Chapter 9:
The New Deal and the National Monuments
THE IMPACT OF THE DEPRESSION OF THE 1930s changed the
National Park Service and its national monuments in dramatic ways. The
strong leadership of Franklin D. Roosevelt's secretary of the interior,
Harold L. Ickes, the reorganization of the federal bureaucracy in 1933,
and the federal emergency relief programs central to the New Deal made
the NPS into one of the most formidable of federal agencies. By the end
of the 1930s, the number of areas administered by the agency had more
than doubled, permanent staff had increased substantially, and the scope
of its responsibilities had greatly expanded. Conversely, the 1930s also
ended the primacy of the national parks in the park system. As the park
system encompassed a broader message, agency leaders recognized the
importance of the national monuments and other new categories of park
areas.
Changes during the decade accentuated trends toward
central control and professional administration, and these shifts
exacerbated existing conflicts between Frank Pinkley and his superiors
in Washington, D.C.. Pinkley's position was incongruous in an agency
that teemed with college-educated specialists. As the monuments became a
valuable part of the system, the central administrators of the agency
began to exert much more influence over the category than they
previously had. Ironically, Pinkley's excellent work in the 1920s forced
him into a battle for control of his domain. Pinkley refused to yield
his autonomy, and a power struggle ensued between the aging
superintendent and the developing Park Service bureaucracy, which was
headed by Albright, Cammerer, Demaray, and Dr. Harold C. Bryant, the
head of the Division of Education, an Albright-inspired innovation to
develop interpretive policy.
Although the trend toward professional administration
first surfaced during the 1920s, policies established during Franklin D.
Roosevelt's presidency became the catalyst for this reshaping of the
Park Service. New Deal programs altered the role of the federal
government in the economy. In 1933, after four years of unparalleled
economic depression, federal agencies assumed many of the
responsibilities of the private sector. The government provided credit
for destitute farmers, unemployment compensation for workers, insurance
on savings in banks, and an array of federally funded job training
programs. In addition, federal programs funded the construction of
roads, bridges, buildings, and dams across the nation. Large-scale
government spending was the means to bring the United States back from
the verge of economic ruin.
Nowhere was federal involvement more visible than in
Ickes's Department of the Interior. A Bull Moose Republican in 1912, the
irascible Ickes had always been an advocate of using government programs
to further social goals. Despite differing political affiliations, Ickes
and Roosevelt held similar views of the role of government in society,
and when Roosevelt sought a Republican for his cabinet, Ickes was the
logical choice for secretary of the interior. But his selection shocked
many. Ickes lacked what most perceived to be the most elementary
qualification for the post: as a resident of Illinois, he was not a
westerner. But Roosevelt knew what he wanted when he recruited Ickes.
The Department of the Interior managed large chunks of federally held
land, and as the top man in Interior, Ickes became the leading advocate
of many programs involving development of federal or state land by
federal agencies.
Ickes was a staunch believer in the cause of
conservation, but his point of view posed problems for the Park Service.
To outsiders, the perspectives of the federal agencies responsible for
the different facets of conservation, the Forest Service and the Park
Service, seemed the same. Only insiders realized how distinct the two
stances were. When Ickes arrived in Washington, D.C., early in 1933, the
secretary seemed unaware of the subtle distinctions between the two
agencies. Coming out of the Theodore Roosevelt-inspired Progressive
tradition, Ickes announced that his sympathies lay with Gifford Pinchot,
the former chief forester of the United States, and with the utilitarian
conservationists, who advocated a policy of wise use of natural
resources. Ickes acknowledged that he "learned the principles of
conservation at [Pinchot's] feet." This squarely allied him with the
primary adversary of the Park Service, and the spectre of Ickes worried
the Park Service. [1]
One of Ickes's primary objectives was to rehabilitate
the reputation of the Department of the Interior. Dating back to the
nineteenth century, the department had an unequalled record of scandal,
including the removal of the two commissioners of the GLO most
instrumental in initiating federal efforts at preservation, Binger
Hermann and W. A. Richards, early in the twentieth century. The
Ballinger-Pinchot controversy of 1910 damaged the reputations of both
Secretary of the Interior Richard A. Ballinger and Pinchot, and the
notorious Teapot Dome scandal of the 1920s toppled Secretary of the
Interior Albert B. Fall and further disgraced the department. Ickes
thought that the Department of the Interior looked like a refuge of
scoundrels and took it upon himself to restore public confidence in the
department.
