Chapter 9:
The New Deal and the National Monuments (continued)
As Mather's assistant, Albright considered the
educational possibilities of the national parks. When he became
director, Park Service interest in educating visitors, "interpretation"
in the parlance of the agency, increased. Throughout the 1920s,
individual rangers made casual efforts to explain the significance of
specific areas to the public, and Pinkley and his staff explained
prehistory, but Albright sought a more comprehensive approach. He
engaged experts to develop a policy for serving visitors and created the
Committee on the Study of Educational Problems in the National Parks in
1929. Albright enlisted Dr. Clark Wissler of the American Museum of
Natural History, Dr. John C. Merriam of the Carnegie Institute, Dr.
Harold C. Bryant of the California Fish and Game Commission, Dr. Hermon
C. Bumpus of the American Association of Museums, and Dr. Frank Oastler,
a medical doctor who had long been interested in the national parks, to
design programs to convey the significance of the sites to the public.
[15]
Like most of Albright's innovations, the educational
programs focused upon the national parks. As Park Service visitation
increased significantly throughout the 1920s, presenting national parks
as vast playgrounds became too narrow a perspective for the agency. The
Forest Service too easily copied this kind of presentation. In the
climate of the late 1920s, when a reorganization of the federal
bureaucracy seemed imminent, the Park Service needed to differentiate
itself in order to assert its merit. Earlier in the decade, summer
nature walks with rangers began at Yosemite, and Albright seized upon
this concept as the way to make a visit to the national parks an
educational experience.
But Albright had not reckoned with Pinkley. The idea
of a comprehensive educational program was not new to him. By 1930,
Pinkley had spent nearly thirty years explaining prehistoric people to
the public. Even as the Park Service promoted the national parks as
playgrounds, Pinkley used the national monuments as educational tools, but
many of his most innovative programs were hampered by a lack of funding.
From his perspective, educational programs that focused on the natural
features of the parks were a waste of time and money. The archaeological
national monuments offered a better medium. Pinkley had ideas galore. In
his mind, all he lacked was money to implement them. As a result, he was
instantly at odds with a commission of experts hired to tell him how to
do his job.
The cantankerous Pinkley was on solid ground with
these complaints. The places Steve Mather had made into national parks
did not inspire the average visitor to ask questions about natural
science. Instead, a view of the Grand Canyon, El Capitan in Yosemite,
Mount Rainier, or Tower Falls in Yellowstone left people breathless.
Pinkley believed that agency specialists were now trying to
intellectualize a largely emotional experience to gain political
advantage. He contended that the agency would spend a vast sum of money
on interpreting the national parks, the effort would fail, and in a
short while, the Park Service would find its interpretive policy in
shambles. [16]
Pinkley's objections ran deeper than professional
criticism. He saw the agency changing around him and felt threatened.
Never a reticent man, Pinkley complained about the emergence of
educational professionals and did his best to engage Harold C. Bryant,
who became the head of the Division of Education, in controversy. Always
ready to assert his position, the Boss loudly demanded better funding.
Pinkley wanted a mandate to continue to develop the national monuments
as he had throughout the 1920s.
Albright was less than sympathetic both to Pinkley
and his national monuments, and by the end of 1931, he had had enough of
Pinkley's carping. As director, Albright established an hierarchical
central authority that was new to the agency and demanded compliance
from his staff. Under Mather, park superintendents had run the
day-to-day affairs of the agency, and after 1929 Albright had trouble
centralizing authority. Albright soon decided that the field
administrators of the agency, including Pinkley, were lax in
implementing his orders. He saw a "growing carelessness" in carrying out
his directives. Albright professed indignation, asserting that
"omissions . . . in many cases have grown to alarming proportions." [17] Although not aimed specifically at Pinkley,
Albright's comments summarized the widening gulf of discontent between
the director and his most important employee in the national
monuments.
