian, 10/31/71, Forum section, p. 5.

86. Shotwell, "A Report to the National Park Service," pp. 23-24. This occurred amid some public outcry for separating state parks from the OSHC because of accusations that the state parks had been improperly managed; see Armstrong, Oregon State Park History, p. 36, and Merriam, Oregon's Highway Park System, p. 42. There may have been a footbridge in the Sheep Rock vicinity about 1970; see Jack Steiwer, "50 million years in five hours," Portland Oregonian, 4/19/70, Northwest section, p. 13.

87. Dunlap to Armstrong, 6/13/58, p. 3, JDFB, OPRD. In response to the interest shown by a committee of Grant County residents, Dunlap also described the location of a possible state park near Mount Vernon to serve visitors traveling US 26 and US 395. This became Clyde Holliday State Park in 1971; see Merriam, Oregon's Highway Park System, p. 168.

88. Handwritten note in "Study of Proposed Development of the Thomas Condon-John Day Fossil Beds State Park," 5/18/59, p. 16, JDFB, OPRD.

89. On page 23 of an untitled transcription, a planner mentioned a conversation with Alexander Munro who named 1918 as being the last "water spout" affecting his alfalfa field outside Blue Basin. The development of this site is summarized in Armstrong, Oregon State Park History, pp. 206-207.

90. Armstrong, Oregon State Park History, pp. 206-207. The park map of this period specifies picnic tables and pit toilets; an untitled transcription of March 3, 1960, provides details on the thinking of how to provide access for visitors.

91. Philip W. Kearney, "Thomas Condon-John Day Fossil Beds State Park," Nonurban Park and Recreation Survey, Field Inspection, April 20 and May 17, 1961, p. 1, JDFB, OPRD.

92. Merriam, Oregon's Highway Park System, p. 51.

93. Kearney, "Thomas Condon-John Day Fossil Beds State Park," p. 1.

94. Horchler, "Thomas Condon-John Day Fossil Beds State Park," Non-urban Park and Recreation Study, Field Inspection, 7/5/61, p. 1, JDFB, OPRD. He also stressed that the store and gas station owned by the Cants be rehabilitated so that the highway junction could add to park visitors' sense of arrival.

95. Horchler, "Thomas Condon-John Day Fossil Beds State Park," p. 3. His recommendations were similar in one respect to Buwalda's in 1928, in that both recommended that the state utilize some of the spring water feeding the Cant Ranch to plant and maintain this overlook; Buwalda, "A Plan for Immediate but Preliminary Utilization of the Picture Gorge Area," p. 3.

96. Horchler, "Thomas Condon-John Day Fossil Beds State Park," p. 4. Like Boardman, Horchler believed that the trails should lead visitors to waysides and not encourage fossil collecting.

97. Horchler, "Thomas Condon-John Day Fossil Beds State Park," pp. 4-5; the attached inventory form pertaining to the Humphrey ranch property has additional description.

98. The 1955 figure of less than 5,000 had increased to several times by 1960; State Water Resources Board, John Day River Basin (Salem: State of Oregon, 1962), p. 17.

99. Figures compiled from the Governor's State Park Advisory Committee, Report and Recommendations on Oregon State Parks, July 16, 1956, p. 15; Merriam, Oregon's Highway Park System, pp. 51-52; and Oregon Recreation Briefs 7 (March-April 1968), p. 2.

100. Merriam, Oregon's Highway Park System, p. 50.

101. Merriam, Oregon's Highway Park System, p. 51, as drawn from Talbot, "Remarks before the Legislature's Interim Commission on Highways," 2/17/66, p. 4, OPRD files.

102. "Thomas Condon-John Day Fossil Beds State Park, Operation and Maintenance Expenditures," [includes figures from 1964 to 1969], JDFB, OPRD.

103. Horchler, "Thomas Condon-John Day Fossil Beds State Park," p. 5.

104. Merriam, Oregon's Highway Park System, p. 50.

105. Chaney, "Quantitative Studies of Bridge Creek Flora," American Journal of Science, (fifth series) 8:44 (August 1924), pp. 127-144; "A Comparative Study of the Bridge Creek Flora and the Modern Redwood Forest," Contributions to Paleontology, Publication 337 (Washington, DC: Carnegie Institution of Washington, 1925); Ancient Forests of Oregon (Eugene: Oregon State System of Higher Education, 1956). Two of the earliest news articles publicizing Chaney's finds are "Rare Fossil Beds Exposed in Central Oregon District," Portland Oregonian, 4/14/29, section 3, p. 10, and Phil F. Brogan, "Primeval Oregon Jungles Revealed," Portland Oregonian, 5/11/30, p. 2.

106. Boardman to Phil F. Brogan, 10/8/38, p.2, Boardman file, Box 3, SP, UO. Merriam wrote to Boardman as early as 1934 about the possibility of securing fossil plant locales as scientific reservations. He identified areas along Bridge Creek and in the Mascall formation between Mount Vernon and Dayville as being candidates; Merriam to Boardman, 8/21/34, p. 1, Box 21, Boardman file #1, MP, LC.

107. Chaney to Boardman, 9/20/38 and 9/26/38, Painted Hills file (hereafter PH), OPRD.

108. Boardman's note in file, 5/12/39, PH, OPRD; Boardman to Sawyer, 5/17/39, Boardman file, SP, UO; see also Chaney to Boardman, 6/10/39, and Boardman to Chaney, 6/13/39, PH, OPRD. Since Merriam involved himself in facilitating research by the Save-the-Redwoods League, he saw Chaney's work on the Bridge Creek flora as a way to perhaps link the League and its financial resources with the Oregon group; see Merriam, "Annual Meeting, Redwoods League, August 24, 1943," C-A 284, Save-the-Redwoods League collection, Carton 3, J.C. Merriam 1943 file, BL, UCB.

109. Chaney to Boardman, 8/26/39, and Merriam to Boardman, 10/19/39, PH, OPRD; both letters are cited in Armstrong, Oregon State Park History, p. 171.

110. Identification of the two key parcels is in Boardman to R.E. Scott, County Assessor for Wheeler County, 10/11/39, PH, OPRD. For negotiations with landowners, see Boardman to Mary Hall, 10/24/39, Ben Taylor to Boardman, 11/9/39, Boardman to Taylor, 11/20/39, and Boardman to Hall, 12/12/39, PH, OPRD.

111. Boardman to Buck Waggoner, 6/26/43 and 819143, Waggoner to Boardman 8/15/43 and 11/23/43, PH, OPRD; "Painted Hills State Park Location Plan, 1/22/46, one sheet, PH, OPRD; Boardman to Phil Brogan, 1/30/46, and Boardman to Sawyer, 3120146, PH, OPRD.

112. Boardman planned on developing a water supply along with installing tables and toilets; Boardman to J.M. Devers, Attorney, OHSC, 2/26/47, and "Painted Hills, 1947 Proposed Betterment," PH, OPRD. The reference to Merriam's camp is in W.A. Langille, "The Painted Hills: A Unique State Park of Wheeler County," 11/4/48, p. 9, PH, OPRD.

113. Brogan began writing about the John Day Basin in 1930 and his piece entitled "River Colors After Rains" coincided with Boardman's renewed effort to establish Painted Hills State Park; see Portland Oregonian, 1/27/46.

114. Brogan to Boardman, 10/1/46, PH, OPRD; "Brogan Urges Painted Hills Acquisition," note to file, 10/28/46, PH, OPRD; and Boardman to Devers, 2/26/47, PH, OPRD.

115. "Daily Report on Right of Way Negotiations," 4/6/47, and "Painted Hills, 6/6/47, PH, OPRD.

116. Devers to Boardman, 2/28/47, PH, OPRD.

117. Armstrong, Oregon State Park History, pp. 170-171.

118. Wilbur E. Wieprecht to C.H. Armstrong, State Parks Superintendent, 4/17/52, Painted Hills General Correspondence 1947-1973 (hereafter PHGC), OPRD.

119. Wieprecht to Armstrong, 7/30/53, PHGC, OPRD.

120. Armstrong to Hudspeth Land and Livestock Company, 10/14/60, p. 2, PHGC, OPRD.

121. L.V. Koons, "Painted Hills State Park, Barrier Across Road," memo to the file, 10/1/65, PHGC, OPRD.

122. Koons, "Painted Hills State Park," 10/1/65 [separate memo from previous footnote], PHGC, OPRD. Some information about Hudspeth is in Jack Steiwer's "Communities: Past and Present," as part of F. Smith Fussner (ed.) Glimpses of Wheeler County's Past (Portland: Binford and Mort, 1975), p. 22.

123. Koons to E.R. Fatland, Condon, Oregon, 5/6/66, PHGC, OPRD.

124. Koons to G.E. Rohde, Chief Counsel, OSHD, 5/6/66, PHGC, OPRD.

125. Koons, "Painted Hills State Park, Wheeler County, Hudspeth-Dozing Hills, memo to the file, 5/6/66, PHGC, OPRD.

126. Forrest Cooper, State Highway Engineer, to OSHC, 12/30/66, PHGC, OPRD.

127. Koons to R. L. Medill, Springfield, Oregon, 7/30/68, PHGC, OPRD.

128. Motorcycles and dune buggies are mentioned; Medill to Koons, 7/20/68, PHGC, OPRD.

129. State of Oregon vs. CBC Company, Case No. 2250, Final Judgment, 2/23/71, L1425 Land Acquisition, JODA. Settlement of the case quickened somewhat when the state's attorney, Frank McKinney, found that the judge and CBC attorney had been discussing the case in a Mitchell cafe; David G. Talbot interview, 4/2/93.

130. Ira Whitlock, Acting Assistant Director, Legislation, to Director, Pacific Northwest Region, 4/25/73, L58 Proposed Areas 1971-1973, Klamath Falls Group Office files; see also A.J. Viducich, Title Supervisor, to David Talbot, State Parks Superintendent, 7/11/72, PHGC, OPRD. The easement is described in Exhibit A of the final judgment. Appraisers valued the land at $28,300.00 for the 2,830 acres involved; Ray Wilson, Assistant State Parks Superintendent, to Guy R. Garder, RMRO, Division of Land Acquisition, NPS, 7/3/75, PHSP Par 8 file, Klamath Falls Group Office files, JODA. The LWCF grant is mentioned in USDI-NPS, Final Environmental Statement, 11/21/73, p. 33.

131. Darald W. Walker, District Parks Supervisor, to Warren Gaskill, Assistant State Parks Superintendent, 3/30/73, PHGC, OPRD.

132. Armstrong to Boardman, 6/10/49, and Boardman to Joe Thomison, Prineville-Crook County Chamber of Commerce, 7/13/49, PHGC, OPRD.

133. Boardman, "Recommendations - Painted Hills," attached to W.A. Langille, "The Painted Hills, A Unique State Park of Wheeler County," 11/4/48, PH, OPRD. Placement of the stove and tables is shown on W.E. Wieprecht's sketch of the picnic area in his letter to Armstrong, 4/17/52, PHGC, OPRD.

134. Armstrong to Boardman, 6/10/49, PHGC, OPRD.

135. Arthur Kirkham, KOIN [Radio], Portland, to Armstrong, 7/24/50, and Armstrong to Kirkham, 7/31/50, Painted Hills-Dedication in 1950 file, OPRD.

136. The original version differs considerably from the final; see Wilbur [Wieprecht] to Armstrong, 2/5/51, PHGC, OPRD, and Armstrong, Oregon State Park History, p. 254.

137. Philip W. Kearney, "Painted Hills State Park," Non-urban Park and Recreation Survey, 5/17/61, PHGC, ORPD.

138. "Study of Proposed Development of Thomas Condon-John Day Fossil Beds State Park," draft of 5/18/59, p. 15, JDFB, OPRD.

139. Kearney, "Painted Hills State Park," p. 1.

140. Armstrong, Oregon State Park History, p. 171.

141. A.M. Burt, OSHD, "Painted Hills Water Supply," 7/3/68, PHGC, OPRD.

142. [Richard] McCosh to [David] Talbot, 11/14/68, and Wanda Merrill, Governor's Office, to Talbot, 10/14/69, PHGC, OPRD.

143. "Inventory and Record of State Park Facilities," [ca. 1972], p. 19, PHGC, OPRD. Much of the barbed wire fence which paralleled the roads was removed by the NPS in 1980; Benjamin F. Ladd, "Superintendent's Annual Report 1980," p. 1, A2621 Annual Reports, Central Files, JODA.

144. Richard I. McCosh, Assistant State Parks Superintendent, to the files, 4/20/70, PHGC, OPRD.

145. Boardman's information officer, W.A. Langille, made note of the discovery of vertebrate remains in the Clarno formation during 1942 and discussed the possibility of finding another vertebrate fossil bed there, something which happened in 1954 and is now known as the Hancock Mammal Quarry; see Langille, "The Painted Hills," p. 14, and Connie Hofferber Jones, "Forty Million Years of History at Hancock," OMSI Magazine 3 (May 1988), p. 4.

146. OSHD section map of Shaniko-Fossil Highway, 10/17/62, one sheet, map files, JODA.

147. OSHD, "Final Report on Real Property Negotiations," n.d., Clarno file, OPRD.

148. Earl F. Saling, OSHD Right of Way Office Manager, to Talbot, 1/27/65, Deed files, OPRD.

149. Warranty Deed, 9/13/65, Deed files, OPRD.

150. "Clarno State Park," Salem Statesman, section 1, 11/29/64, p. 4. Catherine Maurer was the property owner.

151. Richard Shaffer, "Area Investigation, Clarno-Porcupine Butte," 9/20/63, pp. 2-3, Clarno folder, Klamath Falls Group Office files, JODA.

152. OSHD section map, 10/17/62.

153. Shaffer, "Area Investigation, " p. 3.

154. "Inventory and Record of State Park Facilities," [ca. 1972], p. 15; Daron Dierks interview, 7/21/92.

CHAPTER THREE

1. Merriam to the Secretary of the Interior, 5/15/29, Merriam file, Box 12, Sawyer Papers, University of Oregon, Eugene; Merriam, "Paleontological, Geological, and Historical Research," Carnegie Institution of Washington Yearbook, 1943-44 (Washington, D.C.: CIW, 1944), p. 196.

2. These are listed in the Thirteenth Annual Report of the National Park Service (Washington, D.C.: Government Printing Office, 1929), pp. 12-13. For differing views as to how the standards have affected the agency's history, see Stephen R Mark, "What Price Expansion? Dams versus the National Park Concept," The George Wright Forum, 9:2 (1992), pp. 53-61, and Richard West Sellars, The Rise and Decline of Ecological Attitudes in National Park Management, 1929-1940," The George Wright Forum, 10:3 (1993), pp. 48-50.

3. Ralph Chaney, "Meeting of C.E.P.O.P.," 9/23/43, p. 4, John Day Fossil Beds file, Oregon Parks and Recreation Department, Salem (hereafter JDFB, OPRD).

4. Ibid. Merriam believed that the NPS never fully accepted education as a primary focus in management and had begun to slide backwards during the 1930s by attempting to compete with the recreational program of the U.S. Forest Service. Therefore he and his proteges in the Save-the-Redwoods League became instrumental in defeating a proposal to unite California's redwood state parks into a national park during the late 1930s; Merriam to Newton B. Drury, 2/25/37, Drury files, Boxes 56- 65, Merriam Papers, Library of Congress, and Ronald A. Foresta, America's National Parks and Their Keepers, (Washington, D.C.: Resources for the Future, 1984), p.47.

5. John Ise, Our National Park Policy: A Critical History, (Washington, D.C.: Resources for the Future, 1963), p.155.

6. Frank Waugh in Outlook, 9/28/20, p. 130, quoted in Ise, Our National Park Policy, p. 155.

7. Foresta, America's National Parks and Their Keepers, pp. 74-75, and Hal Rothman, "Second Class Sites: National Monuments and the Growth of the National Park System," Environmental Review (Spring 1986), p. 54.

8. A number of legislative efforts to authorize and establish park areas have been successful, of course, but the vast majority of these proposals have failed. Some cannot attract a sponsor due to local opposition, or they lack national significance. Even when park proposals find a sponsor, these factors may lead to opposition from other members of Congress. Consequently, potential sponsors may ask the NPS to study the proposal in order to assess its feasibility and significance before introducing legislation. Such a study can serve as a starting point for planning efforts which may then influence subsequent departmental reports (usually prepared by Interior, but other departments can be involved if a federal land transfer is proposed) to House and Senate committees considering the legislation. The sponsor's standing in their respective house is, of course, important to the proposal's movement through committee toward a floor vote of the full membership, as is the influence of co sponsors in the other house. How the sponsor packages the park proposal (that is, whether it stands alone or is part of an omnibus bill), can also play a crucial role in its chances for passage.

9. USDI-NPS, Pacific Coast Recreation Survey: A Report, (Washington, DC: Government Printing Office, 1959), cited in Richard L. Neuberger, "Senator Gives Background of Seashore Dunes Park Proposal," Medford Mail Tribune, 10/26/59. This report is one of several sponsored by the NPS during the 1950s which eventually resulted in eight national seashores and four national lakeshores; Barry Mackintosh, The National Parks: Shaping the System (Washington, D.C.: USDI-NPS, 1991), p. 72.

10. USDI-NPS, Western Region, Resource Planning Division, "Oregon Dunes National Seashore," report no. 674, December 17, 1963.

11. Frank McKinney, Assistant Counsel, OSHD, to Diarmuid F. 0'Scannlain, Deputy Attorney General, 12/2/69, pp. 1-2, JDFB, OPRD. The proposal included Honeyman State Park, which Life magazine touted in the late 1950s as one of the nation's top state parks; Lawrence C. Merriam, Jr., Oregon's Highway Park System, 1921-1989: An Administrative History (Salem: Oregon Parks and Recreation Department, 1992), p. 193.

12. A. Robert Smith, "Morse's Support Key Factor in Passage of National Dunes Park Measure," Portland Oregonian, 5/7/67, p. 30. One of the reasons behind Morse's opposition is the well-publicized differences between him and the bill's sponsor. This was Oregon's other senator, Richard L Neuberger, who was succeeded by his wife Maurine; see Mason Drukman, "Oregon's Most Famous Feud: Wayne Morse versus Richard Neuberger," Oregon Historical Quarterly 95:3 (Fall 1994), pp. 300-367.