Ickes was prepared to be very tough, and the methods
he used to upgrade his department terrorized the staff. He wanted the
reputation of the Department of the Interior to rival that of any other
federal agency. As a first step, Ickes selected Harry Slattery, a
long-time associate of Pinchot's, as his personal assistant. Slattery
had many endearing qualities to the reform-minded Ickes; the Teapot Dome
scandal came to light largely through his efforts, and newspapers hailed
the appointment as evidence of Ickes's sincerity. But in search of
dishonesty and laziness in his department, Ickes condoned a variety of
objectionable practices, including "intramural spying, telephone
monitoring, eavesdropping, and the use of professional investigators."
To uncover malingerers, Ickes himself patrolled the halls of the
Department of the Interior. When they saw him coming, staffers from most
agencies in the department quaked.
But the Park Service proved largely immune to Ickes's
legendary wrath, and Horace Albright's personality provided most of the
reason. Early in Ickes's reign, the competent and charming Albright made
friends with his demanding superior. Ickes became convinced of Albright's
reliability and respectability, and he probably admired the director's
willingness to stand up to a man reputed to eat "half a dozen ten penny
nails and few dozen buttered brick bats" for breakfast. [2] Ickes came to trust Albright above anyone
else in the department, and consequently, Albright played an important
role in shaping policy at the Department of the Interior.
As a result of this relationship, Ickes became
noticeably more sympathetic to the goals of the Park Service. The Forest
Service was located in the Department of Agriculture and was beyond
Ickes's control. He had vast influence over the Park Service, and as he
learned to distinguish among the many perspectives that made up federal
conservation, Ickes's allegiance to the Pinchot clique diminished, and
he began to espouse a Park Service-like doctrine of preservation. He
complained about road projects in the national parks, much to the
delight of those within the NPS who opposed accommodating visitors under
every circumstance. The secretary also thwarted conservationist projects
that threatened the national parks, including a proposal by Idaho
farmers and the Bureau of Reclamation to dam Lake Yellowstone for
irrigation.
Ickes's approach to conservation and preservation
emphasized federal initiative as a remedy for economic ills. He
implemented programs in every agency under his control, and thanks to
Albright, the Department of the Interior focused upon the Park Service.
There was plenty to do in the park system; the 1920s had been a period
of great growth unaccompanied by comparable expenditures for upkeep.
Under the auspices of the Emergency Conservation Work (ECW) plan, the
National Park Service became a vehicle for the employment of
conservation workers. Five federal programsthe Civilian
Conservation Corps (CCC), the Federal Emergency Relief Administration
(FERA), the Public Works Administration (PWA), the Works Progress
Administration (WPA), and the Civil Works Administration (CWA), also
contributed heavily to the development of Park Service areas.
Policies that dictated massive federal expenditures
upon federal and state property across the nation gave the Park Service
a kind of leeway it had never enjoyed previously. The federal programs
were so extensive that although the regular appropriation of the agency
increased by approximately twenty-five percent between 1933 and 1940,
the emergency appropriations nearly doubled the regular budget for each
year from 1933 through 1940. [3] By 1940 the
Park Service received more than $218 million in emergency funding,
compared to a total of $132 million in regular appropriations.
The Park Service received so much money during the
1930s that it was able to spread its resources throughout the system.
Frank Pinkley's complaints were muted by the extra money the agency
received. The funding programs of the agency were no longer aimed almost
exclusively at the national park category. The agency could initiate
projects that had previously had low priority, could satisfy a much
broader range of constituents, and could take on a more comprehensive
vision of development. Many monuments, new and old, received their first
attention from the Park Service during the 1930s, and the new programs
filled a multitude of heretofore unmet needs.
The Civilian Conservation Corps was the most
important of the programs that operated in Park Service areas. Modeled
after a Forest Service program that put the unemployed to work in
national forests in 1931, the CCC represented the kind of federal
intervention that Roosevelt had promised the nation. It received the
enthusiastic support of Park Service officials, who recognized it as a
"potential bonanza." CCC camps in park areas proliferated rapidly,
reaching a total of 118. National parks, monuments, and new designations
like national historical parks all benefited from CCC programs. Camp
workers did everything from refuse collection to technical conservation
work such as planning and building fire roads. In twenty-three cases,
the agency implemented programs focusing upon restoration,
reconstruction, and new construction at places ranging from the Colonial
National Monument to the Bandelier National Monument. [4]
Conceived out of social chaos, CCC camps attempted to
embody order. In theory, successful enrollees were between the ages of
eighteen and twenty-five, unemployed, unmarried, citizens of the United
States, with no communicable disease or physical handicap, but often
restrictions upon enrollment were waived or ignored. In practice, many
who entered the camps were products of the depression who had grown up
hungry, tough, and sometimes homeless. The discrepancy between ideal and
actual enrollment contributed to the disciplinary atmosphere of many of
the camps. Camp workers lived in a fashion styled after the military:
officers commanded each camp and the men lived in barracks, dressed in
government-issue military surplus clothing, and ate in the equivalent of
mess halls. The bugling of reveille woke them each morning. They worked
full forty-hour weeks, and were required to send home a substantial
portion of their pay. [5]
Despite the rigor, CCC camps often integrated young
men back into the mainstream of American life. Many of those unable to
find work during the Depression of the 1930s felt alienated, and their
experience with the CCC reintroduced values that they had long for
gotten or never learned. The camp at Dinosaur National Monument had such
an impact on some of its workers. In 1937 the project impressed A. H.