The crux of the problem was that Pinkley was used to
having his way, and he perceived executive oversight as interference. He
had lost sight of the larger objectives of the agency, and in Pinkley's
increasingly narrow view, Albright's creation of the educational
division was a particular nuisance. Given the same resources, Pinkley
was confident he could achieve more than the so-called experts could. No
matter what Albright said, Pinkley was not prepared to relinquish his
power to make decisions about the future of the places under his
care.
Pinkley simply could not adjust to the new realities
of the 1930s. He received the kind of attention he demanded, but could
not compromise with those who gave it. Unfortunately, attention for the
southwestern monuments came too late for the superintendent, who
resented the intrusion into what he regarded as his sphere.
Instead of compromising, Pinkley created adversarial relationships. He
championed his achievements and compared them to those of other
departments within the agency. By his own standards, Pinkley came out
ahead, and this biased self-measurement became his justification for
frequent assaults upon the policies of his rivals.
The national monuments were never in a secure
position within the agency, and the new emphasis on education in the
national parks made the superintendent wary. To retain his position,
Pinkley attacked the Division of Education throughout the 1930s. In his
view, the new entity duplicated his efforts and spent money that
rightfully belonged to the national monuments. The Nature Notes
publication series encroached upon Pinkley's area of expertise. He
regarded Education as his chief competitor in the race for visitors, and
Pinkley acted as if he thought he could regain his autonomy by
outdrawing the places where the experts implemented their programs.
Although past the age of fifty, Pinkley felt like a
fresh recruit, and his responses exacerbated conflict with the
specialists. To consolidate his position Pinkley pulled out old ideas
and began to implement them. He also sought public support for his
position, using pamphlets and printed material to reach a wider audience
in the Southwest. One such endeavor was the Epitaph, Pinkley's
answer to the Nature Notes series that Education published.
Pinkley wrote for the publication in the colloquial style he had always
used with his custodians, and he made it available to the general
public. Bryant did not like the Epitaph and, on 12 May 1932, sent
Pinkley a note that expressed displeasure at its style. Pinkley used
familiar expressions like "you folks" and "the gang," and Bryant felt
that the Epitaph was not professional. "If you desire a standing
with scientists and educators," Bryant wrote in a classic bureaucratic
tone, "care must be taken to avoid this kind of presentation. The
general public can be interested fully as well by the use of simple
words and thus the support of all can be maintained." [18] From Bryant's perspective, good grammar and
proper English were essential components of any government document.
Perhaps intimidated by Bryant's fast rise in the
agency, Pinkley took the criticism as a personal attack. Bryant embodied
the trend toward professionalism; he had a Ph.D., whereas Pinkley lacked
formal education. Pinkley announced that if requested, he would resign
from the Epitaph, ostensibly to avoid embarrassing his rivals.
Then Bryant could "drop the Epitaph in the same pod with the other
Nature Notes, which are certainly alike as a row of peas," he cynically
continued. "It will have a standing with scientists and educators and
the chief end of man will be served." [19]
Pinkley opposed Bryant's philosophy but the hierarchy obviously
supported the trend towards professionalization. Against these odds,
Pinkley knew he had little chance.
The battle over the tone of agency publications
revealed a deeper rift over the constituency of the agency. Both Pinkley
and Bryant sought to advance the standing of the agency, but they
envisioned its audience differently. Pinkley sought to appeal to people
on their own terms, and his experience showed that southwesterners
responded to a colloquial style. He recognized that anthropologists,
archaeologists, and scientists were an important part of his
constituency, but he believed that in the Southwest, scientists were not
as formal as their eastern counterparts. The Epitaph, he thought,
did something unique. It crossed boundaries and appealed to both
professionals and tourists. Bryant believed that credibility with the
scientific community and popularity with tourists were compatible goals,
and a well-constructed, professional publication could achieve both.