13. Smith, "Oregon Dunes action stalled for one year," Portland Oregonian, 9/3/67, p. 10. Interior's decision in late 1966 also took into account that Duncan, who represented the district in which the proposed park is located, had been defeated by John Dellenback, who opposed the bill.

14. Talbot to the State Parks and Recreation Advisory Committee, 8/1/69, p. 4, JDFB, OPRD. OSHC chairman Glenn Jackson cited the state's expense in developing these parks, and he had direct influence on Morse as one of his biggest fundraisers and contributors.

15. L.L. Stewart, Chairman, State Parks and Recreation Advisory Committee, to Glenn Jackson, Chairman, OSHC, 6/14/68, and Talbotto SPRAC, 8/1/69, p. 4, JDFB, OPRD. The parks had apparently been included in the bill without the state's knowledge; Lawrence C. Merriam, Jr. interview, 2/7/94.

16. Dan Burroughs, Chief, [NPS] Office of Cooperative Activities, quoted in Talbot, "National Park Service, Grant and Wheeler County study," memo to the files, 11/8/67, JDFB, OPRD.

17. McKinney to O'Scannlain, 12/2/69. The opinion left open a possibility of an exchange with the federal government that is in the public interest.

18. Ullman represented the state's second district from 1957 to 1981. This is an area encompassing 70,000 of Oregon's 96,000 square mile area. During much of his 24 years in office, Ullman's stature in Congress derived from his membership on the House Ways and Means Committee; "Al Ullman, Former Congressman, Dies at 72," New York Times Biographical Service, 10/13/86, p. 1261. As a member and subsequently chair of this powerful committee, he saw the development of domestic tourism as a way to improve the nation's balance of payments; Roland Evans, "Ullman hopes to keep tourist cash at home," Portland Oregonian, 1/4/64, p. 10. His constituents understandably found Ullman very receptive to economic development proposals, especially those involving tourism; Talbot to Lloyd Shaw, Assistant State Highway Engineer, 5/25/67, JDFB, OPRD, and interviews with Gordon Glass, 7/22/92, and Jack Steiwer, 3/1/93.

19. Steiwer interview, 3/1/93. He promoted this aspect of Painted Hills during the national monument campaign; see Ralph Friedman, "The Lively Booster of Fossil," in A Touch of Oregon (Portland: Pars Publishing, 1970), p. 45. Promotion of Craters of the Moon as a stop on the way to Yellowstone began with NPS director Stephen T. Mather in the 1920s; David Louter, Craters of the Moon: An Administrative History (Seattle: USDI-NPS, PNR, 1992), p. 287.

20. Ullman to Hartzog, 6/21/65, L58 Proposed Areas, John Day Fossil Beds #1 (1965-1970), Klamath Falls Group Office files, JODA (hereafter L58, #1, KLFA).

21. Edwin L. Arnold, Acting Chief, Office of Cooperative Activities, Portland, to Regional Director, 7/21/65, and Dan Burroughs, Chief, Office of Cooperative Activities, Portland, to Regional Director, 10/6/65, p. 1, L58, #1, KLFA.

22. Burroughs, pp. 3-4.

23. Leo J. Diederich, Acting Regional Director, to Director, 11/22/65, and Howard Baker, Acting Director, to Ullman, 12/17/65, L58, #1, KLFA.

24. Schumacher, "John Day Fossil Beds, Oregon," 1/4/66, p. 1, RG 79, 74-A598, Box 16, N44 John Day Fossil Beds, FRC Seattle. Begun in 1962, this program consisted of sites originally called registered natural landmarks that were recognized as outstanding, but not formally protected by the NPS.

25. Howard Stagner, [NPS] Assistant Director, to Hatfield, 5/4/66, and Hatfield to Hartzog, 6/15/66, JDFB, OPRD.

26. John W. Bight, Acting Chief, Division of New Area Studies and Master Planning, to Chief, Office of Resource Planning, SSC, 4/10/67, L58, #1, KLFA. The Registered Natural Landmark program had been launched in 1962 and helped identify areas meriting inclusion in the National Park System. John Day Fossil Beds became the 39th RNL so designated; David G. Talbot, "National Park Service, Grant and Wheeler County Study," memo to the file, 11/8/67, JDFB, OPRD.

27. Glass interview, 7/22/92. One of Ullman's staff members, Ron Ahern, also took a personal interest in the fossil beds and worked with Smith and Glass to sustain the congressman's support for the proposed national monument; Ahern to Ted Fremd, Paleontologist, undated [November 1995], p. 2, H1417, Central files, JODA.

28. Oregon County Parks Association, "General Information and Fall Conference Report," 1965; Glass interview, 7/24/92.

29. Talbot to Shaw, 5/25/67, p. 1, JDFB, OPRD.

30. Glass, et al., "Report of the Recreation Committee of the Grant County Planning Commission," [ca. 1967], USDA-Soil Conservation Service files, John Day.

31. Bright to Chief, Office of Resource Planning, 4/10/67, p. 1, and Talbot to Shaw, 5/25/67.

32. Glass, et al., "Report of the Recreation Committee," p. 5.

33. [Clarence Asher], Wheeler County Judge, to Ullman, 1/30/67, L58, #1, KLFA. Asher also served as chairman of the county commissioners. See also Talbot, "Proposed National Monument, Grant and Wheeler Counties," memo to files, 4/12/67, JDFB, OPRD, and Arthur Baker, Acting Director, U.S. Geological Survey, to Director, NPS, 5/4/67, L58, #1, KLFA.

34. "Fossil Area Gets Study by Park Service," Salem Statesman, 4/13/67.

35. Forest Cooper, State Highway Engineer, to Ullman, 5/19/67 (original draft from Talbot, 5/10/67), JDFB, OPRD.

36. Rutter to Cooper, 5/24/67, L58, #1, KLFA.

37. J. Arnold Shotwell, "A Report to the National Park Service on the Significance, History of Investigation, and Salient Paleontological Features of the Upper John Day Basin, Wheeler and Grant Counties, Oregon," 7/20/67, L58, #1, KLFA.

38. USDI-NPS, "John Day Fossil Beds: A Study," Preliminary Working Draft, September 1967, p. 35.

39. "Prospects good for National Monument," John Day Blue Mountain Eagle, 6/29/67; Frank D. Stiles, District Parks Supervisor, "Thomas Condon-John Day Fossil Beds in reference to national monument," memo to the files, 6/30/67, p. 1, JDFB, OPRD.

40. Theodore E. White, Paleontologist, Dinosaur National Monument, to Acting Chief, Office of Resource Planning, SSC, 8/21/67, and J.T. Dutro, Chief, Paleontology and Stratigraphy Branch, USGS [U.S. National Museum], 8/25/67, L58, #1, KLFA.

41. Robert S. Luntey, Acting Chief, Office of Resource Planning, SSC, to Russell E. Dickenson, Assistant Director, 9/11/67, p. 1, L58, #1, KLFA.

42. Ibid.

43. Rutter to Assistant Director, Cooperative Activities, 9/25/67, L58, #1, KLFA.

44. USDI-NPS, "John Day Fossil Beds: A Study," p. 37.

45. Ibid. This is despite Shotwell's contention that the state's emphasis on recreation allowed pilfering of areas originally acquiring for conservation. He supported statement by referring to brochures circulated by the state highway department which invited visitors to dig fossils at various locations throughout Oregon; Shotwell, "A Report to the National Park Service," p. 24. At least one commercial publication of the time found the fossil hunting in Turtle Cove to be excellent; see Leonard C. Ekman, Scenic Geology of the Pacific Northwest (Portland: Binford and Mort, 1962), p. 115.

46. Melville B. Grosvenor, Chairman, Advisory Board on National Parks, Historic Sites, Buildings and Monuments, to Secretary of the Interior, 11/9/67, L58, #1, KLFA. In separate correspondence Grosvenor conveyed sentiments expressed by board member Ralph Chaney (who had originally been appointed in 1943) that the Crooked River Basin be considered for national monument designation if the NPS conducted further studies in the region; Grosvenor to the Secretary, 11/9/67, L58, #1, KLFA.

47. UdalI to Ullman, 12/8/67, L58, #1, KLFA.

48. Talbot to SPRAC, 8/1/69, p. 4, JDFB, OPRD; Swem to McCall, 1/22/68, L58, #1, KLFA.

49. McCall to Swem, 2/14/68 [draft by Talbot, 2/8/68], JDFB, OPRD.

50. In this memo to his supervisor, Talbot wanted the state to indicate to the NPS that its position on the Oregon Dunes proposal had no bearing on the fossil beds project; Talbot to Shaw, 2/16/68, JDFB, OPRD.

51. Talbot to Stewart, 6/11/68, Stewart to Glenn Jackson [OSHC chairman], 6/14/68, and Shaw to Cooper, 7/30/68, JDFB, OPRD. The resolution specifically referred to the 4,300 acres in the Thomas Condon-John Day Fossil Beds State Park, but left questions about whether the committee supported Painted Hills and Clarno for national monument status.

52. Burroughs to Luntey, 8/5/68, and Ullman to Udall, 10/1/68, L58, #1, KLFA. Ullman tried relaying Grant County concerns about developing visitor facilities to in the state parks to Hartzog, but the director referred his letter to the Bureau of Outdoor Recreation, who in turn suggested that he write to Talbot; Phil Hind, "Statement by the Recreation Committee of the Grant County Planning Commission regarding state facilities in Grant County," Ullman to Hartzog, 8/27/68, Edward C. Crafts, Director, BOR, to Ullman, 9/25/68, and Fred J. Overly, Regional Director, BOR, to Cooper, 10/1/68, JDFB, OPRD.

53. Udall to Ullman, 10/29/68, L58, #1, KLFA.

54. Cooper to Ullman, 11/15/68, and C.P. Layton, Acting Deputy Assistant Secretary of the Interior, to Ullman, 12/3/68, JDFB, OPRD. In making this statement, the Secretary's office referred to Udall's letter of October 29 where he described the NPS as being heavily engaged in doing recreation studies nationwide. They set no timetable, but said that the fiscal year beginning July 1, 1969, was the earliest any study could be programmed.

55. The report also wanted to give the Mascall Overlook special attention in the tour; Glass, et al., "Report of the Recreation Committee," p. 5.

56. George Ruhle accompanied Ira Allison and Ralph Chaney on this excursion, which also included H.P. Hanson and W.D. Wilkinson of Oregon State College; Ruhle, Memorandum for the Superintendent [Crater Lake], 11/14/46, RG 79, Region IV, Central Classified Files 1923-1965, Box 9, Folder 501.04 Speeches Crater Lake N.P., National Archives, San Bruno.

57. Thayer took his bachelors degree from the University of Oregon and earned a doctorate at the California Institute of Technology, where Chester Stock and John P. Buwalda taught; Buck L. Hannon, "It's all John Day's fault: Dr. Thayer's two day geological tour of area," Portland Oregonian, Northwest Section, 9/14/75, pp. 7-9. Much of Thayer's work during those two decades centered on mapping; C. Ervin Brown and T.P. Thayer, "Geologic Map of the Canyon City Quadrangle, Northeastern Oregon," USGS Map 1-447, one sheet, 1966.

58. Glass, et al., "Report of the Recreation Committee," p. 5.

59. USDI-Geological Survey, The Geologic Setting of the John Day Country (Washington, D.C.: Government Printing Office, 1969).

60. Thayer to Smith, 1/29/68, Glass to Thayer, 3/8/68, and Thayer to Smith, n.d., John Day Country and Geological Interpretation file, KLFA. Glass and Smith obtained approval of locations and texts through the highway department; Glass to Talbot, 8/2/68, Talbot to Glass, 8/14/68, and Talbot to SPRAC, 8/1/69, p. 3, JDFB, OPRD. One of the few exceptions to blanket approval was Talbot's objection for the Mascall Overlook because of highway safety concerns related to the access road's intersection with US 26; Talbot to Glass, 12/4/67, JDCGI, KLFA. Oddly enough, the plaques did not appear in Thomas Condon-John Day Fossil Beds State Park because of the noncommittal attitude expressed by the district park supervisor; Glass to Robert Wilder, State Parks Department, 3/21/68, JDCGI, KLFA.

61. Completion of the project did not take place until after July 1970; Phil Brogran, "Fossil Beds Use Noted," Portland Oregonian, 7/12/70. In another move aimed at promoting the proposed monument, the Grant County Chamber of Commerce spent $10,000 for a fossil collection assembled by Thomas J. Weatherford on and near his ranch at Picture Gorge; Brogan, "Grant Unit Buys Fossils," Portland Oregonian 12/14/69, p. 35.

62. Steiwer to Talbot, n.d., and Talbot to Steiwer, 7/5/68, JDFB, OPRD. In his reply, Talbot estimated that the highway commission had spent $47,000 in developing the three state parks and mentioned the state's negotiations for the land under easement at Painted Hills. Less than two years later, Steiwer announced a tour of Wheeler County's scenic, geological, and historical attractions as being available on audio tape during the 1970 summer season; Steiwer, "50 million years in five hours," Portland Oregonian 4/19/70, Northwest Section, p. 12.

63. Steiwer interview, 3/1/93.

64. Burroughs to Rutter, 2/17/69, L58, #1, KLFA.

65. J. Edward Reid, "Fossil Bed Park Receives Support," Portland Oregon Journal, 2/15/69, and "Legislature's Aid Sought to Protect Fossil Beds," Portland Oregonian, 2/15/69.

66. This included approximately 4,300 acres of state park land (matching the SPRAC resolution of 1968) and provision for the remainder to be added by donation or purchase of tracts recommended by the U.S. Department of the Interior; "John Day Fossil Beds Gain Favor for National Monument Proposal," Fossil Journal, 3/6/69, and Kenneth Jernstedt, et al., "Senate Joint Memorial 8, Oregon Legislative Assembly- 1969 Regular Session," RG 79, 74-A207, Box 9, L58 John Day Fossil Beds 1/1/67- 12/31/70, FRC Seattle.

67. "Fossil Bed Monument Plan Snared," Portland Oregon Journal, 4/29/69; Burroughs to Rutter, 5/2/69, RG 79, 74-A207, Box 9, L58 John Day Fossil Beds 1/1/67-12/30/70, FRC Seattle.

68. Ullman to Hartzog, 1/27/69, L58, #1, KLFA.

69. Tom Stimmel, "Fossil Beds Bill Offered," Portland Oregon Journal, 2/24/69. Burroughs wondered whether the state would support NPS acquisition of all three parks, because the state park and recreation advisory committee's resolution had mentioned only Thomas Condon-John Day Fossil Beds State Park; Burroughs to Rutter, 2/25/69, L58, #1, KLFA. The state apparently had no such concerns, preferring to let the NPS complete its studies and then make final judgment; Shaw to Cooper, 3/4/69, JDFB, OPRD.

70. Swem to Ullman, 3/6/69, L58, #1, KLFA.

71. Burroughs to Talbot, 3/10/69, and Talbot to SPRAC, 8/1/69, p. 4, JDFB, OPRD.

72. "Sermon in Flaming Stones," Portland Oregon Journal, 7/30/69; Ullman to Hartzog, 8/12/69, RG 79, 74-A207, Box 9, L58 John Day Fossil Beds 1/1/67- 12/30/70, FRC Seattle.

73. R.B. Moore, Assistant Director, to Ullman, 8/21/69, Moore to Mark Hatfield, 9/19/69, Robert J. Branges, Division of Project Coordination, to Deputy Director, Legislation and Cooperative Programs, 1/14/70, and Burroughs to Rutter, 9/24/70, L58, #1, KLFA.

74. Forrest Cooper, State Highway Engineer, to Ullman, 8/26/69, JDFB, OPRD.

75. Talbot to SPRAC, 8/1/69, p. 4, JDFB, OPRD. The noncommittal attitude continued to be expressed by District Parks Supervisor Frank Stiles as late as March 1968, during placement of geological plaques in Grant County; Glass to Robert Wilder, State Parks Department, 3/21/68, John Day Country and Geological Interpretation file, KLFA.

76. Glenn O. Hendrix, Chief, Office of Environmental Planning and Design, Western Service Center, to Rutter, 2/27/70, L58, #1, KLFA.

77. The team consisted of John Sage (Captain), William T. Ingersoll (Interpretive Planner), David K. Morris (Ecologist), Kenneth Kasper (Appraiser), and Burroughs; John Sage to Chief, Office of Environmental Planning and Design, WSC, 3/11/70, L58, #1, KLFA.

78. Sage to Hendrix, 3/11/70, pp. 2-3.

79. Sage to Hendrix, 3/11/70, p. 2.

80. Sage, "Planning Directive," 5/14/70, p. 8, L58, #1, KLFA.

81. On October 1, Rutter reminded Hartzog about the NPS pledge to complete this master plan by the end of 1970. He became concerned when finding no provision for such a document or alternative study in the 1971 fiscal year's master plan program; Rutter to Hartzog, 10/1/70, L58, #1, KLFA. Hartzog named Rutter director of the Western Region (headquarter in San Francisco) at the beginning of 1967, but sent him to Seattle in 1969 to head a new Pacific Northwest Region; Danz, Historic Listing of National Park Service Officials, pp. 30-32. An interim step involved creation of a "Northwest District" headed by Rutter, which covered Alaska, Washington, Idaho, Oregon, and Lava Beds National Monument in California during 1968; Raymond O. Mulvaney, Acting Regional Director, Western Region, to Superintendents, Western Region, 12/31/68, RG 79, 73-A805, Box 14, A6423 Service Organization, FRC Seattle.

82. Sage prepared the master plan directive in his role as team captain, while Burroughs continued to serve as a member of the planning team because he had the most experience with the John Day proposal of any NPS employee; John S. Adams, Acting Chief, OEPD, WSC, to Rutter, 10/20/70, L58, #1, KLFA. See Danz, Historic Listing of National Park Service Officials, p. 50, for more information about the Portland Field Office.