Dahm, a visitor from Denver, "because the men in [the] camp have been
taught to take an interest in life, and actually seemed very pleased,
and had no desire to leave there." He complimented "the splendid way in
which [the Park Service] taught these transient boys the finer things of
life and how to make the most of their talents." [6] The Dinosaur camp seemed a fulfillment of
everything Franklin D. Roosevelt dreamed of when he initiated the
broadly based work relief recovery programs. Not only was the camp doing
important work, but its leaders were teaching important values to people
who might not otherwise be exposed to them.
Social accomplishments aside, the national monuments
benefited from the development that CCC labor offered. The monuments
were so diverse that the value of a CCC camp or side camp varied
according to the three different kinds of areas in the category. Each of
the three types of monumentsarchaeological, natural, and
historicalhad a range of needs and newly found wealth allowed the
agency to develop flexible programs that fit the peculiarities of
individual areas. This presented a dramatic contrast from the 1920s,
when the Park Service had little money and so few titular distinctions
that Pinkley's archaeological assistants were labeled park
naturalists. The increased significance astounded Pinkley and his
associates. They resolved to take advantage of the new
opportunities.
Prior to the New Deal, archaeological national
monuments suffered most from lack of protection and inadequate funds for
interpretation. As Pinkley watched the development of national parks
throughout the nation, he became angry when he thought of the conditions
at the monuments. Federal emergency relief programs offered a solution.
Even the Southwest shared in the largesse of the decade. Pinkley had
less to complain about as CCC workers implemented programs that he could
have only dreamed about earlier.
Bandelier National Monument became one of the model
CCC projects carried out at an archaeological national monument because
of Pinkley's interest. CCC workers created a physical plant worthy of
Pinkley's conception of the significance of the monument. Within a month
of their arrival in 1933, CCC workers built the first automobile road to
Frijoles Canyon. Initially the road was a twelve-foot-wide truck trail,
but a CWA appropriation in 1934 widened it to twenty-two feet. Many
tourists, to whom the previously existing foot trail was an actual
barrier, now had a closer look at the mysteries of the canyon. Federal
emergency relief programs also constructed a visitor center, an
administrative building, and when Pinkley decided the existing lodge in
the canyon interfered with his administration, a new hotel adjacent to
the Park Service facilities. A trained archaeologist, Paul Reiter,
supervised the stabilization by CCC camp workers of the Tyuonyi ruins, a
primary feature at the monument. Later, when the road brought more
travelers than the agency could handle, custodians at the monument
trained CCC workers as summer tour guides. When the Park Service had
acquired the area in 1932, there were two dilapidated forest ranger
cabins in Frijoles Canyon, and the first park ranger drank his water
from Frijoles Creek. By 1940 an extensive physical plant existed,
complete with electricity, pumped water, five homes for Park Service
people, and a paved road to the bottom of the canyon. [7]
The CCC also worked to conserve natural resources.