Bryant thought that the agency had an obligation to elevate the
standards of the traveling public. In his opinion, the Epitaph
did not achieve either goal, and he insisted that Pinkley review his
editorial policy. Pinkley refused and threatened to resign from the
paper after writing one final and inflammatory column. [20]
Another individualist-professional split strained the
agency. Bryant represented the modern professional agency, and Pinkley
its traditional posture. The advent of specialists like Bryant affected
the way the agency saw its mission, and conflict with proponents of
earlier values was inevitable. The Division of Education believed that
it served an increasingly educated constituency and wanted to impress it
with formal agency publications. Pinkley thought that Bryant was
posturing and that his ends were pretentious. "We have a lot of
government publications on our office shelves which are as dignified as
a plugged hat," Pinkley remarked to Albright, "and nobody ever read the
first page of them." [21] In Pinkley's
estimation, status interested Bryant more than attracting an
audience.
The consequences of increasing professionalization
denied Pinkley the latitude he had enjoyed during the 1920s, and the
hierarchy came down hard upon its iconoclast. Associate Director Arthur
E. Demaray took one look at the final column Pinkley proposed for his
resignation from the Epitaph and curtly responded: "I don't think
Pinkley should be allowed to use the Epitaph to put forward his own
views." Albright landed even more heavily on the superintendent. "I am a
little out of patience," he wrote, "with this attitude which is so
different from any you have previously taken. I have always figured you
as a good soldier. For you to sit back and pout [and say] you feel like
quitting and not being associated with [the Epitaph], is taking
an unusual position for you or any other of our representatives in the
field." Albright would not tolerate this kind of insubordination and
even went so far as to remind Pinkley that he held his position "solely
because of [his] ability to interpret and apply Service, Departmental
and Government rules and policies and to follow instructions from
headquarters." While Albright guided the agency, Pinkley would have to
obey the same regulations as everyone else. [22]
Ironically, as the monuments began to receive
attention from the central administration of the agency, the man who
made them important could not adjust to limitations upon his authority.
Thanks to Pinkley's efforts, the monuments became too important to be
left to the hard-bitten superintendent. Although Pinkley felt the task
of structuring new policies should be his, Albright was not prepared to
let him have that kind of control.
This fray shaped the evolution of interpretation
throughout the southwestern national monument group. Pinkley continued
to push for his understanding of the prehistoric Southwest, realizing
that a new interpretive program that focused upon the national parks
diminished his role considerably. He retrenched to his home territory,
relying upon the public he had spent thirty years cultivating. Pinkley
replaced the Epitaph with the Southwestern National Monuments
Monthly Report, a mimeographed collection of reports of the
custodians, which Pinkley liberally spiced with his own thoughts. Each
month, the Boss authored a column called "Ruminations," in which he
aired his point of view. Ostensibly aimed at custodians in the national
monuments, the monthly report also circulated widely in the Southwest.
Bryant and the other specialists chafed at Pinkley's colloquialisms and
homespun aphorisms, but they could not wrest the Southwest from him.
Direct confrontation failed. Pinkley would have to undermine himself
before the hierarchy could limit his power.
The New Deal accelerated the conflict between Pinkley
and the specialists by increasing the scope of executive oversight in
the southwestern monuments. New Deal money was both the solution to
Pinkley's problems and the cause of new, more severe antagonism with the
central office. Despite successful programs such as the one at Bandelier
National Monument, Pinkley found himself grappling with what seemed to
him an amorphous bureaucratic monster. As his influence waned, Pinkley
became even more rigid in upholding his version of agency standards. He
held his ground, which put him continually at odds with the central
administration of the agency. The eventuality that Arno B. Cammerer had
envisioned a decade earlier came true. Pinkley became a destructive
influence within the agency that he loved, and his superiors decided
that they had to stop Pinkley before he hurt the public image of the
Park Service.
In the end, Pinkley's personal intransigence took
matters out of the hands of the Park Service. In February 1934, while
Harold L. Ickes was settling into his job in Washington, D.C., Pinkley
became involved in a controversy that called his judgement into
question. He refused guide service at the Casa Grande to Arizona state
senator James Minotto, Henry Horner, the governor of Illinois and an old
friend of Ickes, and Ernest Palmer, commissioner of insurance for the
state of Illinois, because the men arrived almost an hour after the end
of posted visiting hours. Minotto had come to Arizona as a millionaire
and was well-known for his overbearing and arrogant behavior.