83. Most members of NPS planning teams who worked on new area projects in 1970 worked from service centers located in San Francisco and Washington, D.C. These offices had been established in San Francisco and Philadelphia in 1954 by Hartzog's predecessor, Conrad Wirth, to centralize design and construction work instead of having these functions spread over four or more regional offices. Although Hartzog began to abandon the development emphasis of Wirth's Mission 66 program after becoming NPS director in 1964, he accelerated a trend toward centralizing planning and other professional services. The San Francisco service center had responsibility for most NPS units and proposed areas west of the Mississippi River and was called the Western Office of Design and Construction (WODC) until 1966, when it became the San Francisco Service Center (SSC), and subsequently the Western Service Center (WSC); Harold P. Danz, et al. (comp.) Historic Listing of National Park Service Officials (Washington, DC: USDI-NPS, 1991), p. 37. Further consolidation of the San Francisco and Washington Offices gave rise to the Denver Service Center in 1971.

84. Ibid. Land ownership in the United States is largely based on an English convention called fee simple. This term is derived the fee being simple cash payment. Less than fee acquisition refers to some form of easement to perpetuate agricultural uses and to protect paleontological resources.

85. Rutter to Sage, 12/2/70, L58, #1, KLFA. Before giving these guidelines to Sage, Rutter made sure to clear them with Smith and Steiwer.

86. Adams to Rutter, 12/11/70, L58, #1, KLFA.

87. Ibid.

88. "Management Statement," p. 4, attached to a transmittal from John S. Adams, Acting Chief, OEPD, WSC, to Rutter, 12/31/70, L58, #1, KLFA. Local planning documents served to reinforce this two-pronged approach to planning for visitor use of the proposed monument; Wheeler County Planning Commission [J.P. Steiwer, Chairman], "Preliminary Comprehensive Plan for Wheeler County, Oregon, revised draft, December 1969, p. 3.

89. "Fossil Beds Await Study," Portland Oregonian, 1/15/70.

90. "John Day Fossil Beds (proposed) Master Plan," 1/15/71, p. 4. The reason why river recreation figured so heavily in this draft is that Oregon passed a scenic waterways act in 1970. As a result, the free-flowing John Day River enjoyed protection from its mouth to Service Creek.

91. Mike Griswold to Rutter and Rod Pegues [PNR Assistant Director, Cooperative Activities], 2/24/71, L58, John Day Fossil Beds #2 1971-73 (hereafter #2), KLFA.

92. Glenn O. Hendrix, Chief, OEPD, WSC, to Rutter 3/8/71, Burroughs to Rutter, 3/16/71, and Burroughs to Steiwer, 5/19/71, L58, #2, KLFA.

93. OMSI, "Camp Hancock Proposal," [1973], p. 1, J.D. Monument/OMSI file, KLFA.

94. The ten acres is identified on a map subsequently used as reference for authorizing legislation; USDI-NPS, Map No. NM-JDFB-20,014-A, June 1971.

95. Dan Burroughs to John Sage, 6/4/71, L58, #2, KLFA. Confusion existed in some reports for the next several years over how much land was leased; one example is in John Eliot Allen, "The Impact of the John Day Fossil Beds National Monument Proposal on the Operation of the Oregon Museum of Science and Industry Camp Hancock," [1973], p. 2, J.D. Monument/OMSI file, KLFA. OMSI acquired title to the ten acre exclusion in 1985; USDI-NPS, "Statement for Management, John Day Fossil Beds National Monument," 1992, p. 6.

96. Irving Mann, Jr., to L.B. Day [USDI field representative], 1/27/71, L58, #2, KLFA. Mann also relayed OHS director Vaughn's suggestions that a name change would promote the fossil beds better to visitors.

97. Ibid.

98. Nathaniel Owings, Chairman, Advisory Board, to the Secretary of the Interior [Rogers C.B. Morton], 4/28/71, L58, #2, KLFA.

99. In its presentation, the NPS made reference to a "Nez Perce" formula; "Advisory Board, April 20, 1971," pp. 1-2, L58, #2, KLFA.

100. Burroughs to Rutter, 7/20/71, L58, #2, KLFA.

101. Bennett T. Gale, Acting Director, PNR, to Director, WSC, 6/14/71, L58, #2, KLFA.

102. Sage, et al., "John Day Fossil Beds (proposed) Master Plan," preliminary working draft, August 1971, p. 1.

103. Sage, et al., "John Day Fossil Beds," Appendix A.

104. Sage, et al., "John Day Fossil Beds," pp. 9-10.

105. Sage, et al., "John Day Fossil Beds," p. 9; USDI-NPS, "Compilation of Administrative Policies for the National Parks and National Monuments of Scientific Significance (Natural Area Category)," revised August 1968. Stemming from a management policy memorandum signed by Secretary Udall in 1964, the separation of national park system units into natural, historical, and recreational categories remained in force remained in force until 1975; Mackintosh, The National Parks: Shaping the System, pp. 63-64, and 89.

106. Sage, et al., "John Day Fossil Beds," pp. 12-13.

107. Sage, et al., "John Day Fossil Beds," p. 11.

108. Lynn H. Thompson, Assistant to the Deputy Director, Legislation and Cooperative Programs, to Rutter, 4/6/71, L58, #2, KLFA.

109. Rutter to Hartzog, 9/24/71, and Flynn to Assistant Secretary for Fish and Wildlife and Parks, 12/21/71, p. 2, L58, #2, KLFA.

110. Glenn O. Hendrix, Director, Denver Service Center, to Chief, Division of Land Acquisition, 3/20/72, and Burroughs to Superintendent, Klamath Falls Group, 6/12/72, L58, #2, KLFA. The development schedule had to be revised to reflect overhead charges imposed by the Washington Office on all service center planning and design projects since the regional office submitted preliminary estimates in September 1971.

111. Burroughs to Hendrix, 3/3/72, L58, #2, KLFA; "John Day Fossil Beds (proposed) Master Plan," draft of June 1972, p. 10.

112. Master plan draft, p. 14.

113. Master plan draft, p. 12.

114. Master plan draft, p. 14; Burroughs to Rutter, 5/22/72, L58, #2, KLFA.

115. Alfred Larson, Acting District Manager, Prineville, to State Director, 6/1/71, Associate Director, BLM, to Legislative Counsel, Office of the Secretary, 6/15/71, and Edwin Arnold, Chief, Portland Field Office, to Archie Craft, State Director, BLM, 7/14/72, L58, #2, KLFA.

116. Chadwick W. McBurney, Acting District Manager, Prineville, to Crafts, 8/3/72, pp. 1-2, L58, #2, KLFA.

117. McBurney to Crafts, 8/3/72, p. 3. He believed that BLM should have responsibility for recreational development from the proposed monument to the John Day's mouth since the agency is the principal landholder along this stretch of river.

118. Kittridge A. Wing, Acting Chief, Division of Legislative Coordination and Support, to Associate Director, Legislation, 9/6/72, p. 3, L58, #2, KLFA.

119. Wing to Associate Director, 9/6/72, p. 2. A study of the area between the John Day's confluence with the Columbia River and Service Creek did not begin until 1977; USDI-NPS, Final Wild and Scenic River Study, John Day River, Oregon (Washington, DC: Government Printing Office, 1979), p. 2.

120. "General Environmental Statement, John Day Fossil Beds, Oregon," 8 p., attached to transmittal from Rutter to Hartzog, 9/24/71, JDFB 1/1/72-9/18/73, KLFA; USDI, NPS, PNR, "Draft Environmental Statement, Proposed John Day Fossil Beds National Monument, Oregon," 17 p., attached to transmittal from Bennett T. Gale, Acting Director, PNR, to Assistant Director, Cooperative Activities, 6/2/72, L58, #2, KLFA.

121. Federal Register 37:214 (November 4, 1972), p. 23582.

122. Rutter credited Burroughs with writing the EIS and congratulated him; Rutter to Burroughs, 1/18/73, L58, #2, KLFA. Comments on the draft were included as part of the final version; USDI-NPS, PNR, Final Environmental Statement, FES 73-66, November 21, 1973, pp. 31-69.

123. Talbot to Burroughs, 2/24/72, p. 1, L58, #2, KLFA.

124. Hollis M Dole, Assistant Secretary of the Interior to Mark O. Hatfield, U.S. Senate, 9/6/72, L58, #2, KLFA. Robert Clark, author of The Odyssey of Thomas Condon (Portland: Oregon Historical Society Press, 1989), initiated the request.

125. Lester F. Dingman, Executive Secretary, Domestic Geographic Names, to Hartzog, 9/22/72, L58, #2, KLFA.

126. Arnold to Rutter, 1/19/73, L58, #2, KLFA. This provision represented the only change from what Ullman introduced as HR 488 in 1971.

127. Arnold to Gale, 1/8/73, L58, #2, KLFA.

128. "Oregon State Game Commission Comments on John Day Fossil Beds National Monument, January 4, 1973," Planning documents folder [ca. 1972-73], KLFA; Burroughs and Ernest J. Borgman, General Superintendent [KLFA], to Rutter 2/16/73, pp. 1-2, L58, #2, KLFA. The commission earlier expressed concern about a prohibition on hunting to Burroughs; see memo to file, 7/15/71, L58, #2, KLFA.

129. Burroughs and Borgman to Rutter, 2/16/73, p. 3.

130. O'Rourke to Ullman, 2/9/73, L58, #2, KLFA.

131. Ullman to Ron Walker, NPS Director, 3/21/73, L58, #2, KLFA.

132. Borgman to Rutter, 4/18/73, L58, #2, KLFA.

133. Borgman and Arnold to Rutter, 4/19/73, L58, #2, KLFA.

134. R.B. Moore, Acting Director, PNR, to Borgman and Arnold, 4/24/73, L58, #2, KLFA.

135. Rutter also had oversight of the Klamath Falls office, which began its existence on July 1, 1969; Danz, Historic Listing of National Park Service Officials, p. 133.

136. Increasing diversity in the type of areas under NPS administration, expanding historic preservation responsibilities, and tight budgets led Hartzog to begin reorganizing the NPS in 1966; Hartzog, "Director's Message," NPS Newsletter, 1:1 (August 25, 1966), p. 1. The Field Operations Study Team (FOST) reviewed many aspects of the NPS organization from 1966 to 1968. Its findings became a catalyst for many of the changes implemented by Hartzog; "FOST burns charter... New management era launched for NPS," NPS Newsletter 3:14 (July 11, 1968), pp. 1-2. Recommendations for clustering appear in "The Basic FOST Concepts," January 1968, p. 2, attached to Raymond O. Mulvany, Acting Regional Director, Western Region, to Superintendents, Western Region, 5/13/68, RG 79, 73-A805, Box 14, A6423 Service Organization, FRC Seattle.

137. This proposal revolved around the question of whether to move Crater Lake's headquarters from its location in Munson Valley. Hartzog endorsed the Klamath Falls cluster because of its cost compared with building a new headquarters at lower elevation; Luis A. Gastellum, Deputy Assistant Director, Administration, and Harry Elsey, Chief, Branch of Financial Management, Operations, to Hartzog, 10/14/68, pp. 10-11, New Park Headquarters Site Correspondence, history files, Crater Lake National Park.

138. Spalding interview, 6/3/92. He also served as keyman in the Redwood National Park proposal while superintendent of Crater Lake; Stephen R Mark, et al., "Donald M Spalding," Crater Lake National Park Oral History Series, interview of April 2, 1991, Crater Lake National Park Library.

139. Rutter interview, 5/13/92, and Borgman interview, 7/28/92.

140. They also expressed a desire to visit Grant and Wheeler counties every week after this meeting; Borgman and Arnold to Rutter, 6/8/73, p. 2, L58 John Day Fossil Beds #3, 1973-75 (hereafter #3), KLFA.

141. Borgman to Rutter, 6/26/73, L58, #3, KLFA. All appeared to be well, except for some qualified support by Oregon's game commission. They based their support on a stipulation that the state retain complete jurisdiction over fish and game management within the monument, but NPS officials did not believe that the monument possessed significant game resources.

142. "Fossil beds monument gets strong approval," John Day Blue Mountain Eagle, 7/28/73, p. 1.

143. Ibid. Another, though minor, boost toward consolidating the prospective monument's land base came in June 1973 when the Bureau of Reclamation rescinded its 560 acre land withdrawal in the Clarno Unit (tract 104-02). This was jointly coordinated with BLM; Norman H. Moore, Assistant Regional Director, USBR, to State Director, BLM, 6/13/73, and Arnold to Rutter, 6/15/73, both L58, #2, KLFA.

144. Ibid. Both representatives seemed pleased to learn that preliminary work for legislative action had been accomplished. They also expressed optimism that such action might be forthcoming; Borgman to Rutter, 6/26/73, p. 1.

145. Congressional Record- Senate, July 13, 1973, pp. 13353-13355.

146. "Hatfield, Packwood submit bill; ranchers oppose it," John Day Blue Mountain Eagle, 7/19/73, p. 1; the letter of July 14 appears on page 16.

147. Borgman to 0'Rourke, 8/10/73, and Borgman to Rutter, 8/31/73, L58, #3, KLFA.

148. Borgman to Rutter, 8/31/73, p. 2.

149. Ibid. Officials in the regional office described the area's game resources as not significant and did not believe that the issue could generate a controversy; Edward J. Kurtz, Acting Regional Director, PNR, to Associate Director, Legislation, NPS, 7/28/73, L58, #3, KLFA.

150. Ibid. Although Glass and Steiwer attended the meeting, Borgman commented that Buck Smith's ability to consolidate support for the monument had been sorely missed. Despite still being a frequent visitor to Grant County, Smith moved his residence to Arizona in 1970. The perceived need to protect the area still gave the proposal widespread, but latent, support; "Reconcilable Differences," John Day Blue Mountain Eagle, 8/9/73, p. 12.

151. Borgman to Rutter, 8/31/73, p. 1; Blen C. Holman, "Report of a meeting held in Dayville, October 22, 1973...," L58, #3, KLFA.

152. Ullman to Borgman, 10/25/73, L58, #3, KLFA.

153. Borgman interview, 7/28/92.

154. Borgman and Arnold to Rutter, 6/8/73, p. 2, L58, #3, KLFA. James Cant, Sr., died in February 1972.

155. Borgman to Rutter, 8/21/73, pp. 1-2, L58, #3, KLFA.

156. Borgman to Rutter, 8/31/73, p. 2; Lee Juillerat, "His business: Proposed John Day Fossil Beds National Monument," Klamath Falls Herald and News, 9/9/73.

157. Borgmanto Rutter, 8/31/73, p. 2.

158. Borgman to Ullman, 11/2/73, p. 1, L58, #3, KLFA.

159. "Ullman says accord found on monument," Portland Oregonian, 11/14/73.

160. McGreer Ranch to Ullman, 11/30/73, L58, #3, KLFA; "Fossil Beds hearings called," John Day Blue Mountain Eagle, 12/6/73.

161. Hulett projected that the Land and Water Conservation Fund would be the main source of development funds for state parks; Hulett to Rutter, 12/6/73, p. 1, L58, #3, KLFA.

162. Rutter to Hulett, 12/7/73, L58, #3, KLFA.

163. Ibid. Rutter based his contention about "rounding out" the system on past direction from Udall and Hartzog, where areas fit thematic frameworks and criteria for geographic representation; see Mackintosh, The National Parks: Shaping the System, pp. 64-65. The regional director also stated that he hoped other proposed areas studied at the request of Congress and the Washington office in Alaska, Washington, and Idaho, had been adequately justified.

164. Kyl to James A. Haley, Chairman, Committee on Interior and Insular Affairs, House of Representatives, 12/10/73, L58, #3, KLFA, also in House Report No. 93-1285, p. 23, and Senate Report No. 93-1233, pp. 23-24.

165. Hulett to [USDI] Legislative Counsel, 8/14/72, p. 1, and Whitlock to Legislative Counsel, 8/22/73, p. 1, L58, #3, KLFA.

166. "Statement of Witness for the Department of the Interior before the subcommittee on National Parks and Recreation, House Committee on Interior and Insular Affairs, concerning legislation to authorize establishment of John Day Fossil Beds National Monument in Oregon," December 1973, Legislative documents file, KLFA. Hulett also ascribed this rethinking to the bill having not received "substantial consideration" before 1973; Phil Cogswell, "Delay sought on John Day Fossil Beds park," Portland Oregonian, 12/12/73, p. 35.

167. "Statement of Congressman Al Ullman (D-Oregon) Before the Subcommittee...," 12/11/73, and Statement of Senator Bob Packwood...," 12/11/73, Legislative documents file, KLFA.

168. "Statement of Toby Cooper...," pp. 2-4, Legislative documents file, KLFA. The BLM's official position precluded the first recommendation; D. Michael Harvey, Acting Assistant Director, BLM, to Legislative Counsel, Office of the Secretary, 8/22/72, Legislative document file, KLFA.

169. "Ullman impatient at delay proposed for national monument," John Day Blue Mountain Eagle, 12/13/73, p. 1.

170. Kenneth H. Goslin, Team Manager, Pacific Northwest Team, Denver Service Center, to Rutter, 12/7/73, L58, #3, KLFA.

171. Borgman to Rutter, 1/3/74, L58, #3, KLFA.

172. When Rutter completed his reply to Hulett's memorandum calling for "alternative management concepts," he discounted scenarios involving a state-federal cooperative area or a state park given federal technical assistance by asserting that the NPS has expertise in preserving and interpreting scientific resources, while the state park system had instead emphasized recreation and roadside development; Rutter to Hulett, 1/10/74, p. 2, L58, #3, KLFA.

173. "Fossil beds bill receives subunit OK," John Day Blue Mountain Eagle, 1/31/74. Ullman later credited subcommittee chairman Roy Taylor for taking a personal interest in the proposed monument; "Monument parcels conveyed in Portland ceremony," John Day Blue Mountain Eagle, 7/3/75, p. 1, see also Taylor's letter to that paper which appeared on January 17, 1974.

174. Ullman to Talbot, 3/28/74, JDFB, OPRD; "Fossil Beds bill advances in House," John Day Blue Mountain Eagle, 6/20/74.

175. Haley, Report 93-1285 [to accompany HR 13157], 93rd Congress, 2nd Session, August 14, 1974, p. 7. The committee's assertion is an expression of a wider shift in the balance of power between the NPS and Congress that took place in the 1970s; see Foresta, America's National Parks and Their Keepers, pp. 74-80.