Although it was primarily an archaeological national monument, Bandelier
encompassed more than 26,000 acres, including steep canyons and open
mesas. The CCC camp implemented wildlife conservation, forest
maintenance, fire protection, and trail construction programs. Chaco
Canyon also benefited from its CCC camp, where in addition to assisting
archaeological investigation, the workers performed an array of
development work to protect natural resources. Many other archaeological
and natural monuments, ranging from Pinnacles in California to such new
creations as the Capitol Reef National Monument in Utah, also benefited
from CCC-sponsored development programs. [8]
The first candidates for CCC work were national
monuments that contained natural features. They offered innumerable
opportunities for conservation work. Many were large areas, consisting
of tracts of rugged country and visual formations. Most had few roads,
trails, or other facilities and lacked even rudimentary maintenance
programs. Throughout the 1920s, the agency had never had the funds to
manage places like the Glacier Bay National Monument in Alaska, which
included more than 2 million acres. Remote and inaccessible, it received
few visitors, and the little agency money for monuments was put to use
in areas that attracted tourists. The Park Service also ignored places
in the lower forty-eight states. The agency did not allocate funds for
Lava Beds National Monument, a 45,000-acre tract of lava flows, natural
bridges, and other volcanic phenomena in northern California where the
Modoc Indians hid from federal troops in the 1860s, until the CCC camp
there opened. Nearly all the natural-area national monuments that
existed prior to 1933 received CCC assistance. CCC enrollees fought
fires, battled insects and fungus, built roads and truck trails, and
accomplished an array of other conservation work. [9]
Natural national monuments that the Park Service
believed had tourist potential were prime candidates for federal
emergency relief development programs. The Capitol Reef National
Monument, established in August 1937, was this type of monument. For
nearly a decade before proclamation of the monument, the NPS had pursued
acquisition of the area. Located in southern Utah, the area which Steve
Mather wanted so badly to develop for the park system, Capitol Reef
encompassed 37,060 acres, approximately fifty-eight square miles.
Because it had the potential for entering the southwestern network of
agency areas and lacked facilities for visitors, it became a likely
candidate for the ECW/CCC programs. A CCC side camp opened there in
April 1938, staffed with twenty-five men and a foreman from the main
camp at Bryce Canyon National Park. The workers embarked on a typical
development program: construction of a camp for the workers, road
improvement and the construction of a ranger station, fences, a stock
driveway, and horse trails. The attractions of the new monument were
natural features; CCC labor and government money built an infrastructure
to facilitate its administration. [10]
Cedar Breaks National Monument, created in 1933, also
provided the Park Service with a way to use the CCC to its advantage.
The Forest Service had administered the tract prior to 1933, but the
Park Service sought it, and Cedar Breaks became the center of one more
interagency dispute. As at Bandelier, Forest Service officials felt that
NPS management would restrict other uses of land in the region. Unlike
Bandelier, there were no archaeological ruins in the Cedar Breaks
vicinity, and the Park Service had a more difficult time making its
claim. Cedar Breaks was simply a series of vistas, which Forest Service
officials did not believe required NPS interpretation. Albright insisted
otherwise in a series of letters to Chief Forester Maj. Robert Y.
Stuart, who suffered a nervous breakdown during the period. The weakened
Stuart eventually acquiesced to his counterpart. The monument was
established shortly after Albright left the agency in August 1933.
True to the Albright legacy, the NPS found a
different way to present the monument. Park Service interpretation
presented Cedar Breaks as the antecedent of the cliff formations at
Bryce Canyon and Zion national parks and emphasized its place in the
evolution of geology of southern Utah. Because the area was essentially
visual, the CCC camp at Cedar Breaks built roadside stations that
explained the scenic vistas in that context, and from an interpretive
standpoint, Cedar Breaks became a valuable addition to the system. [11]
More important, development programs blurred the
distinctions between the national monuments and the national parks.
After 1933 monument custodians no longer had to maintain their monuments
single-handedly. Development brought the cutting edge of agency planning
to the formerly second-class monument category. The New Deal gave the
Park Service the means and opportunity to fulfill its dual mandate to
preserve and develop in a comprehensive fashion, and the agency
responded to the challenge. No longer were the categories of
nomenclature distinct. With federal emergency assistance from the CCC,
WPA, PWA, CWA, and FERA, the monuments became as integral a part of the
system as the national parks.
But not all national monuments required the kind of
development that New Deal money provided, and CCC programs also created
new distinctions within the monument category. Some monuments
established during the 1930s, such as Organ Pipe Cactus, Channel
Islands, and Joshua Tree, were not suited for the development programs
of the New Deal. The Department of Commerce initially pushed the Channel
Islands National Monument, five inaccessible islands off the coast of
Santa Barbara, California, on the reluctant NPS. Because of lack of
access and questions about its suitability as a park area, the agency
chose not to implement development programs there. During the 1930s,
scientific use became the primary value of the Channel Islands. [12]
As a result of the growing scientific orientation
developing in national park planning, Organ Pipe Cactus and Joshua Tree
were "representative-area" national monuments, established to preserve
representative portions of land containing unique desert flora. In the
view of the agency, Organ Pipe Cactus and Joshua Tree were also
"primarily of scientific rather than popular value," and capital
development seemed pointless. [13]
Consequently, the 330,690 acres of Organ Pipe Cactus and the 838,253.30
acres of Joshua Tree remained outside mainstream planning during the
1930s.