Embarrassed and displeased at the treatment offered to himself and his
friends, Minotto complained to Ickes.
Ickes seized upon the Horner-Minotto situation as
concrete evidence of his suspicions and pursued Minotto's complaint
vigorously. Albright's political sophistication made the Park Service
largely immune to the terror Ickes inspired, but when Albright resigned
as director in August 1933, the autonomy of the agency went with him.
Ickes tried to replace Albright with someone from outside the agency.
Albright then persuaded the secretary to appoint Associate Director
Cammerer to the top post after Ickes's first choice, Newton B. Drury of
the Save-The-Redwoods-League, declined. The genial Cammerer and the
blustering Ickes were a less than optimal match. Ickes quickly took an
obvious dislike to Cammerer that endured until Drury replaced him at the
head of the Park Service in 1941. Ickes also distrusted what he thought
was the bureaucratic mentality that promoted incompetence and covered
for the mistakes of peers. [23]
Never as decisive as Albright, Cammerer faced a
serious dilemma. Less than six months into his term as director,
Cammerer was caught between two personalities more powerful than his
own. Cammerer had known Pinkley for nearly two decades and was well
aware of his devotion to the promotion of southwestern travel and Casa
Grande, but Ickes was his superior. The morale of the agency and its
position in the Department of the Interior were at stake. On 24 February
1934 Cammerer decided to uphold his field staff in the battle with
Washington, D.C. He told Pinkley that he "would bet my last dollar that
there is something wrong with these charges, since, if any discourtesies
by any chance could happen in the National Park system, it would never
be under your jurisdiction." [24] Cammerer
hoped that the whole situation was a grotesque misunderstanding.
Pinkley did little to help his cause. Minotto sent
him a copy of the letter to Ickes, and in response, Pinkley took the
offensive. His letter revealed that he considered himself the supreme
authority at Casa Grande. He believed that Minotto planned to "run in
and look around for ten or fifteen minutes, and then drive on," Pinkley
snidely remarked. "I gave you the regular treatment . . . I thought, as
a snap judgement, that you would not steal anything, and were not the
name writing vandal we have to guard against; so let down my own
rule (not one from the Washington office!), and let you go without a
guide." Indeed, Pinkley asserted that the men stayed only a short time,
and in his mind, if a visitor could not stay more than a brief period,
they certainly did not need his service as a guide. "A guide can no more
tell you about the Casa Grande Ruins in twenty minutes," Pinkley rudely
continued, "than you can tell a man all about the law, or Medicine." [25] Condescending and argumentative, Pinkley
assailed Minotto. He accused Minotto of gracelessness equal to the
discourtesy that the senator attributed to him.
Pinkley hoped to turn the situation to his advantage.
He wanted Cammerer and Ickes to understand the nature of his major
problems. In a more contrite response than he sent Minotto, Pinkley
explained to Cammerer that the episode was typical of his problems with
visitors. Ignoring the charges against him, he addressed what he
perceived as the pivotal issue. Visitors frequently arrived after hours
and demanded service, and their attitude bothered him. Few seemed to
realize that although Pinkley lived in the compound, he was a government
employee who worked regular hours. "We have them come in after dark many
times," Pinkley complained, "and assume that we are some sort of
watchmen who will light a lantern and lead them through dark and gloomy
passages of the ruin where they can get a thrill." [26] Pinkley tried to educate his visitors, but
not everyone appreciated his efforts. The unfortunate situation with
Minotto helped him to outline a serious problem in his area.
Others in the Park Service were less supportive, but
Cammerer still took Pinkley's side. Associate Director Demaray attached
a memo to Minotto's complaint that read: "it looks as if Pinkley fell
down this time." Cammerer, however, told Ickes that the incident was
insignificant and submitted a draft of a reprimand for Pinkley. Although
he suggested a five-day suspension without pay for Ranger Frank Fish,
about whom Minotto also complained, Cammerer supported Pinkley
completely and even wrote letters to Palmer and Horner exonerating
Pinkley and implicating Fish. [27] Cammerer
was Pinkley's friend, and his response seemed too conciliatory. Ickes
also wanted his say.