176. Congressional Index, 93rd Congress, v.2, p. 5016.

177. National Park Service Authorizations, Hearing before the Subcommittee on Parks and Recreation of the Committee on Interior and Insular Affairs, United States Senate, 93rd Congress, Second Session on HR 14217 and HR 13157 (Washington, D.C.: Government Printing Office, 1974), pp. 3-4.

178. National Park Service Authorizations, pp. 5-6. Bible's whole hearted support of the proposed monument can be explained, at least partially, by the fact that it represented virtually the last piece of business to be considered by Senate subcommittee on Parks and Recreation during the period of his chairmanship. He compiled an impressive record in helping to expand the National Park System in the 1960s and early 1970s. This hearing took place less than three months before his resignation on December 17, 1974; Gary E Elliott, Senator Alan Bible and the Politics of the New West (Reno and Las Vegas: University of Nevada Press, 1994), pp. 198- 199.

179. "Testimony of Senator Bob Packwood, September 13, 1974, before the Subcommittee on Parks and Recreation, Senate Interior Committee on HR 13157, to establish John Day Fossil Beds National Monument," attached to National Park Service Authorizations, pp. 8-9.

180. National Park Service Authorizations, p. 7.

181. "Monument at John Day," Klamath Falls Herald and News, 10/2/74.

182. Bible, Report 93-1233 [to accompany HR 13157], 93rd Congress, 2nd Session, October 4, 1974, pp. 2-4.

183. "John Day Bills Needs Signature," Klamath Falls Herald and News, 10/17/74.

184. Of the 14,402 acres, a little more than half (7,278 acres) consisted of state park lands. For acreage totals of state, federal, and private land in all three units at the time of authorization, see USDI-NPS, Denver Service Center, Environmental Assessment, General Management Plan, June 1976, p. 163.

185. Richard C. Curry, Assistant Director, Legislation, to Rutter, 4/14/74, L58, #3, KLFA.

186. Talbot to OSTC, 11/18/74, L58, #3, KLFA; "OTC authorizes park transfers," John Day Blue Mountain Eagle, 12/12/74.

187. Robert S. Luntey, Associate Regional Director, Professional Services, PNR, to Rutter, 11/26/74, p.1, L58, #3, KLFA; Luntey to Assistant Director, Legislation, NPS, 6/12/75, p. 1, L1425 Land Acquisition, JODA.

188. This supposedly stemmed from the assistant attorney general for the OSTC believing that a reversionary clause was necessary, given the commission's authority to convey state park land; Luntey to Assistant Director, 6/12/75, p. 1. Talbot offers a different explanation, in that the NPS had put tough restrictions in its transfers; Talbot interview, 4/2/93, see also Talbot in Merriam, Oregon's High way Park System, p. 138. The reversionary clause placed on transfer of the Silver Creek Recreation Demonstration Area (now part of Silver Falls State Park) in 1949 is an example; Merriam interview, 11/26/88.

189. Luntey to Assistant Director, 6/12/75, p. 2.

190. Talbot in Merriam, Oregon's Highway Park System, p. 138. Remarks by Ullman and Straub are in "Monument parcels conveyed in Portland ceremony," John Day Blue Mountain Eagle, p. 1, and "State deeds fossil lands," Portland Oregonian, 7/25/75, p. A15.

191. Russell E. Dickenson, Acting Director, to Henry M Jackson, Chairman, Committee on Interior and Insular Affairs, 6/27/75, L58, #3, KLFA.

192. Kent Frizzell, Acting Secretary of the Interior, "John Day Fossil Beds, Establishment of Monument," Federal Register, 40:192 (October 2, 1975) NPS involvement in the park proposal came virtually full circle when it removed the 2,000 acre John Day Fossil Beds Registered (National) Natural Landmark from the National Registry of Natural Landmarks. It did so in accordance with a policy of removing sites from the Registry once they become units of the National Park System; Francis H. Ugolini, Chief, Natural Landmarks and Theme Studies, to Rutter, 12/17/74, and Glenn D. Gallison, Associate Regional Director, Cooperative Activities, PNR, to Chief, Natural Landmarks and Thematic Studies, 8/6/75, Legislative documents file, KLFA.

CHAPTER FOUR

1. Superintendent's Annual Report 1978, p. 1, file code A2621 Annual Reports, Central Files, John Day Fossil Beds National Monument (hereafter SAR, CF, and JODA).

2. SAR 1975, p. 1.

3. Ladd interview, 5/19/92.

4. SAR 1975, p. 1.

5. "National Monument opens office here," John Day Blue Mountain Eagle n.d. [January 1976]; SAR 1975, p. 1. The office remained in the J-O Plaza Building in John Day for the next 19 years. Headquarters shifted to the Cant Ranch in 1995, where the park presently maintains a Kimberly mailing address.

6. Ladd interview, 5/19/92.

7. SAR 1975, p. 4.

8. These were located at Blue Basin, Foree, Painted Hills picnic area, and the Clarno day use site; Dierks interview, 7/21/92. He also noted that the state wanted to transfer a water system and two pit toilets at Johnny Kirk Spring, but the site is not within the monument's authorized boundaries.

9. SAR 1975, p. 4. The NPS also utilized the Youth Conservation Corps to paint signs and install bulletin boards and toilets at Blue Basin in July 1975.

10. Dierks interview, 7/21/92. As stated previously, both practices ran counter to state park regulations but the lack of on-site staff made enforcement nearly impossible. Some use of the picnic area at Painted Hills by hunters during initial stages of NPS administration may have been unavoidable since the agency referred to the site as a primitive campground; USDI-NPS, "John Day Fossil Beds National Monument," [ca. 1975 park circular], p. 2.

11. SAR 1976, p. 2.

12. SAR 1978, p. 3. Several hunters registered verbal complaints over the cessation of chukar hunting (an exotic bird) on monument lands.

13. SAR 1975, p. 5.

14. Ibid.; "National Monument opens office here," John Day Blue Mountain Eagle, n.d. [January 1976].

15. SAR 1976, p. 1.

16. SAR 1977, p. 1; SAR 1978, p. 1.

17. SAR 1976, p. 1; SAR 1977, p. 1.

18. SAR 1975, p. 3; SAR 1976, p. 3. This amounted to a contract with state forestry's office in Fossil for a fixed amount per year.

19. SAR 1975, p. 3; SAR 1976, pp. 3-4. Entrance signs near Picture Gorge constituted some of the first to appear there.

20. SAR 1977, p. 4. The results of this agreement, however, did not always meet NPS expectations; SAR 1978, p. 4.

21. SAR 1975, p. 2.

22. Ladd interview, 5/19/92.

23. SAR 1976, p. 2; SAR 1977, p. 3.

24. Jean Swearingen, et al., "Interim Interpretive Plan, John Day Fossil Beds National Monument, Oregon," Revised 1976, pp. 1-2. The planning team recognized the haste with which it set interpretive priorities, stating that everything proposed in the plan "can be accomplished and later undone without destroying anything in the process."

25. Verne Crawford of Ashland, Oregon, wrote the brochure with assistance from Rocky Richardson in the regional office and John Davis of the Klamath Falls Group. Dispensers at various locations in the park appeared along with the brochure; SAR 1976, p. 1,3.

26. SAR 1977, p. 1.

27. SAR 1977, p. 2, 4. This took place two nights a week that summer, though traffic noise and the lack of projection facilities hampered the programs. The 20 acre park resulted from the state's purchase of property from Holliday in 1971 and subsequent transfer of state highway land in 1976; Merriam, Oregon's Highway Park System, p. 168.

28. SAR 1977, p. 2. The NPS bought it from Tom Bones, an amateur paleobotanist who had been associated with Lon Hancock at Clarno. A NPS press release dated August 2, 1977, stated that Bones spent 35 years assembling the collection.

29. In early 1976 planners described the headquarters office as "about the only place [visitors] will be able to see anything significant accomplished for a long time..."; Swearingen, et al., "Interim Interpretive Plan," p. 7.

30. SAR 1977, p. 1.

31. Borgman to UlIman, 11/2/73, p. 1, L58 Proposed Areas, JODA folder #3 1973-75, KLFA. Although a 6,000 acre figure appears in Aaron Jones, "A lot has changed in 90 years," Ruralite (March 1970), p. 16, the NPS appraisal of the ranch house and adjoining acreage is more accurate; see Elmer Kolberg and Associates, "Appraisal of Tract 101-14 Sheep Rock Unit, John Day Fossil Beds National Monument, Oregon," dated 1/8/75, in Deed Acquisition files, PNR Lands, Seattle.

32. SAR 1976, p. 4; Ladd interview, 1/6/95. The inholding is briefly described in Dick Lawton, "Long History of Cant Ranch to end soon," Ruralite (April 1976), p. 16. This 40 acre parcel is subject to a scenic easement that was part of the Cant Ranch sale; Rick Wagner, Chief of Lands, PNR, to Deputy Regional Director, 4/14/94, L1425 JODA Tract 101-14, Deed Acquisition files, PNR, Seattle.

33. SAR 1976, p. 2.

34. SAR 1976, p. 1. The fine line between interpreting ranching in this area by using the family's furniture and mistaken beliefs about interpreting the ranch through its former owners is evident in NPS correspondence; James S. Rouse, Associate Regional Director, PNR, to Chief, Cultural Resources Division, NPS, 10/19/76, D24 Maintenance and Rehabilitation of Physical Facilities, and Borgman to Lillian Mascall, 10/29/75, L1425 Lands Program, both CF, JODA.

35. SAR 1975, p. 5.

36. The LCS is intended to assist park managers in planning and programming appropriate treatment and in decisions regarding listed structures; Alicia Weber, User Manual for Cultural Resources Databases: List of Classified Structures, Cultural Resource Management Bibliography (Washington, DC: USDI-NPS, Park Historical Architecture Division, 1987), p. 1.

37. SAR 1977, p. 4. Cost figures are given in "Status of Development Projects in Progress, as of June 27, 1977," L58 Proposed Areas, 1977 Legislation folder, KLFA.

38. The five structures included a privy, oil storage building, garage, "outbuilding #1," and a workshop extension; Borgman to Regional Director, PNR, 8/12/76, p. 3, D24, CF, JODA. Borgman's request also had to clear the Washington office because of a 1976 amendment to the National Historic Preservation Act's Section 106 directs federal agencies to consider the effects of their undertakings on properties eligible for the National Register; Barry Mackintosh, The National Historic Preservation Act and the National Park Service: A History (Washington, DC: USDI NPS, History Division, 1986), p. 80.

39. SAR 1976, p. 3.

40. The NPS provided chemical toilets adjacent to a dirt parking area; Acting General Superintendent, KLFA, to Regional Director, PNR, 9/14/76, p. 1, D24, CF, JODA.

41. SAR 1976, p. 3.

42. NPS crews removed the laundry room in favor of more inside toilet facilities; Borgman to Regional Director, PNR, 9/14/76, D24, CF, JODA. They also installed more plumbing, added a burglar and fire alarm system, and modified two rooms to make a seasonal apartment; SAR 1977, pp. 3-4. The house formerly utilized a 32 volt battery system as rural electrification did not reach this area until 1947; T.J. "Jeff" Adams (former chief of maintenance, Klamath Falls Group) interview, 9/10/92. Daron Dierks helped to reroof the ranch house by tearing off old layers and took part in removal of the porch addition; Dierks interview, 7/21/92.

43. Tom Stimmel, "Barbeque notes ranch role as fossil beds visitor center," Portland Oregon Journal, n.d. [August 1977]. Ladd facilitated installation of the water system by securing an agreement with BLM in 1976 for continued use of the spring which provides water to the facility; SAR 1976, p. 3. Described by James Cant, Jr., as 2700 feet west of the house, the spring was originally thought to lie on NPS land; Dick Lawton, "Long History of the Cant Ranch," p. 16.

44. SAR 1977, p. 4. The NPS completed the rehab project by December 1978 except for some work in a sheep-shearing shed attached to the barn; SAR 1978, p. 4.

45. Estimate of attendance in SAR 1978, p. 1.

46. Program, Dedication of John Day Fossil Beds National Monument at the Cant Ranch, 8/23/78, Dedication folder, KLFA.

47. SAR 1978, p. 5.

48. Ladd interview, 5/19/92.

49. National Parks and Conservation Association, Planning and Public Involvement: Constituency Building for the Parks, Volume 7 of Investing in Park Futures: A Blueprint for Tomorrow (Washington, DC: NPCA, 1988), pp. 2-7.

50. SAR 1975, p. 5. The planning team initially consisted of John Reynolds and Jean Swearingen of the Denver Service Center, John Davis and Ernest Borgman of the Klamath Falls Group, Gerry Patten from the Washington office, Jim Rouse from the Pacific Northwest Region, and Ladd. The statement for management and outline of planning requirements are attached as appendices to "Task Directive, John Day Fossil Beds, General Management Plan, January 1976," as noted in Swearingen, et al., "Interim Interpretive Plan, John Day Fossil Beds National Monument, Oregon," revised January 1976, p.26.

51. An inventory became necessary because the NPS avoided discussion of boundaries eight years earlier, and instead directed Shotwell to evaluate the larger area's national significance. Other needs consisted of an archeological inventory, a historic resource inventory and a historic structure report. The list is in Swearingen, et al., "Interim Interpretive Plan," p. 25.

52. Although the John Day Fossil Beds effort represented a prototype for the new planning process, the request for basic information to support planning in a new area did not set a precedent. For example, see Edwin C. Bearss, History Basic Data, Redwood National Park (Washington, DC: USDI-NPS, Office of Archeology and Historic Preservation, 1969).

53. Rensberger, "Paleontologic Information, John Day Fossil Beds National Monument," February 1976, Library, JODA.

54. Rensberger, "Paleontologic Information," pp. 1-15. He defined a paleotologic resource as a remains or indication of an ancient organism and its position in geologic time and space. This may be: 1) a fossil in its undisturbed original position in the rocks or on the surface where it has become exposed by natural processes; or 2) a fossil which has been removed from such a position but for which the geographic coordinates of the original position and the stratigraphic and lithologic data were recorded and kept in unequivocal association with the specimen.

55. Rensberger, "Paleontologic Information," pp. 2-3, 13. As indicated in the last chapter, concerns about the location of existing state and federal land, as well as river access, dictated the unit's shape more than locations of fossil resources. The lack of consultation with paleontologists on the part of NPS planning teams from 1970 to 1974 appeared to be all the more embarrassing given the publicity accorded fossil finds at Clarno; see three articles by Phil F. Brogan in the Portland Oregonian, "Fossils Tell State's Story," 11/6/66, p. 30; "Hills Yield Many Secrets to OMSI Researchers," 9/28/69, real estate section, p. 14; and "Gigantic animals once roamed John Day River," 2/6/72, p. 25. Even if the planners missed reading the news articles, it is difficult to see how they ignored a map derived from Shotwell's report which corresponded to Rensberger's delineation of fossil localities; see NPS drawing NM-UJD 7400 by P.A. Ruoff, August 1967, JODA map files.

56. Rensberger, "Paleontologic Information," pp. 3-4 and 13-14. A member is a stratigraphic subdivision of a formation. Rensberger found the Big Basin and Turtle Cove members to be represented at Painted Hills. He also concluded that the type locality of the Bridge Creek flora (found within the Big Basin Member) is located within the unit.

57. Rensberger, "Paleontologic Information," pp. 4-12.

58. Rensberger, "Paleontologic Information," p. 8.

59. Rensberger, "Paleontologic Information," p. 24, 29.

60. Rensberger, "Paleontologic Information," p. 10. While the monument contains good exposures of the Big Basin and Turtle Cove members, he noted that the Kimberly Member is very poorly represented and a complete absence of the Haystack Valley Member.

61. Rensberger, "Paleontologic Information," pp. 16-18.

62. Rensberger, "Paleontologic Information," p. 19.

63. Rensberger, "Paleontologic Information," p. 20. The localities that Rensberger specifically mentioned as being damaged by visitors walking on them included an area just north of Blue Basin, Sheep Rock, and parts of the Painted Hills Unit.

64. Rensberger, "Paleontologic Information," p. 27.

65. Rensberger, "Paleontologic Information," pp. 45-47.

66. USDI-NPS, "Summary Environmental Assessment, General Management Plan, June 1976, John Day Fossil Beds National Monument, Oregon," pp. 6-20.

67. Marilee Cogswell, et al. (comps.), "Legislative History for John Day Fossil Beds National Monument, 91st Congress through 96th Congress," NPS, PNR Library, Seattle, November 1985, pp. 6-20. The bills are HR 7625, 5 1521, HR 488, HR 1252, and S 2168.

68. John Kyl, Assistant Secretary of the Interior, to Hon. James A. Haley, Chairman, [House] Committee on Interior and Insular Affairs, 12/10/73, in "Legislative History," pp. 50, 82-83.

69. Ibid. Information on a map submitted by Interior as part of legislative support data in the House and Senate reports clarified this reference to suitable lands. Reference to this map is in the 1974 authorizing legislation.

70. USDI-NPS, Office of Environmental Planning and Design, Western Service Center, "John Day Fossil Beds (proposed) Master Plan," preliminary working draft, 1/15/71, p. 1.

71. John Sage, et al., "John Day Fossil Beds (proposed) Master Plan," preliminary working draft, August 1971, Appendix A.

72. USDI-NPS, "Summary Environmental Assessment," p. 6. The statement John Day Fossil Beds appears again in USDI-NPS, "General Management Plan, National Monument, Oregon," October 1979, p. 7.

73. Section 8 of P.L. 94-458 (October 7, 1976) authorizes investigation, study, and monitoring. Statutory language which allows the NPS to extend resource protection efforts outside the monument is, however, largely nonexistent; see Robert B. Keiter, "Protecting the National Parks from External Threats," Land and Water Review 20:2 (1985), pp. 413-419; see also Keiter's "National Park Protection: Putting the Organic Act to Work," in David G. Simon (ed.), Our Common Lands: Defending the National Parks (Washington, DC: Island Press, 1988), pp. 79-81.