These two areas were important evidence of the
growing preoccupation with ecological communities in the Park Service.
The national parks established during the first thirty years of the
twentieth century were largely confined to mountaintops; Mount Rainier,
established in 1898, and Grand Teton, in 1929, were the beginning and
end of the period in which this kind of national park dominated. When
college-educated biologists and their scientific peers began to shape
Park Service policy, they came to believe that the system contained too
many mountaintops and not enough ecosystems. The specialists sought a
more comprehensive approach to the natural world than the preservation
of scenery. This suited the objectives of Mather and Albright, who
sought ways to broaden the national park category. The tenets of modern
ecology formed a minority current within the agency, but this discipline
offered a way to broaden the domain of the agency. As a result, during
the 1920s the Park Service began to pursue the Everglades area of
southern Florida.
Again the Antiquities Act offered the means to
circumvent the congressional sanction that the establishment of a
national park required. Scientific goals became important to the Park
Service, and when hamstrung by Congress, agency officials resorted to
the Antiquities Act as the most effective means to acquire areas that
they believed the system needed. Saguaro National Monument, established
by executive fiat in 1933, was the first "representative area" included
in the park system. Prior to the creation of Joshua Tree and Organ Pipe
Cactus, the Park Service finally succeeded in preserving the ecosystem
of the Everglades. Yet the Everglades National Park was an anomaly among
national parks. Congress remained more cognizant of the "visual
experience" that Steve Mather promoted and did not yet recognize
ecological communities as valid park units. [14]
The preservation of representative areas was
important to more than specialists within the agency. Even during the
greatest period of development of the Park Service the Antiquities Act
provided officials with an avenue to shape alternative futures for the
park system. Along with the Everglades, monuments like Saguaro, Organ
Pipe Cactus, Joshua Tree, and in the 1940s, Jackson Hole became
precursors of the later expansion by the agency into the preservation of
biotas and other less visually spectacular phenomena.
By the 1930s, most of the visually exciting natural
areas in the nation were already reserved. Scenic places in the West not
included in the park system generally belonged to the Forest Service.
Two new national parks, Olympic and Kings Canyon, established in 1938
and 1940 respectively, offered exquisite scenic vistas, but each
resulted in extensive battles with the Forest Service, which grudgingly
provided much of the additional land. The price for scenic views became
too high for the Park Service, and its revived scientific interest
offered a different strategy. The continued expansion of its domain
required the agency to redefine the values for new areas.
The monuments became central to the future of the
agency, and Pinkley found himself further outside the mainstream than
ever before. During the 1920s, the agency acknowledged his efforts but
ignored his areas. During the 1930s, New Deal funding programs served as
a backdrop while the agency supported his areas but ignored his efforts.
In many ways, the New Deal gave Pinkley what he wanted most: the money
to implement programs at his national monuments. But changes in the
agency and the conditions that the central administration attached to
funding minimized Pinkley's role. College-educated specialists and
consultants dominated planning and policy-making in the Park Service,
Pinkley's autonomy in the Southwest diminished, and he chafed at control
from above.
The New Deal accelerated the trends that frustrated
Pinkley. During the 1920s, the agency began to move toward
professionalization and central oversight as Mather and Albright began
to consolidate their power. Albright particularly envisioned an
institutional future for the agency, and Pinkley's role at Bandelier did
little to endear him to the upper echelon of the agency. When Albright
became director in 1929, he implemented a rigid agenda, centered on
rounding out the park system, and he was less inclined than his
predecessor to tolerate challenges from within the agency.
By 1930, the NPS hierarchy knew that it had to
restrict Pinkley's role in the Southwest. He ran his park areas so well
that the southwestern national monument group attracted considerable
attention. Pinkley's position contradicted the realities of
administering the Park Service. From Albright's national park-oriented
perspective, the superintendent was an obstacle to the process of
arranging the national park system to the advantage of the agency.
By the end of the 1920s, the Park Service had secured
its position in the federal bureaucracy, and the process of
professionalizing the agency began in earnest. The authorization of the
three eastern national parksShenandoah, Great Smoky Mountains, and
Mammoth Caveduring the 1920s ensured that the Park Service had a
role that other federal agencies did not. From these roots, NPS
officials sought to broaden their focus. Agency administrators wanted to
provide visitors with more than an inspirational visual experience when
they came to the national parks. Scenic national parks left an imprint
on the visiting public, but the emotional response of the public often
overlooked the agency that kept the parks. The Park Service needed to
find a way to make the public appreciate its personnel and their efforts
as well as its holdings.
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