The boisterous secretary of the interior was angry.
Employees of his department had insulted two of his personal friends,
confirming every bad feeling he had about perpetuated bureaucracy.
Cammerer's lack of leadership in other situations perturbed Ickes, and
his decisive support of Pinkley seemed out of character. This evidence
of bureaucratic protectionism was too much. Ickes's assistant, Elbert K.
Burlew, a veteran of the Hoover administration whose job Albright had
saved when Ickes came to Washington, D.C., read Cammerer's reprimand and
was also displeased. "If you send the 'reprimand' as prepared, Pinkley
will not recognize it as such," Burlew told Ickes. "It is one of the
best letters of recommendation I have seen in a long time." Ickes
agreed, telling Cammerer that the letter went "out of the way to tell
Pinkley what a fine person he is. It creates the impression that he
could not possibly do anything that would subject him to criticism."
[28]
Never one to ignore an opportunity to attack his
favorite targets, Ickes followed through on the impulse to exert his
authority. He told Burlew to write a letter that was an indictment of
Pinkley, and irritated with Cammerer and Pinkley, Ickes chastised both.
"The fact that charges of discourtesy against Mr. Pinkley have not in
your judgement been proved," Ickes informed Cammerer, "does not call for
a letter of such enthusiastic adulation as you have drafted." Ickes
chose to believe Minotto, and when he castigated Pinkley, Ickes cited
Governor Horner's response, which he believed corroborated Minotto's
charges, as the important evidence in the case. [29]
In his indignation, Ickes let his personal dislike
for Cammerer and bureaucracies in general interfere with his judgement.
Horner's letter to Ickes supported Pinkley's version of the events much
more than it did Minotto's. "Personally," the governor concluded, "I
have no complaint to make. Please feel there is no apology due to myself
or Mr. Palmer." [30] Humiliated in an effort
to impress his friends, Minotto probably overreacted. But Ickes was
determined to show everyone in the Park Service who was in charge of the
Department of the Interior.
Instead of Cammerer's reprimand, Pinkley received
harsh sanction. Ickes found Pinkley's response to the situation
unprofessional. No matter how Pinkley justified it, his "established
resentment against late visitors" was unacceptable to Ickes, who did not
believe that "discourtesy to the unfortunate individual who may
unintentionally transgress a code that you have fixed in your mind" was
an appropriate solution. Furthermore, Ickes found Pinkley's response to
Minotto "distinctly objectionable." The letter destroyed any qualms that
Ickes had about judging Pinkley guilty, for it "clearly discloses an
attitude that would motivate in the mistreatment of visitors." Ickes
suspended Pinkley from duty for five days without pay and informed
Cammerer that a man who will write a letter like that should either
correct his attitude instantly or be dismissed from the service." [31]
If Pinkley needed more evidence that the Southwest
was no longer his autocracy, Ickes certainly provided it. Ickes was an
advocate of strong centralized leadership, and he demanded that every
employee of the Department of the Interior behave according to his
standards. Horner and Palmer were his friends, and Casa Grande was his
responsibility. The situation embarrassed Ickes, and he felt compelled
to do something. Even after Horner's conciliatory letter, which Ickes
seems to have purposely misinterpreted, his bias against bureaucratic
behavior and personal dislike of Cammerer influenced his decision. In
Ickes's Department of the Interior, underlings had to watch what they
did.