74. USDI-NPS, "Summary Environmental Assessment," pp. 6-10.

75. USDI-NPS, "Summary Environmental Assessment," pp. 19-20.

76. USDI-NPS, "Summary Environmental Statement," pp. 21-40.

77. SAR 1976, p. 4. Public input is summarized by Ladd's notes entitled "Public Involvement" which precedes a memorandum from John J. Reynolds, captain of the planning team, to Ladd, 7/30/76, L58 Proposed Areas, 1977 Legislation, KLFA. Written comments and notes from informal meetings with the two county planning commissions are attached to a transmittal from Ladd to the regional director dated 10/1/76, D18 Planning Program, CF, JODA. Monument staff began refining portions of the SFM's resource management and visitor use sections in September 1976; see draft that accompanies Borgman's memorandum to the regional director dated 9/30/76, D18, CF, JODA.

78. Resources management alternatives in the SFM were broken into eight components: paleontology, grazing, mule deer, coyote, vegetation, threatened and endangered wildlife, chukar, fisheries, and cultural resources (history and archeology). All but grazing had one feasible alternative that depended on research; USDI-NPS, "Summary Environmental Statement," pp. 21-24. In the visitor use category, Alternative B simply represented a greater degree of development than did Alternative A. Both alternatives remained highly tentative, especially with respect to the location of a visitor center.

79. This CPSU is a smaller version of the one launched at the University of Washington in 1970. As the first of its kind, the intent involved stationing a team of NPS biologists and sociologists at a campus where they could use university expertise to assist park superintendents. This model is peculiar to the Pacific Northwest Region, as it did not find favor elsewhere in the NPS; National Parks and Conservation Association, Research in the Parks: An Assessment of Needs, Volume 2 of Investing in Park Futures: A Blueprint for Tomorrow (Washington DC: NPCA, 1988), p. 8.

80. USDI-NPS, "Park Resource Maps, August 1976, John Day Fossil Bed National Monument, Oregon." It is cited in Edward E. Starkey, "Oregon Cooperative Park Studies Unit, School of Forestry, Oregon State University, Corvallis, April 1, 1975, to December 31, 1977," p. 36. Some information in report form accompanied the maps, much of it centered on wildlife; Ralph R. Denny; District Wildlife Biologist, Oregon State Game Commission, to Glenn Koppang, Research Assistant, Department of Forest Management, OSU, 12/15/75, Oregon Fish and Wildlife Commission folder, KLFA.

81. Berta A. Youtie and A.H. Winward, "Plants and Plant Communities of the John Day Fossil Beds National Monument," January 1977, cited in Starkey, p. 18. Need for the inventory is described in USDI-NPS, Denver Service Center, "Environmental Assessment," p. 69.

82. Brad Griffith, "Coyotes and Mule Deer of John Day Fossil Beds National Monument: A Management Report," CPSU, OSU, Report 80-2, cited in Starkey, "Oregon Cooperative Park Studies Unit, 1978-79," p. 7. This served to allay any local fears about wildlife on park lands where hunting is banned.

83. Wilbur A. Davis, "Survey of Historic and Prehistoric Resources in the John Day Fossil Beds National Monument," May 1977. Although the need is mentioned in the SFM and alternatives, it is better described in Swearingen, et al., "Interim Interpretive Plan," p. 25. The study also represented compliance with Executive Order 11593, Protection and Enhancement of the Cultural Environment; USDI-NPS, Denver Service Center, "Environmental Assessment," p. 170.

84. Stewart Janes, "Raptors of the John Day Fossil Beds," [January 1978], cited in Starkey, "Oregon Cooperative Park Studies Unit 1975-77, p. 17. This may have been part of a perceived need for a wildlife survey as identified in resource management alternatives though no specific reference to raptors appears in the SFM; USDI-NPS, Denver Service Center, "Environmental Assessment," p. 70.

85. F.J. Frank and Eugene A. Oster, Water Availability and Flood Hazards in the John Day Fossil Beds National Monument, Oregon, Open-file Report 79-1487 (Portland: USDI-Geological Survey, Water Resources Division, 1979), pp. 1-2. Much of the study represented compliance with Executive Order 11296, concerning evaluation of flood hazard in locating federally owned buildings; USDI-NPS, Denver Service Center, "Environmental Assessment," p. 171.

86. USDI-NPS, "Interpretive Plan, March 1978, John Day Fossil Beds National Monument, Oregon," pp. 24-27.

87. USDI-NPS, Planning Process Guideline, Chapter 5, Phase V "Preparation and Approval of the Plan," Release No. 1, May 1978.

88. The NPS did not prepare an environmental statement to accompany the draft plan because the regional director determined that the GMP did not represent a major Federal action significantly affecting the environment; Edward J. Kurtz, Acting Regional Director, "Availability of draft General Management Plan and Negative Declaration," Federal Register 43:163 (August 22, 1978), p. 37232.

89. For comments concerning Painted Hills see Larry L. Jacobson, Assistant State Parks Superintendent to Ladd, 9/8/78, William L. Smith to Ladd, 9/8/78, Andree David to Ladd, 9/23/78, and Dale Schmidt to Ladd, 11/15/78, all D18 Planning Program, CF, JODA.

90. The only reassessments of any consequence took place in the general development section. One involved a campground planned for the Sheep Rock Unit which became subject to further study instead of being located on a site along the John Day River north of the Cant Ranch. The second omitted a 1,000 square foot multipurpose facility planned for the Painted Hills picnic area, partly because of uncertainties about substantial NPS facilities being constructed on lands subject to reversionary clauses.

91. The final GMP appeared with a date of October 1979, though the resource management section was still being rewritten one month later; Ladd to Russell Dickenson, Regional Director, PNR, 11/21/79, p. 1, H 14 Administrative History, CF, JODA.

92. Borgman to Regional Director, 12/9/75, L1425 Land acquisition, CF, JODA; D.W. Campbell, "Boundary Adjustments," 2/23/76 draft, attachment of Campbell to Regional Director Dickenson, 2/24/76, D18 Planning Program, CF, JODA. This limitation appears in USDI-NPS, Denver Service Center, "Environmental Assessment," p. 5.

93. Campbell to Dickenson, 2/24/76, p. 1.

94. Campbell, "Boundary Adjustments," p. 1.

95. A public meeting during the comment phase for the SFM and alternatives underlined this deficiency; John J. Reynolds to Ladd, 7/30/76, L58 Proposed Areas, 1977 Legislation, KLFA.

96. "Position of Private Landowners," p. 2, L58 Proposed Areas, 1977 Legislation, KLFA. See also memorandum from Dickenson to Chief, Office of Legislation, 1/27/77, W3815 Legislation, CF, JODA, and "Boundary Map, Clarno Unit," attached to correspondence from William J. Whalen, Director, to Hon. Al Ullman, 10/7/77, D18 Planning Program, CF, JODA.

97. The map is referenced in HR 8366 as NM-JDFB-20,014-B, dated May 1977. It indicates that the NPS put a quiet end to planning for provision of river access at Clarno by deleting the 545 acres of private land.

98. Jones to Ladd, 8/12/77, D18, CF, JODA.

99. Jones, "Features within the proposed addition," and UlIman to William J. Whalen, Director, NPS, 8/30/77, D18, CF, JODA.

100. USDI-NPS, "Acreage Adjustments Proposed, John Day Fossil Beds National Monument, Oregon, September 1977," D18, CF, JODA. Of the 920 acre total, BLM had 240 acres while one owner (Catherine Maurer) held the remainder. When asked, Mrs. Maurer expressed "no displeasure" about the proposal; "Statement on the Position of the Landowner, Clarno Unit," D18, CF, JODA. See also "Position of Private Landowners," p. 2, L58 Proposed Areas, 1977 Legislation, KLFA.

101. SAR 1975, p. 2.

102. USDI-NPS, "Position Paper, Painted Hills Water Impoundment," p. 1, Planning notebook, CRLA and JODA, Crater Lake National Park Library.

103. USDI-NPS, "Position Paper," p. 2; Ladd interview, 2/23/95. The agreement also included a provision that replacement of inundated road access to private land outside the unit became the responsibility of Brooks Resources because the NPS wanted no additional roads on monument land; Dickenson to Chief, Office of Legislation, NPS, 8/10/78, L1417 Boundary adjustments, Planning notebook, CRLA library.

104. USDI-NPS, "Acreage Adjustments Proposed," D18, CF, JODA.

105. USDI-NPS, "Status of Land Acquisition to Date," L58 Proposed Areas, 1977 Legislation, KLFA. This acquisition cost the government $370,000; Edward J. Kurtz, Acting Regional Director, to Hon. Al Ullman, 10/27/78, L1415 Land Acquisition, CF, JODA

106. Subcommittee on National Parks and Insular Affairs, Legislative History of the National Parks and Recreation Act of 7978 (P.L. 95-625), 95th Cong., 2nd Sess., Committee Print No. 11 (Washington, DC: Government Printing Office, 1978), p. 63.

107. SAR 1978, p. 5.

108. USDI-NPS, "Acreage Adjustments Proposed," D18, CF, JODA.

109. Subcommittee on National Parks, Legislative History, p. 48.

110. Subcommittee on National Parks, Legislative History, p. 280. The map is numbered 177-30,000-B with a date of May 1978. Senate Report 95-811 of May 12, 1978, and House Report 95-1165 of May 15, 1978, are the pertinent documents.

111. Subcommittee on National Parks, Legislative History, p.655, 900. The monument's boundary adjustments represent a very small part of the National Parks and Recreation Act of 1978, legislation which contained numerous other provisions affecting the NPS. The law's size and scope reflected the expansionist views of House subcommittee chairman Phillip Burton of California; Ronald A. Foresta, America's National Parks and Their Keepers (Washington, DC: Resources for the Future, 1984), pp. 80-86.

112. Subcommittee on National Parks and Insular Affairs, Legislative History, p. 63; SAR 1978, p. 5.

CHAPTER FIVE

1. Keith Watkins, "Notification of Closing," Tract 102-03, 12/31/79, L14 Lands, Central files, JODA. The price of $200,000 was $31,000 over the appraisal; Tract 102-03, L1425 Holdings other than federal-JODA, Deed Acquisition files, PNR Lands, Seattle.

2. Superintendent's Annual Report (hereafter SAR) 1980, p. 2. The remaining parcels at Foree at state and BLM land. Employees began occupying the residence in 1980.

3. As per the agreement, Brooks assumed responsibility for fencing and signing the 38 acre parcel to prevent recreational use of the water, as well as for relocation of an access road if needed. The specified height of the impoundment was to be no greater than 1,905 feet in elevation. One unintended result of the exchange was that the parking for the Painted Cove trailhead became private land; Jim Morris interview, 5/22/92.

4. Watkins, "Notification of Closing," Tracts 103-04, 103-05, 103-06, 103-07, 103-08, 6/2/83, L14 Land acquisition, CF, JODA.

5. Brooks Resources and the NPS subsequently worked to clarify stipulations on the scenic easement. The parties agreed to agricultural use (either for crops or grazing) and to provide the government with access; Tracts 103-04, 103-05, 103- 06, L1425-JODA, Deed Acquisition files, PNR Lands, Seattle.

6. Terms of the exchange are summarized in correspondence from Smith to park neighbors Jack Collins and Corky Norton, 7/23/81, L1425, CF, JODA. The NPS applied to the state for access to irrigation water from both Bridge Creek and the impoundment, subsequently called Mitchell Ranch Reservoir, in 1985; Wayne J. Overcash, Senior Water Rights Examiner, to James A. Morris, Supervisory Park Ranger, 6/10/85, and Morris to Smith, 7/26/85, L1425, CF, JODA.

7. This provision arose from a July 31, 1979, meeting between landowners and the NPS, as noted in the Deed Acquisition files for tracts 103-04, 103-05, and 103-06, PNR Lands, Seattle.

8. USDI-NPS, GMP, pp. 52-53.

9. USDI-NPS, Land Acquisition Plan, p. 2.

10. Tract 101-32 was obtained from the Southworth Brothers, Inc., at a cost of $11,000; Watkins, "Notification of Closing," Tract 101-32, 6/24/83, L1425, CF, JODA.

11. The Land and Water Conservation Fund Act of 1965 allowed the NPS and other federal agencies to obtain money for land acquisition through a specific account in the Treasury. Funds are provided largely from revenue generated from oil leases on outer continental shelf.

12. USDI-NPS, Land Protection Plan, pp. 15-16. The NPS also expressed the hope that BLM could make some public domain land near the monument available for exchange. This did not pacify the National Parks and Conservation Association, who questioned NPS reliance on exchanges as impractical because of their difficulty to complete; William C. Lienesch, Assistant Director for Federal Activities, NPCA, to Ladd, 12/12/83, L14, CF, JODA.

13. USDI-NPS, Land Protection Plan, pp. 17-19. In many respects the plan acknowledged political reality during this period, when the Reagan administration removed acquisition authority from the NPS. Even when the authority was restored, funds were often lacking so the agency obtained very little land anywhere in the National Park System for much the 1980s; National Parks and Conservation Association, Land Acquisition: Completing the Parks, Volume 7 of Investing in Park Futures (Washington, DC: NPCA, 1988), pp. 4-5.

14. USDI-NPS, "Addendum to Land Protection Plan for John Day Fossil Beds National Monument," 1990, pp. 4-6, L14, CF, JODA.

15. USDI-NPS, LPP, pp. 1-2. This took place as part of the Sutton Mountain exchange between Brooks Resources and BLM. It also held the possibility that BLM might consider building a campground near Painted Hills; Morris to Ladd, 8/24/88, p. 3, L1419, CF, JODA.

16. Ladd mentioned negotiations involving fee acquisition and exchange for parcels owned by the Mascall Ranch (tracts 101-03, 101-06, 101-34, 101-37) in SAR 1980, p. 5. There is some urgency behind acquisition of Mascall formation lands because of the potential for Bentonite extraction; Resource Management Plan, 1992, p. 55. Exchange has been a frequent topic with the Maurers at Clarno; see Francis Kocis to Ladd, 2/25/81, and briefing papers by Jim Morris on 7/19/89 and 11/2/93, L1425, CF, JODA.

17. Three of the four parcels in the proposed partition fell within monument boundaries; Ladd to Dick Brown, Grant County Planning Department, 3/29/90, L1415 Policy and procedures, CF, JODA.

18. Rick L. Wagner, "Notification of Closing," Tract 101-19, 7/20/90, L1425, CF, JODA.

19. Wagner, "Notification of Closing," Tract 101-22, 4/10/92, L1425, CF, JODA.

20. The southern parcels included five tracts owned by Lillian Mascall totaling 1,235 acres and a 160 acre piece of land belonging to Rod Immenschuh. Virtually all of the 425 acres of nonfederal land adjoining Blue Basin are in two tracts owned by Mike and Elizabeth Wiscavage.

21. A 40 acre tract at Painted Hills is still belongs to the Oregon Land Board. Ten acres remains in private hands, with the NPS wanting to pursue acquisition through scenic easement.

22. The remaining acreage consists of the 20 acre Bowerman parcel (tract 104-07) and nine acres owned by Agri-Empire (tract 104-01).

23. USDI-NPS, GMP, p. 47.

24. This consisted of 11.5 miles of survey; SAR 1977, p. 3.

25. SAR 1980, p. 7. Some additional detail about the project can be found in its environmental assessment; Ladd to files, 10/16/79, L7617 Environmental impact, CF, JODA. The NPS removed fence built by the state to protect the Painted Hills from off road vehicles; William L. Smith, President, Brooks Resources, to Ladd, 9/8/78, D18 Planning program, CF, JODA.

26. This was done to protect Bridge Creek's riparian zone from further damage by cattle; SAR 1982, pp. 5-6.

27. SAR 1983, p. 3.

28. Ibid.

29. William W. Glenn, Chief, Branch of Cadastral Survey, BLM, to Ladd, 12/18/84, L1417 Boundary adjustments, CF, JODA; see also SAR 1984, p. 3.

30. Ladd to Regional Director, 1/7/87, p. 3, L3019 Grazing, CF, JODA. The superintendent noted that trespass grazing continued to occur on isolated unfenced parcels such as the 240 acres of the unit located in Wheeler County (tract 101-13). Park staff have maintained that this tract is pointless to survey and fence; Jim Morris interview, 3/2/93. Periodic problems have occurred on parts of tract 101-09 where unfenced sections are adjacent to land owned by Immenschuh; Morris, "Conversation Record," 6/18/87, L1425, CF, JODA.

31. SAR 1986, p. 1.

32. USDI-NPS, GMP, p. 47.

33. The 202 acre lease (tracts 101-01 and 101-02 is calculated to provide ten animal unit months (one AUM is the amount of forage consumed by a cow and calf for one month), while the 240 acre lease in tract 101-16 has provided 15 AUMs. The 640 acres of "trading stock" (tract 101-31), has furnished 100 AUMs; figures are in Ladd to Regional Director, 1/7/87, p. 2.

34. SAR 1982, p. 3. Replacement of the Painted Hills water system took place in 1981 because the state's well had a capacity of only two gallons per minute and an excessive turbidity level; Ladd to files, 3/10/82, L7617, CF, JODA.

35. Ladd to Joseph Jones, Director, Camp Hancock, 2/10/89, D5089 Services and utilities, CF, JODA. The right of way is in L3031 Water lines file and is described in SAR 1989, p. 4. In some respects this arrangement resulted from negotiations over Camp Hancock's possible expansion held prior to the monument's establishment; Dale A. Long, Director, Camp Hancock, to John Rutter, [NPS] Regional Director, 11/6/74; Borgman to Rutter, 12/30/74; and Borgman to Frank Heyl, Director, OMSI Outdoor Education, 8/1/75, L1425 Camp Hancock, CF, JODA.

36. The pertinent report is F.J. Frank, Water Availability and Flood Hazards in the John Day Fossil Beds National Monument, Oregon (Portland: U.S. Geological Survey, Water Resources Branch, 1979), and is referenced in the monument's Statement for Management (1992), p. 20.

37. Use of water, whether from surface or ground sources, is generally appurtenant to land under Oregon law. The state's water law follows an appropriation doctrine, where the first-in-time, first-in-right principle applies in periods of shortage. There are two types of water rights: long established (pre 1910) and recorded, which apply to the John Day River and its tributaries; USDI NPS, Final Wild and Scenic River Study, John Day River (Washington, DC: Government Printing Office, 1979), pp. 33-34. In the vicinity of the monument, water rights generally refer to permits issued by the state's watermaster for use of surface water for irrigation, whereas domestic use is from groundwater sources such as springs or wells.

38. The NPS did not oppose Asher's action, noting that he had more than ten years adverse possession government acquired the Foree property in 1979; "Tract 102-03 Waterline," Deed Acquisition files-JODA, PNR Lands, Seattle.

39. Grant County Planning Department, "Notice of Public Hearing," 4/30/87, D3215 Campgrounds, CF, JODA.

40. The NPS again identified a need for camping facilities in the area when the Dayville Development Corporation announced plans for resort development at the Cottonwood Ranch west of Dayville; Morris to Ladd, 1/22/90, no file coda, CF, JODA. Nothing came of this proposal at the time, perhaps because a study conducted in 1987 concluded that Grant County lacked the requisite recreational attractions and focal scenic values which tend to promote resort development; Rogatz Associates, "A Preliminary Analysis of the Market for Destination Resort Development in Grant County, Oregon," p. 3, L34 Recreation activities, CF, JODA. Several campsites subsequently appeared in Dayville, however, as part of bed and breakfast lodging; Christine Barnes, "For good times in the badlands, wander the John Day Fossil Beds," Portland Oregonian, 7/24/95, p. T4.

41. Ladd to Dick Brown, Grant County Planning Department, 5/7/87, D3215, CF, JODA. Some detail about the site is in an article by Julie Mansfield, "Recreational vehicle park opens near fossil beds," John Day Blue Mountain Eagle, 4/27/89. Both the GMP (p. 83) and Development Concept Plan of 1985 (p. 4) called for a 30-35 unit campground and group sites but did not specify a location within the Sheep Rock Unit. Ladd feared that such a development might complicate administration of the monument with non-park related use, so he made it last among his funding priorities for the unit beginning in 1980; Ladd interview 2/28/95.

42. SAR 1982, p. 3. The parcel is tract 104-07.

43. Ladd to Chairman, Wheeler County Planning Commission, 5/27/87, and Ladd to same, 9/3/85, L1425, CF, JODA.

44. Jim Morris, "Conversation Record," 3/25/88 and 5/5/88, L1425, CF, JODA.

45. The company agreed to maintain access to the Painted Cove Trail by filling with "appropriate" material to prevent the trail complex from being flooded; Ladd to Regional Director, 12/29/82, L7617, CF, JODA. In 1988 Brooks acknowledged the likelihood of raising the reservoir sometime in the future, but indicated a willingness to limit the increase to eight feet or less, thereby sparing parking and associated facilities at Painted Cove; Morris to Ladd, 8/24/88, p. 2, L1419 Federal holdings other than NPS, CF, JODA.

46. Ladd to Carlyle Norton [owner of an adjacent ranch whose access would be affected], 11/3/83, pp. 1-2, L3027, CF, JODA. One stumbling block from the company's standpoint has been the refusal of a landowner on Bear Creek (west of the monument) to give their consent for relocating the road down that drainage; Ladd to Regional Director, 12/29/82, L7617, CF, JODA.

47. Ladd to J.X. Wilson, Regional Engineer, ODOT Region 5, 7/8/92, D30 Roads and trails, CF, JODA.

48. State highway projects in Oregon are, of course, heavily dependent on federal funding. This is an acknowledgment of Section 4 (f) of the federal Department of Transportation Act (P.L. 89-670) of 1966 which relates to public parks; Morris to Ladd, 3/15/93, D30, CF, JODA.

49. Ibid. The preliminary proposal to change the present alignment is somewhat contradictory since the state included the Picture Gorge section of US 26 in its historic highway program; [Oregon Department of Transportation], Oregon Historic and Scenic Highway Program (Salem: ODOT, n.d.), p. 34.

50. Oregon Department of Transportation, "Spray-John Day River (Unit 5) Project," 5/16/91, pp. 1-2, D30, CF, JODA.

CHAPTER SIX

l. Ladd interview, 5/19/92.

2. USDI-NPS, GMP, p. 32.

3. USDI-NPS, "Scope of Collections Statement," February 1977, p. 2, attached to a transmittal from Ladd to Regional Director, 2/22/77, D6215 Museum and exhibit activities, CF, JODA. It appeared to be patterned after other examples supplied by the group office in Klamath Falls. Staff there expressed the difficulty of obtaining an approved scope of collections statement from a paleontological park; John R. Davis, Interpretive Specialist, KLFA, to Ladd, 9/15/76, D6215, CF, JODA.

4. A park-based paleontologist had been recommended by members of the planning team which convened in John Day shortly after the monument's establishment; Jean Swearingen, et al., "Interim Interpretive Plan, John Day Fossil Beds National Monument, Oregon," revised January 1976, p. 23.

5. SAR 1978, p. 2.

6. SAR 1980, p. 2.

7. Recovery of specimens during this period did not come entirely without incident. Ladd's assistant Francis Kocis helped long-time local collector Walt Weatherford remove an oreodont from Blue Basin in 1979. After noting Ruben's reaction to the specimen's poor condition once it reached headquarters, NPS seasonal employees began to pressure Ladd to give management of fossil resources a higher priority; Kim Sikoryak interview, 1/26/93.

8. SAR 1981, p. 6; Sikoryak interview, 1/26/93.

9. Ladd interview, 2/28/95. Work to prepare specimens and the mapping project are described by Dick Cockle, "Fossil Beds yield specimens," Portland Oregonian, 8/15/82.

10. SAR 1983, p. 2.

11. Ralph H. Lewis, "John Day Fossil Beds National Monument, Collections Management Plan," draft dated 8/22/84, H18 Biographical data and special collections, CF, JODA.

12. Ladd to Regional Director, 9/14/84, p. 1, D22 Construction and preservation programs, CF, JODA. Correspondingly, the number of accessions increased over the same period from 54 to 72. The 54 accessions noted by Lewis (p. 12) in June 1984 translated to a total in the collection of roughly 300 objects. A large percentage of these objects were associated with the Cant Ranch; Fremd to Ladd, 9/13/85, H1817, CF, JODA.

13. SAR 1984, p. 1.

14. USDI-NPS, John Day Fossil Beds National Monument Resource Management Plan and Environmental Assessment, 1986, p. 17, JODA Library.

15. USDI-NPS, RMP, 1986, p. 65; Fremd interview 7/24/95. The relatively small number of specimens in 1984 was partly due to the reluctance of park staff to accession these objects since the 1977 scope of collections statement called for retaining only a few fossils to show visitors; Sikoryak interview, 1/26/93.

16. USDI-NPS, John Day Fossil Beds National Monument, Scope of Collections Statement, 1986, pp. 2-3.

17. John Day Fossil Beds National Monument Park Staff, "Paleontology Narrative," in Ron Hyra and Neola Knowles (eds.) 1986 Annual Science Report (Seattle: USDI NPS, PNR, 1987), p. 15. A list of cooperative projects is on the park's file copy, but did not appear in the published summary.

18. [USDI-NPS and BLM,] "Interagency Agreement between the National Park Service, John Day Fossil Beds National Monument, and the Bureau of Land Management, Prineville District and Burns District," Agreement No. 1A9325-8- 0001, [1987, pp. 1-2, no file code, CF, JODA. The cooperative agreement followed a national memorandum of understanding dated January 29, 1987, between the NPS and BLM for planning and program coordination. Paleontological sites in the Burns and Prineville districts are listed in Oregon State Office, Bureau of Land Management, "Paleontological Sites on or near Bureau of Land Management Administered Lands in Oregon," December 1981, no file code, CF, JODA.

19. Fremd, "Cooperative Management of Paleontological Resources in the John Day Basin, Oregon," [abstract ca. 1988], N30 Geological features and studies, CF, JODA. The figure of 500 items is also in SAR 1988, p. 3.

20. SAR 1987, p. 3.

21. Jane Sikoryak, "Review of Paleontological Specimens and Related Records from the Vicinity of John Day Fossil Beds National Monument," a report submitted to the Pacific Northwest Region, National Park Service, 4/9/88, JODA Library.

22. SAR 1987, p. 2.

23. The plan provided justification for the monument's completely local approval process for collection permits, something which made it different from other NPS areas where fossils are a primary resource; Jason A. Lillegraven, "Paleontological Research on U.S. National Park Service Lands, as viewed by an external Scientist," Preprint from Proceedings of the First Conference on Fossil Resources in the National Park Service, (Denver: USDI-NPS, 1987), p. 5.

24. USDI-NPS, Paleontological Research Plan, pp. 18-50. In providing a framework for assessing and managing proposed research, Fremd had to place the key fossil assemblages represented within or near the monument into some sort of context. He related, in tabular form, the 19 assemblages to their respective geological formation and then rated their significance based on a literature review. The table also provided an estimate of each assemblage's representation in the museum collection, whether studies were available on the assemblage, and counted the number of specimens belonging to each on exhibit. A copy of the table (which appears on page 10 of the plan) also appeared in the monument's "Museum/Paleo News," (Late Fall 1988), p. 2.

25. Fremd, "Assemblages of Fossil Vertebrates in Pre-Ignimbrite Deposits of the Turtle Cove Member, John Day Formation (Arikareean), from Outcrops within the Sheep Rock Unit, John Day Fossil Beds, abstract in "Summary of Trip Report, 48th Annual Meeting, Society of Vertebrate Paleontology, October 13-15, 1988," N30, CF, JODA, and Fremd, "Taphonomy and Paleoecology of the Turtle Cove Member of the John Day Formation," in Ron Hyra (ed.), 1988 Annual Science Report (Seattle: USDI-NPS, PNR, 1989), p. 29.

26. The change in reporting came when Kim Sikoryak transferred to Haleakala National Park in 1988; SAR 1988, p. 1, and Fremd interview, 7/24/95. Fremd had since become one of the few paleontologists employed by the NPS. In 1986, for example, only four paleontologist positions existed in the agency. That number grew to eight by 1993; David McGinnis, Superintendent, Fossil Butte National Monument, to Director, National Park Service, 1/19/93, p. 1, in Rachel Benton (ed.), Proceedings of the Third Conference on Fossil Resources in the National Park Service, Natural Resources Report NPS/NRFOBU/NRR-94/14 (Denver: USDI-NPS, 1994), pp. xi-xiv.

27. In 1987, for example, the monument acquired a sizable collection from the Mascall and Rattlesnake formations; SAR 1987, p. 2. Meanwhile specimens recovered from just BLM lands in 1988 topped 500 and pushed the total number of objects in the collection to 5,000. Fremd's administrative duties also expanded that year in being named to the National Catalog Steering Committee; SAR 1988, p. 2.

28. SAR 1989, p. 1. Ellen Stapleton filled the position on a temporary basis in 1988, after which the NPS hired Camille Evans when the job became permanent a year later; Evans interview, 7/23/92. Kelly Cahill replaced Evans in 1994.

29. Fremd, "Trip Report, 49th Annual Meeting, Society of Vertebrate Paleontology," (1989), p. 2, N30, CF, JODA. He mentioned writing a paper on cyclic prospecting for the Desert Research symposium volume (in press) in the park's "Paleo-Museum News," 10:1 (Summer 1995), p. 2.

30. Ellen Morris Bishop, "After 25 million years, only 'Ellen' can reveal the past," Portland Oregonian, 8/29/91, p. D2. The importance of Blue Basin and Foree to cyclic prospecting is mentioned in SAR 1991, p. 2.

31. Fremd, "Cyclic Prospecting and Salvaging Fossils," abstract in Rachel Benton (ed.), Proceedings of the Third Conference on Fossil Resources in the National Park Service, Natural Resources Report NPS/NRFOBU/NRR-94/14 (Denver: USDI-NPS, 1994), p. 19. The database, of course, evolved from the mapping system instituted by Wagner and Ruben.

32. Fremd, "Museum/Paleo News," (Spring 1989), p. 1, and the issue for Spring 1991, p. 1. The 1989 visit also resulted in the university donating three large "Clarno mammal" casts to the park for exhibit purposes; SAR 1989, p. 3.

33. Fremd to Don Dumond, Director, UO Museum of Natural History, 2/5/92, N30, CF, JODA.

34. SAR 1992, p. 3. Fremd originally hoped that the BLM might contract this work to an outside party; "Museum/Paleo News," (Spring 1989), p. 1.

35. Fremd, "'I've seen the Miocene' in Central Oregon," Park Science 12:3 (Summer 1992), pp. 12-13. More detail about aspects of the research process is in NPS-77, Paleontological Resource Management, pp. 159-162.

36. Fremd interview, 7/21/92.

37. SAR 1993, pp. 3-4. Ladd noted that excavations in the Bridge Creek Flora type locality revealed a much more complex sequence of events than was previously known. He mentioned that three different lakes came and went, followed by a catastrophic volcanic event which incinerated an entire forest. Fremd highlighted a discovery associated with this work at Clarno in "Museum/Paleo News," (Early Fall 1991), p. 1. The NPS began incorporating specimens associated with the contract into its museum collection in August 1994; Fremd to [contractor] Erik Bestland, 8/25/94, p. 1, N3019, CF, JODA.

38. Final reports by contractors Erik Bestland and Gregory Retallack on the geology and paleoenvironments of Clarno and Painted Hills appeared in 1994. That year Bestland authored "Reconnaissance Stratigraphy of the Miocene Mascall Formation in its Type Area of Central Oregon." The relationship between this project and mapping at Clarno and Painted Hills was described in Fremd to Bestland, 11/22/94, N3015, CF, JODA. Fremd recommended that a similar approach to geological mapping and stratigraphic correlation be taken on the Warm Springs Indian Reservation, should the confederated tribes there wish to retrieve fossil specimens; Fremd to Scott Stelemke, Cultural Resources Program Manager, Confederated Tribes of the Warm Springs Reservation, 6/21/93, p. 2, and 7/12/94, p. 1, N3019, CF, JODA.

39. Fremd interview, 7/21/92.

40. Fremd first suggested the idea in the monument's paleontological research plan, p. 49. His letter advocating organization of such a body dated 3/27/92 received an enthusiastic response from scientists such as Steven Manchester, who was about to finish a major monograph on the Clarno Nut Beds, and John Rensberger.

41. Membership estimate from Fremd interview, 7/24/95. One of the differences between this group and its forerunner is that Fremd could, as suggested in his letter soliciting interest in the group, arrange and perhaps underwrite gatherings of scientists in the field. Like Merriam, Fremd thought that the Associates could promote the continuity of studies which collectively had the potential for advancing research over an extended period; Merriam, "Researches on the John Day Region of Oregon with Discussion of Program to Meet Future Needs of Research and Educational Activities," portion of President Emeritus Research Report, 1943 typescript, p. 3, John Day Fossil Beds file, Oregon Parks and Recreation Department, Salem.

42. USDI-NPS, PRP, appendix nine, items 3 and 5.

43. SAR 1990, p. 3. The conversion also allowed the NPS to obtain more lab equipment for use by park staff the following year; SAR 1991, p. 3.

44. SAR 1992, p. 6.

45. Fremd interview, 7/24/95. The Bally building also provides additional lab and office space for staff involved with museum work. Some collection storage remains in John Day and the NPS has explored the feasibility of housing some objects in other repositories such as the University of Oregon by cooperative agreement; SAR 1991, p. 3.

46. USDI-NPS, GMP, p. 39; USDI-NPS, Resource Management Plan, 1986, p. 33.

47. USDI-NPS, RMP, 1992, pages 12 and 15. Monument staff have somewhat compensated for the lack of research information by generating lists supported by field observation cards. As of 1992, the park supported 41 mammal species, 50 bird species, 14 reptile species, 6 amphibian species, and 7 fish species.

48. Brad Griffith, "Coyotes and Mule Deer of John Day Fossil Beds National Monument: A Management Report," CPSU, OSU, Report 80-2, pp. 26-27. These findings virtually silenced Oregon Department of Fish and Wildlife officials who previously expressed alarm about overpopulation of deer on bottomland in the monument; SAR 1975, p. 2.

49. USDI-NPS, RMP, 1986, p. 33.

50. SAR 1980, p. 3.

51. Morris to Ladd, 7/12/85, D3219 Erosion and watershed control, CF, JODA.

52. Ladd to Bob Dupiriak, Mount Rainier National Park, 5/30/91, D3219, CF, JODA. The main benefit associated with beaver dams is their ability to retain sediment, something which local ranchers appeared to favor; Morris to Ladd, 1/30/91, L3215 Public land cooperation, CF, JODA.

53. The BLM acquired more than 50,000 acres in the Painted Hills vicinity through a phased land exchange with Brooks Resources. This took place from 1986 to 1991 and allowed the BLM to begin riparian restoration efforts along 35 miles of Bridge Creek and its tributaries; "Bridge Creek project unites diverse elements in common goal--restoration," Portland Oregonian 9/3/90, p. D8. The NPS cited fishery improvement and benefits associated with consolidated management of fossil resources in supporting this land exchange; Ladd to James Hancock, BLM Prineville District Manager, 6/16/86, A3815 Public relations with other federal agencies, CF, JODA. Specifics about the deal are in "Fact Sheet, Sutton Mountain Land Exchange," 12/16/86, L1425, CF, JODA.

54. SAR 1983, p. 3.

55. SAR 1985, p. 2; Ladd to Regional Director, 5/3/85, D22, CF, JODA; USDI NPS, RMP, 1986, p. 27.

56. Morris to Ladd, 9/17/85, D3219, CF, JODA; SAR 1987, p. 3; SAR 1988, p. 3. The planting seemed successful enough for Morris to propose planting cottonwood downstream of springs and perennial seeps within the Sheep Rock Unit; Morris to Ladd, 3/12/90, L7617, CF, JODA. Previous research on the monument's raptors provided some justification for planting; Stewart Janes, "Raptors of John Day Fossil Beds National Monument, A Report to the National Park Service," 1977, p. 47.

57. Control measures consisted of hand removal, pesticide applications, mechanical treatments, burning, and revegetation of treated sites. They were aimed at seven non-native species: Russian knapweed (Centaurea repens), puncture vine (Tribulus terrestris), white top (Cararia pubescebs), teasal (Dipsacus sylvestris), bull thistle (Cirsium vulgare), field bindweed (Convolullus arvensis), and cocklebur (Xanthium strumarium); USDI-NPS, RMP, 1986, p. 21.

58. The most important is Marshall R. Haferkamp and Richard F. Miller, "Revegetation with Native Plant Species on the John Day Fossil Beds National Monument, A Report to the National Park Service," October 1, 1988, JODA Library. This is actually just the concluding set of studies; earlier work has the same title and was authored by Miller, et al. in 1983. Some recommendations for Foree and Painted Hills are in Jim Romo, "Interim Vegetation Management for John Day Fossil Beds National Monument," 11/6/85, D18 Planning program, CF, JODA.

59. USDI-NPS, RMP, 1992, p. 33. The study is J. Boone Kaufman, et al., "The Ecological Effects of Fire on Fuels and Vegetation," in Ron Hyra (ed.), 1988 Annual Science Report (Seattle: USDI-NPS, PNR, 1989), p. 31. An update is in the 1992 report, p. 9.

60. Decrease of sagebrush and juniper in some burned areas exceeded 90 percent; "Fire on the Mountain," Oregon's Agricultural Progress (Spring/Summer 1990), p. 11. Fire exclusion and grazing have been linked to expansion of western juniper in eastern Oregon rangeland by a 1977 CPSU study; Dean A. Shinn, "Man and the Land: An Ecological History of Fire and Grazing on Eastern Oregon Rangelands," in Edward E. Starkey (ed.), "Oregon Cooperative Park Studies Unit, April 1, 1975 - December 31, 1977," School of Forestry, OSU, Corvallis, p. 8.

61. David B. Sapsis, "A Reinventory of the Upland Vegetation Communities of the John Day Fossil Beds National Monument," May 1992, JODA Library; Carolyn E. Wright, "Botanical Survey, John Day Fossil Beds National Monument, Oregon, a report for the National Park Service," May 1992, JODA Library. Results from the latter are highlighted in Ken Till, "Rare Plants at John Day Fossil Beds," Resource Management in the Pacific Northwest Region (Spring 1992), p. 11.

62. SAR 1992, p. 1.

63. Till interview, 7/23/92.

64. Till interview, 7/24/95. KCO Associates of Seattle did the project on contract.

65. This applied to 42 acres in the vicinity of the Foree picnic area which burned in June 1992; Ladd to Regional Director, 8/14/92, L7617, CF, JODA. Much more work took place in the aftermath of the Mammal and Hancock fires that affected 1,300 acres at Clarno in 1994; Hammett to Regional Director, 8/15/94, L7617, CF, JODA.

66. USDI-NPS, RMP, 1992, p. 24. Till noted that research continues on the monument's vegetation, with a National Biological Survey study which began in 1995; Till interview, 7/24/95.

67. USDI-NPS, GMP, 1979, p. 46.

68. Authority comes from Section 207 of the National Historic Preservation Act amendments dated December 12, 1980 (P.L. 96-515), which is implemented through 36 CFR 18. The regulations appeared in November 1982, whereupon the NPS developed further guidance for parks by issuing Special Directive 82-12, "Policy on Historic Property Leasings and Exchanges," and NPS-38, "Historic Property Leasing Guideline."

69. Brad Griffith, Research Biologist, to Ladd, 6/2/81, N1419 Birds, and William J. Briggle, Acting Regional Director, to David G. Talbot, State Historic Preservation Officer, 3/21/84, p. 1, H4217 Historic preservation compliance, CF, JODA.

70. SAR 1982, p. 4.

71. The LCS update formed the core of the nomination; Stephanie Toothman, Regional Historian, to Ladd, 7/25/83, H4217, CF, JODA.

72. Talbot to Daniel J. Tobin, Jr., [NPS] Regional Director, 7/24/84, H32 National Register, CF, JODA. Description of the property is in Item 7 of the nomination, while the boundaries are delineated in Item 10. Toothman later explained that the emphasis for preservation efforts there should be the period from initial establishment of the ranch in the 1890s through the late 1930s or early 1940s, so that the ranch's infrastructure as it developed over half a century could be maintained; Morris to Ladd, 10/21/88, D2217, CF, JODA.

73. Study of the situation began less than two years after the initial leasing; [Toothman], "Case Study: Historic Property Leasing Program, PNRO," 2/28/86, L30 Land use, CF, JODA.

74. SAR 1985, p. 2.

75. Park neighbor Rob Roy Munro has been the lessee; SAR 1987, p. 3, and SAR 1991, p. 3. Despite Toothman's recommendation in 1986 for a flat fee rather than basing the lease on tonnage harvested, the NPS continued to pursue fair market value on a per ton basis--something which netted less than $20 per ton on only 57 acres most years; Rex Daugherty, Chief Appraiser, PNR, to Toothman, 10/15/90, L30, CF, JODA.

76. USDI-NPS, RMP, 1992, p. 19. Chief ranger Jim Morris added that distance of the fields from an upland grazing component of ranch operations also hurt the lease's economics; Morris interview, 5/22/92.

77. Morris to files, 9/16/91, p. 1, H32, CF, JODA; SAR 1993, p. 2.

78. Cathy Gilbert, "Task Directive, Cultural Landscape Report: Cant Ranch, John Day Fossil Beds National Monument," pp. 1-2, H32, CF, JODA.

79. Gilbert, "Task Directive," p. 4. Most of the concern about maintaining historic integrity of the district's vegetation previously focused on the orchard; Kim Sikoryak to Ladd, 3/29/85, H2215, and Ladd to Regional Director, 11/16/87, H32, CF, JODA.

80. Donald Peting, Historic Structures Preservation Guide, James Cant Ranch, John Day Fossil Beds National Monument, Grant County, Oregon (Seattle: USDI-NPS, PNR, 1986), p. 8. Emphasis on stabilizing the barn came in part from its potential usefulness as a storage area and the possibility that it could serve as a facility for interpreting farm machinery associated with the Cant Ranch; Sikoryak to Ladd, 3/14/85, D24, CF, JODA.

81. Gretchen A. Luxenberg, Historic American Buildings Survey documentation, James Cant Ranch, HABS No. OR-142, June 1988, JODA Library.

82. The recommendation is in Steven Burke, et al., "Design Analysis for the Rehabilitation of the Cant Ranch House for Use as Park Headquarters," March 1993, p. 19, no file code, CF, JODA. Much of the load reduction came through moving the park library to a first floor room; Morris to Regional Director, 3/30/94, D34 Buildings, CF, JODA. Newly appointed Park Superintendent Jim Hammett directed the move of park headquarters in 1994.

83. The NPS did not undertake a HRS until 1995, even though the GMP pledged that it would be the first action taken in managing the monument's historic resources; USDI-NPS, GMP, p. 46. The themes are also listed on that page and in the RMP, 1992, p. 21. Jane Sikoryak addressed several of the identified themes in the Sheep Rock Unit, but on a somewhat sporadic basis. Among her work is an essay entitled "The Turtle Cove Problem" on 3/5/79 and a memorandum to Ladd called "Historic Sites along Oregon State Highway #19, Sheep Rock Unit, Grant County, Oregon," H1415, CF, JODA.

84. Ullman opposed the idea so it was dropped from further consideration; Don Spalding interview, 6/3/92.

85. Glass to Thomas P. Thayer, 6/5/67, J.D. Geological Interpretation folder, Klamath Falls Group Office files. Reference to the inventory efforts is also in Daisy Kuizenga, "Opium, Herbs, Food still stock shelves of John Day 'store'," Portland Oregonian, 2/18/71, p. 18. The store was principally owned by Lung On and Ing Hay. Upon the latter's death in 1952, Bob Wah inherited the property. The store was deeded to the city upon Wah's death in 1966, with a condition that it be retained as a museum to honor the Chinese in eastern Oregon. Glass inventoried its contents with that use in mind. The National Trust for Historic Preservation gave the city $800 in matching funds for the feasibility study; James Magmer, "Writings Tell Fascinating Story of Chinese Life in Oregon," Portland Oregonian, 6/4/72, Forum section, p. 6.

86. Most of the money went toward basic restoration of the building; D.W. Powers III, Preservation Specialist, State Historic Preservation Office, to Glass, 1/21/76, p. 2, H30 Historic sites, CF, JODA. As a condition of the grant, which came largely as the result of Buck Smith's influence with state highway commission chairman Glenn Jackson, the state assumed ownership but leased the property back to the city; Morris to files, 3/10/94, H30, CF, JODA, and Glass interview, 7/24/92.

87. This came an outgrowth of the "Gum Sam" exhibit on the Chinese role in the Intermountain West, held at the High Desert Museum in Bend; Bob Boyd, Curator of Western Heritage, HDM, to Ladd, 1/31/92, and Ladd to Toothman, 3/19/92, both L58, CF, JODA. The NPS estimated such a study to cost $125,000 in 1993; USDI-NPS, PNR, "Special Resource Study Priorities, FY 93," p. 2, D18, CF, JODA.

88. These included the John Day City Council, a Kam Wah Chung Citizens Committee, and state park planners; USDI-NPS, PNR, "Congressional Report (January-March 1994), p. 9. As a first step, Toothman recommended that local groups seek national historic landmark status for the museum as a way to firmly establish its significance while also providing justification for possible federal assistance; Toothman to Ladd, 4/16/92, H30, CF, JODA. Morris supported this recommendation, partly to distance the NPS from accusations that it sought to "take over" the facility; Morris to Ron Lundbom, Councilman, John Day City Hall, 11/26/93, and Morris to files, 2/9/94, H30, CF, JODA.

89. USDI-NPS, RMP, 1992, p. 20. Most of the compliance surveys can be attributed to NPS regional archeologist Jim Thomson or Prineville District BLM archeologist Suzanne Crowley Thomas. The most substantial compliance-driven document is one prepared in conjunction with a trail in Blue Basin; Norm Steggell, et al., "Blue Basin Cultural Resources Inventory in the Sheep Rock Unit, John Day Fossil Beds National Monument, Grant County, Oregon," MNF/640-81002, October 1981, JODA Library.

90. Greg C. Burtchard, et al., "Archeology and the John Day Fossil Beds National Monument, North-central Oregon," May 1994, vertical files, JODA Library. Field work associated with this document involved reevaluation of the monument's previously recorded sites and linear transects in all three units. Despite limited sample coverage, the contractors offered some observations about the park's archeological record which could perhaps serve as a predictive model; Burtchard to Thomson, 1/10/94, H26 Reports, CF, JODA.

91. Charles G. Peterson, Conservator, University of Denver, "Conservation Survey," undated [1985], pp. 1-5.

92. USDI-NPS, RMP, 1986, p. 66. By this time the NPS committed itself to protection in situ, rather than relocation to more secure locations within the monument as suggested in the GMP, p. 51. Ladd consequently discouraged drawing attention to the pictographs with signs or identifying their presence on maps, even if many of them were located in the highway right-of-way and therefore owned by the state; Ladd to Terry Felkerson, U.S. Geological Survey, 10/7/86, LSO Geographic Place Names, CF, JODA. About a year later he recognized the need for better guidelines with which to manage the pictographs; Ladd to Regional Director, 2/25/88, H22, CF, JODA. This is reiterated in the 1992 update of the monument's RMP, p. 18.

93. Ladd to Regional Director, 7/2/90, H3019 Special studies, CF, JODA. This stemmed from park employees at the Cant Ranch talking with a visiting tribal member; Camille Evans and Hank Tanski, "Tus a gal la lal," 4/4/90, H30, CF, JODA. Their informant described the meaning of one figure in Picture Gorge and translated "Mah hah," a name formerly ascribed to the John Day River and of some interest to park staff; Jane Sikoryak to Jim Mack, 9/10/81, H2217, CF, JODA. The NPS subsequently decided against attributing the pictographs to any one tribe or confederacy; Fred York, NPS regional anthropologist, to Morris, 11/10/92, D6215, CF, JODA.

94. York to Hank Burback, [Denver Service Center], 6/23/92, D2217, CF, JODA. Consultation had some immediate benefits, as the Warm Spring Confederation invited Ted Fremd to identify and recommend protection measures for reservation land containing fossil resources; SAR 1993, p. 2.

CHAPTER SEVEN

1. See Appendix C for annual figures.

2. Rogatz Associates, "A Preliminary Analysis of the Market for Destination Resort Development in Grant County, Oregon," September 1987, p. 4, L34 Recreation activities, CF, JODA; the same generalization is in Margaret Littlejohn, Visitor Services Project, John Day Fossil Beds National Monument, Visitor Services Project report 37 (Moscow, ID: University of Idaho, Cooperative Park Studies Unit, 1991), p. 15.

3. Littlejohn, Visitor Services Project, p. 12.

4. Littlejohn, Visitor Services Project, p. 30; USDI-NPS, General Management Plan, 1979, p. 60.

5. SAR 1980, p. 2.

6. SAR 1993, p. 5.

7. SAR 1980, p. 3.

8. SAR 1977, p. 2; Richard B. Hoffman and Don Feaser, "John Day Fossil Beds National Monument, Wayside Exhibits," April 1977, JODA Library.

9. SAR 1978, p. 2.

10. USDI-NPS, PNR, Interpretive Prospectus, February 1991 draft, pp. 32-33, JODA Library. Planners also noted that general orientation to the park was needed as part of each wayside since most visitors made only a few stops and did not go to more than two of the units.

11. USDI-NPS, PNR, Interpretive Prospectus, pp. 34-35. Park staff designed the exhibit, which was built under a Harpers Ferry Center contract; SAR 1993, p. 6, and Hammett to Phil Myerly, Division of Wayside Exhibits, HFC, undated, D46 Other structures, CF, JODA.

12. SAR 1978, p. 4; Ladd to files, 10/10/78, L7617, CF, JODA. A preexisting trail went several hundred yards from the parking area and disappeared into a wash; Ladd interview 5/19/92.

13. SAR 1984, p. 2. Possible harm to paleontological resources constituted the reason why the NPS closed Blue Basin to all off-trail use; SAR 1986, p. 2.

14. The NPS installed the trailside exhibits using a helicopter; SAR 1983, p. 2. Fossil replicas in the displays were used due to problems with vandalism at other NPS sites where real fossils had been taken; Kim Sikoryak interview, 1/26/93. John Ruben supplied the replicas under contract; SAR 1980, p. 3.

15. Ladd to files, 8/28/79, L7617, CF, JODA.

16. This was a condition for approving the environmental assessment associated with additional construction; Charles H. Odegaard, NPS Regional Director, to Ladd, 7/1/87, CF, JODA. The NPS initially obtained permission from the landowner in May 1988, something made easier by Oregon having legislation protecting property holders who grant such public access; Jim Morris interview, 3/2/93. The NPS still sought an easement because such permission is revocable; USDI-NPS, "Addendum to Land Protection Plan for John Day Fossil Beds National Monument," 1990, p.2, L14, CF, JODA.

17. SAR 1988, p. 5. Park employees have explored the idea of placing quotations from paleontologists who worked in Blue Basin along the overlook trail; John Fiedor interview, 3/2/93.

18. A trail between the Cant Ranch and Sheep Rock Overlook appeared between 1985 and 1991, but does not appear in the monument's list of trails distributed to visitors. The apparent intent behind it was to provide access to the overlook for NPS geology walks which started at the ranch house; SAR 1991, p. 6.

19. USDI-NPS, "Environmental Assessment, Development of Trail and Rehabilitation of Unwanted Trails - Foree," approved 7/14/86, p. 1, L7617, CF, JODA.

20. SAR 1986, p. 2. Both are one-quarter mile in length. The Foree Loop Trail has since been renamed the "Story in Stone Trail" and is partially handicapped accessible; SAR 1993, p. 4.

21. Russell E. Dickenson, NPS Regional Director, to files, 4/14/78, L7617, CF, JODA. The overlook trail was hardened for handicapped accessibility in 1993; SAR 1993, p.4.

22. Ladd to files, 5/1/79, L7617, CF, JODA. Schmidt was the ranger assigned to Painted Hills and Clarno from 1977 to 1981; Ladd interview, 5/19/92.

23. SAR 1989, p. 6.

24. Ladd to files, 7/30/81, L7617, CF, JODA. Unlike most of the other trails, however, the NPS did not mention plans to construct it in the monument's GMP.

25. SAR 1988, p. 4.

26. SAR 1989, p. 6. NPS interpreters reworked the exhibit to one that focused on trees after the trail was hardened and widened to enhance handicapped accessibility in 1993; SAR 1993, p. 4. A more ambitious exhibit, one which might allow visitors to view fossils there in relation to their micro-stratigraphic position, has so far not proven feasible. In 1986 park volunteers dug four exploratory pits but could not find a suitable location for such an exhibit; Fremd to files, 8/1/86, pp. 1-2, D6215, CF, JODA.

27. Odegaard to Ladd, 4/26/88, L7617, CF, JODA. This trail, along with ones at Painted Cove and Leaf Fossil Hill, merited a brief description in the monument's GMP, pp. 84-85.

28. Ladd to files, 1/2/80, 3/30/80, and 8/30/80, L7617, CF, JODA.

29. Dale Schmidt and Cynthia Tait, "Trail of the Fossils," August 1980, Northwest Interpretive Association brochure, JODA Interpretive files.

30. Jim Rouse, PNR, to John Reynolds, DSC, 3/24/78, D18, CF, JODA. The project is mentioned specifically in the monument's GMP, p. 85, and in the subsequent development concept plan, p. 6.

31. This project was funded by the Federal Lands Highway Program (FLHP), something created by the Surface Transportation Act of 1982 (P.L. 97-424) and administered by the Federal Highway Administration to address roads on federally managed lands; USDI-NPS and U.S. Department of Transportation, FHA, "Road System Evaluation Study, John Day Fossil Beds National Monument," February 1989, p. 15, vertical files, JODA Library. The work at Foree and Blue Basin extended from November 1992 to June 1993 and included correction of steep grades and tight road alignments, as well as construction of sidewalks and landscape mounds with boulders to control traffic. Revegetation work extended into 1994; Romoro Coney, Landscape Architect, DSC, to Acting Manager, Western Team, DSC, 9/14/94, pp. 1-2, D30, CF, JODA. Installation of the park's first composting toilets preceded the project in 1991; SAR 1991, p. 4.

32. Posts and wooden rail fence defined both areas; Ladd to Regional Director, 6/16/87, D22, CF, JODA.

33. Ladd formerly characterized the site as primitive with a narrow loop providing access to three picnic tables; Ladd to files, 12/30/82, p. 1, L7617, CF, JODA. Relocation involved planting new shade trees, delineation of a parking area, and provision for irrigating the site. The NPS also wanted to rework the entrance to Painted Hills by crossing Bridge Creek further south so as to connect the county road with the picnic area, but this change in circulation has yet to be constructed; USDI-NPS, DCP, 1985, p. 5, and Ladd to Regional Director, 8/16/93, D30, CF, JODA. Group superintendent Ernest Borgman suggested a much more ambitious road relocation affecting the entire unit in 1976, opting for a new route from the picnic area which would parallel Bridge Creek and then along the south end of Painted Hills. He described the advantages of obliterating existing road between the entrance and Painted Cove; Borgman to Regional Director, 7/13/76, D18, CF, JODA.

34. SAR 1985, p. 2. It somewhat matches the description of a maintenance and orientation facility first proposed in 1977; USDI-NPS, Interpretive Plan, March 1978, p. 19. Despite proposing a similar structure for Clarno, the NPS made do with bulletin boards there.

35. SAR 1988, p. 4. Another area, located 200 yards east of the highway and one mile north of the Cant Ranch, was developed in 1990 to allow steelhead fishermen to take out their watercraft; Ladd to Regional Director, 7/3/90, D18, CF, JODA. Ladd noted the ad hoc nature of developing river access stemmed from the monument's GMP and subsequent DCP not addressing this type of recreational use.

36. Park crews placed a 20 foot camp trailer at the end of a gravel road within sight of the picnic area; SAR 1980, p. 1, and Ladd to files, 4/30/80, L7617, CF, JODA. The trailer's location is shown on maps generated to aid in well drilling; Ladd to files, 10/28/80, L7617 and D3219, CF, JODA.

37. The NPS replaced the camp trailer with a small modular house on the same site, but has explored options which involve moving the facility; USDI-NPS, Housing Management Plan, September 1992, p. 3. The improved quarters allowed a shift in duty station for the permanent ranger formerly assigned to an office at the courthouse in Fossil; SAR 1987, p. 5.

38. The monument was one of only four sites (out of 50), and the only NPS area, chosen by authors of Publicly Accessible and Interpreted Vertebrate Fossil Localities in Canada and the United States, to have been published by the Smithsonian Institution Press; Fremd, "Trip Report, 49th Annual Meeting, Society of Vertebrate Paleontology," [1989], p. 2, no file code, CF, JODA.

39. Fremd interview, 7/23/92. The NPS attempted to offset these limitations with an increasingly sophisticated paleontology program. Park employees and volunteers also assembled a library whose original purpose was to provide interpreters with background material. Kim Sikoryak and Cynthia Tait started the library in 1978 after recognizing the need to assemble paleontological papers associated with the John Day Basin. This collection grew to 6,500 items by 1992 and has received some use from outside researchers. Most of the total is in the form of technical papers and can be referenced by computer on a system coordinated by Fremd; USDI-NPS, PNR, Interpretive Prospectus, p. 63.

40. This appeared to result from Fremd and OMSI's Joseph Jones discussing the number of visitor use days represented by the students which were not being tapped by NPS interpretive efforts; Fremd to files, 5/11/90, no file code, CF, JODA. Ladd noted that park staff presented regularly scheduled programs at Camp Hancock throughout the summer and early fall in 1992; SAR 1992, p. 4.

41. Ullman originally made this claim to generate support for the park proposal; Phil Brogan, "Fossil Beds Use Noted," Portland Oregonian, 7/12/70, p. 19. The NPS, BLM, and OMSI have a three way assistance program in place as of 1991; SAR 1991, p. 2. This is in addition to the NPS signing a cooperative agreement with Camp Hancock to promote efforts in environmental education, publicity, and joint facility use; SAR 1989, p. 4.

42. NPS plans for visitor contact facilities at Clarno have not gone much beyond the conceptual stage. In 1978 Dale Schmidt suggested acquiring the abandoned Lower Pine Creek School from Wheeler County so that it could be moved to Indian Canyon for adaptive reuse as a contact station and seasonal quarters; W.A. Bennett, President, Wheeler County Title Insurance Company, to Schmidt, 8/3/78, D30, CF, JODA. Ladd subsequently decided not to pursue this idea; James A. Mack, Chief Park Intepreter, to files, 2/5/81, D30, and Stephanie Toothman to Chief, Cultural Resources Division, PNR, 11/22/82, p. 2, A26, CF, JODA. Park employees have commented on a University of Oregon student project which focused on design of a possible trail system and development at the picnic area should the NPS acquire lands from the Maurers; Ladd to Regional Director, 9/23/88, D2217, CF, JODA. The project provided background data should the NPS undertake a DCP and environmental assessment for the Clarno Unit; Geoff Swan, Landscape architect, PNR, to Ladd, 8/25/88, no file code, CF, JODA.

43. Periodic changes and some upgrading of the ranch house exhibits took place in 1981, 1988, and 1991. The NPS assisted Dayville High School and the Oregon Art Institute in producing a 17 minute film about the monument which is shown in the ranch house; SAR 1987, p. 5. The monument served as an outlet for the Crater Lake Natural History Association in 1977, but affiliated with the Pacific Northwest Parks and Forest Association (presently the Northwest Interpretive Association) thereafter; SAR 1977, p. 2.

44. The NPS turned a bunkhouse located adjacent to the ranch house into an exhibit on the early paleontologists who worked in the John Day Basin; SAR 1982, p. 3. A nearby cabin became fossil demonstration lab three years later; SAR 1985, p. 2. The NPS also tried a living history demonstration with Kim Sikoryak as naturalist Loye Miller during the latter's visit to the area with the University of California expedition in 1899. He attempted to link the paleontology and history themes by doing everything in character, but the program was dropped in 1980 after its third season; Sikoryak interview, 1/26/93, and "Glimpse into past: Fossil Beds Scientist reborn, Portland Oregonian, 8/14/79.

45. Previous commitment to devote some interpretive space in the ranch house to the Cants contributed to this problem, though this situation may have been unavoidable given how the NPS acquired the property; Borgman to Lillian Mascall, 10/29/75, L1425, CF, JODA. Acquisition of farm machinery from the Cant family in 1977 and its subsequent display in close proximity to the building, however, represented something of a reversal to an earlier position about not interpreting the ranch; James S. Rouse, Associate Regional Director, PNR, 10/26/76, H30, CF, JODA. By early 1985 the NPS had collected some $2,000 from visitor donations for interpretive signs that highlighted the machinery; SAR 1984, p. 2. This followed from planning associated with a walking tour of the ranch; Linda G. Slater, "Cant Ranch Barn Area and Farm Equipment Interpretive Plan," October 1983, no file code, CF, JODA.

46. Ladd to Briggle, 10/9/86, D18, CF, JODA.

47. Ivan Miller, "Site Development Plan, Cant Ranch, John Day Fossil Beds," (task directive dated 12/4/86), p. 2, D2217, CF, JODA. Ladd subsequently persuaded regional office staff that the prospective analysis of Painted Hills for general planning needs was too ambitious; Ladd to Regional Director, 1/6/87, D22, CF, JODA.

48. Reed Jarvis, et al., "Site Development Plan, Sheep Rock Unit/Cant Ranch Complex, John Day Fossil Beds National Monument," 1987 draft, p. 6, JODA Library.

49. Jarvis, et al., "Site Development Plan," pp. 10-l1.

50. Park employees subsequently moved the machinery from near the ranch house to the barn's south side, an action which Ladd justified as reducing conflict between the monument's interpretive themes; SAR 1988, p. 6.

51. Jarvis, et al., "Site Development Plan," pp. 24-30. A trail connecting the Cant Ranch with a proposed campground one mile north was tentatively slated for construction along the west side of the river as per direction given in the GMP, p. 77. No mention of a footbridge is in the GMP because of Ladd's concern about uncontrolled access to fossil resources on Sheep Rock; Ladd interview, 5/19/92.

52. Mott to Odegaard, 10/29/87, D22, CF, JODA.

53. Kenneth Raithel, Jr., [NPS Chief of Interpretation], to Mott, 1/28/88, pp. 2-3, D22, CF, JODA.

54. Morris to Ladd, 10/21/88, p. 1, D2217, CF, JODA.

55. Ladd to Regional Director, 11/18/88, D2217, CF, JODA.

56. Ladd to Regional Director, 2/7/89, A8027 Office and storage space, CF, JODA, and SAR 1988, p. 1.

57. SAR 1988, p. 5. The entrance signs represented a precursor for a larger effort to enforce consistency in all three units and build an overall image for the park within this region of Oregon; Jarvis, et al., "Site Development Plan," p. 41.

58. Jarvis, et al., "Site Development Plan," p. 40.

59. This resulted from a series of events which began in 1987 when Oregon's governor requested that each county articulate an economic development strategy which could serve as a basis for disbursing lottery funds. Grant County's economic development committee adopted a strategy based on tourism, proposing that funds could be used as seed money to prompt the NPS to build the visitor center. When they ran into opposition from the county government, an independent citizen committee headed by attorney Ron Yocum pursued the issue and interested Congressman Les AuCoin in the visitor center project; USDI-NPS, JODA, "FY 89 Budget Briefing Statement," p. 2, no file code, CF, JODA, and Ladd interview, 2/2/95.

60. USDI-NPS, DSC, "Task Directive, Package 105, Thomas Condon Visitor Center, Sheep Rock Unit, John Day Fossil Beds National Monument," June 1990, pp. 1-2, no file code, CF, JODA.

61. USDI-NPS, DSC, "Task Directive," p. 1, and "Thomas Condon Visitor Center," drawing 177/41,002A, 12/29/78, six sheets. The NPS estimated that the facility would cost $1.7 million in 1979; Jarvis, et al., "Site Development Plan," p. 6.

62. The NPS specified the Sheep Rock Overlook location in the GMP, p. 76. This site was used for an exercise in 1984, where students from the University of Oregon designed a hypothetical Thomas Condon Visitor Center.

63. This site is on the old Weatherford Ranch, presently owned by Rod Immenschuh (Tract 101-07). The team liked it because access from US 26 appeared easy and safe, while also being on the major east-west visitor travel route. It could also accommodate several interesting hiking opportunities. One proposal involved developing a trail up a draw to the top of a bluff, much like what Buwalda suggested in 1928. The other suggestion was aimed at allowing visitors to walk uphill to the Mascall Overlook from a new parking area to be developed at its base which is less than a mile from what they saw as the prospective visitor center. Private ownership was a fly in the ointment, but the team urged that every effort should be expended to resolve problems with land acquisition; Jarvis, et al., "Site Development Plan," p. 50.

64. Morris to Ladd, 10/21/88, p. 1, D2217, CF, JODA. See also endnote 13 in Chapter Five.

65. The team outlined problems associated with visitor center design and its impact on the Cant Ranch complex; Jarvis, et al., "Site Development Plan," pp. 51-52. The new site bore the name "Bull Pens" because the Cants formerly used it as a corral. Its advantages are summarized in subsequent design documents; USDI NPS, DSC, "John Day Fossil Beds National Monument, Thomas Condon Visitor Center, Design Analysis," November 1991, p. 1, no file code, CF, JODA.

66. Ladd to Neil Mackay, Exhibit Planner, HFC, 11/6/90, D6215, CF, JODA. Specimen selection posed a special challenge; Mackay to Corky Mayo, Chief of Interpretation, PNR, 8/13/92, D6215, CF, JODA.

67. USDI-NPS, "Briefing Statement for Secretary Babbitt," September 1993, no file code, CF, JODA.

68. Jim Morris, "Future Function of the Cant Ranch House," 1/22/91, and Ladd to Regional Director, 2/11/91, both D2217, CF, JODA. The task directive of June 1990 (p. 4) had all park administrative functions in the visitor center. Ladd and other park employees wanted visitor center design to be modular, so as to allow for possible incorporation of additional offices at a later date; USDI-NPS, "Record of Decision, Role and Function of Cant Ranch Facility," undated, no file code, CF, JODA.

69. Enhanced security for the ranch complex and prospective visitor center through relocating the Foree quarters, as well as possible housing for visiting researchers, drove the planning for the residential area; Ladd to Regional Director, 2/14/91, no file code, CF, JODA. Planning for the maintenance facility, to be located west of State Highway 19 near the ranch complex, appeared to be complete in 1990. Low bid was more than $125,000 over the estimate, so the NPS did not award the contract; SAR 1990, p. 1. Since its location might have been a factor in the bidding, the project remained on hold until site planning for the ranch complex could be finished; SAR 1991, p. 6. A location north of the complex, but east of State Highway 19, subsequently became the preferred site for this facility; Morris to Ladd, 10/30/91, p. 1, no file code, CF, JODA.

70. This is evident in site and architectural guidelines drafted in April 1992 which aimed at providing an identifiable character for new construction in the Sheep Rock Unit. It sought to link prospective development together by incorporating components from the local building styles; USDI-NPS, DSC, "Design Guidelines, Sheep Rock Unit, John Day Fossil Beds National Monument," April 1992.

71. An important distinction between the environmental assessment and previous park planning documents such as the GMP and DCP was the narrowness of its scope. It did not, for example, address development in other parts of the Sheep Rock Unit but one could argue that the Cant Ranch complex has been at the center of park planning efforts.

72. USDI-NPS, DSC, "Environmental Assessment, Facilities Development, Sheep Rock Unit, John Day Fossil Beds National Monument, Oregon," April 1993, pp. 9-10. Plans for the ranch complex bore a distinct likeness to what the site planning team recommended in 1987, except for a few changes. These included eliminating the footbridge and trail to Sheep Rock, designating the barn for storage, and placing the proposed maintenance facility along with a residential area north of the Cant Ranch. They are depicted on one sheet titled "Proposed Site Development," in USDI-NPS, JODA, "Thomas Condon Visitor Center and Cant Ranch Vicinity Development," February 1993. Anticipated changes to the historic district resulted in a determination of adverse effect under Section 106 of the National Historic Preservation Act, so the NPS had to negotiate a programmatic memorandum of agreement with the Oregon State Historic Preservation Office as a mitigation measure in 1993; Odegaard to Robert Meinen, State Parks Administrator [designated head of the OSHPO], 12/17/93, p. 2, H4217, CF, JODA. The finalized PMOA became effective in July 1994.

73. USDI-NPS, PNR, Interpretive Prospectus, February 1991 draft, p. 2.

74. An important omission from the prospectus concerned the desire of park employees to have HFC produce a handbook for visitors. Efforts to initiate such a project started several years earlier, but little resulted from them; James A. Richardson, Chief of Interpretation, PNR, to Deputy Regional Director, 8/29/85, p. 4, K1817 Interpretive planning, CF, JODA. Ladd, however, stated in early 1992 that work had begun on a guide to the John Day Basin's paleontology aimed at the general public; SAR 1991, p. 6. Meanwhile, park staff partially met the need for a geological tour guide for the time being with in-house production of "Visitor Center - Painted Hills Road Log" as mentioned in SAR 1991, p. 5. A more complete and substantial effort along this line accompanied the 1994 Society of Vertebrate Paleontology meeting in Seattle; Theodore Fremd, et al., John Day Basin Paleontology Field Trip Guide and Road Log, John Day Fossil Beds National Monument, 94-1.

75. Terry Edvalson to North Central Regional Strategy Committee Members, 4/3/92, attached to "Proposed Development and Review Process" packet, p. 108, D2217, CF, JODA.

76. The $80,000 that the county pledged for a left-hand turn lane on State Highway 19 represented a local match for the project, which was contingent on federal funding for visitor center construction; Kevin Campbell, County Judge, to Joan Rutledge, Oregon Economic Development Department, 4/1/92, D2217, CF, JODA.

77. The state committed $153,000 from its lottery funds to do this; "Fossil beds visitor center, monument park receive funds," John Day Blue Mountain Eagle, 8/6/92, p. 1. The $57,000 allocated for a park near the town of Monument carried the justification of providing a rest stop for people visiting the Sheep Rock Unit; Jeanie Senior, "Lottery Profits go to Projects," Portland Oregonian, 8/1/92, p. B12.

78. The project started as servicewide priority 208 in 1990, but went to 131 the following year. By March 1994 it had a priority of 53, in part due to Grant County having obligated $1 million for a "learning center" highlighting paleontology to be built in or near the monument; USDI-NPS, PNR, "Quarterly Congressional Report," April-June 1993, p. 9.

79. Planning for other projects in the package continued into 1994. The NPS predicated the biggest one, rehabilitation of the ranch house for use as park headquarters, on an assumption that construction of the visitor center would proceed first; Jim Morris, "Rehabilitation of the Cant Ranch House for Use as Park Headquarters," 3/7/94, no file code, CF, JODA. Morris meanwhile expressed his disappointment about the failure to proceed with construction of a new maintenance facility; SAR 1993, p. 4.

80. Hammett interview, 7/24/95.

81. The deal involved an NPS trade of its interest in nearby Section 21 (the 640 acres deleted from the monument in 1978) for the overlook and key parcels totaling about 50 acres owned by Lillian Mascall in fee or through easements; electronic message from Hammett to the author, 3/13/96.

82. Hammett interview, 7/24/95. This is an important point, since a number of areas in the National Park System established primarily for their significance of their fossil resources have been dominated by management concerns other than paleontology; Ted Fremd, "'I've Seen the Miocene' in Central Oregon," Park Science 12:3 (Summer 1992), p. 12.

83. Conditions surrounding sale of the ranch structures and bottomland in 1976, as well as subsequent adaptive rehabilitation by the NPS, also made effectively interpreting the ranch theme, as first articulated by Borgman, difficult. This is because many representative aspects of a working ranch in eastern Oregon (such as the trappings associated with raising livestock and poultry) had to be eliminated when the NPS converted the main structures into a visitor facility. The ranch house thereby became a defacto manor surrounded by uneconomic parkland. Without the 5,000 acres of upland range that lay outside the monument's authorized boundaries, the Cant Ranch ceased to be a fully genuine vehicle by which ranching in this part of Oregon could be interpreted.