But Pinkley also shouldered responsibility for the
incident with Minotto. Long before Harold L. Ickes became secretary of
the interior, Pinkley developed what Ickes called an "evident feeling of
proprietorship" about Casa Grande. [32]
Since the turn of the century, Pinkley had run the ruin and personally
entertained more than 100,000 visitors. His work was indirectly
responsible for the visit of Minotto and Horner. If Pinkley were not
there, Casa Grande likely would have remained as obscure as the Gila
Cliff Dwelling or the Fossil Cycad national monuments. Pinkley created
visitor interest in Casa Grande and insisted upon the guided tours that
figured in the incident with Minotto. Casa Grande was his home, and his
life was closely tied to it. He was not prepared to relinquish that
control, particularly to the people who ignored his predicament
throughout the 1920s.
Although he felt wronged, Pinkley accepted Ickes's
decision as gracefully as he could, and the episode changed the
superintendent's view of his position within the agency. During the
1920s, Pinkley had decided that the spotlight could only help the
national monuments. He gravitated toward it, attending meetings, making
pronouncements, and generally calling attention to himself and the
monuments. But later in 1934, he tried to avoid attending the annual
conference of superintendents in Washington, D.C., his usual forum for
airing grievances. Fearing humiliation at the hands of his growing
number of rivals, Pinkley did not want to face his peers.
Relations between Pinkley and Washington, D.C.
continued to deteriorate. Nothing the Division of Education did pleased
Pinkley. If Bryant did not offer assistance, Pinkley felt slighted. If
specialists from Education proposed programs for the national monuments,
Pinkley felt threatened. From Bryant's perspective, every effort was
futile. The status quo did not please Pinkley either, and after 1934,
his attacks upon Education escalated.
Pinkley's position became increasingly paradoxical.
He wanted funding from Education, but disregarded its advice. No matter
what Bryant offered, it fell short of what Pinkley thought he deserved,
and to upset his rival, Pinkley often acted as if Bryant's offers were
insulting. But Bryant had the ear of the leadership of the agency, and
the interpretation programs in the national parks were successful.
Educational money and advice were intrinsically linked, and Pinkley
could not have one without the other.
Throughout the 1930s, the central administration and
its authority on the periphery clashed. Pinkley publicly assailed the
museum practices of the Division of Education, and Cammerer had to
determine policy for the agency. Although he was the head of the Park
Service, Cammerer had considerable sympathy for Pinkley's position. But
in the end Cammerer was forced to accept that professionalization was
the direction of the future for the NPS. On 5 October 1936 Cammerer
flatly ordered Pinkley not to attack Education in public. [33] Cammerer wanted criticism brought up via
the proper channels instead of in a public referendum. The agency had
too much at stake to appear to be squabbling.
Pinkley responded as an outsider, loudly pronouncing
his position. This set the stage for open conflict, and Cammerer had an
intraservice war on his hands. Pinkley lacked another forum in which to
vent his anger, and after Cammerer's rejoinder, he chose to continue his
attacks. Cammerer did not want the situation to escalate, but he could
not make Pinkley leave the educational division alone. Pinkley's wrath
was no longer an occasional occurrence. He appeared to have a systematic
plan of attack and did not think of letting up.
Pinkley had outlived his usefulness to the Park
Service. Like Richard Wetherill before him, he could not see that his
time had passed. Although the Park Service had developed in no small
part because of what Pinkley had accomplished, there was little place
for an uncompromising individualist like Pinkley in the new Park
Service. He had to change or find himself bucking an increasingly
powerful central administration on a regular basis. Although
consistently able to achieve excellent results with very little money,
Pinkley always went his own way. Adjusting to bureaucratic
responsibility would not be easy.
By the 1930s, there was little other than his work in
Pinkley's life, and the stress soon affected his health. His wife, Edna,
died suddenly in 1929, and afterwards, he totally immersed himself in
his work. Even failing health did not deter him. In 1937 he had a
serious heart attack that forced him to temporarily reduce his work
load. A kind of peace descended upon the Southwest. Pinkley became less
aggressive, and the view of him in the agency softened. In 1938 Pinkley
finally convinced Cammerer to approve a school to prepare future
custodians for work in the national monuments in the manner that park
rangers were trained for the parks. He had first suggested this idea
during the 1920s, but it was not approved until the end of 1939.
Throughout the winter of 1939-40, an ecstatic and again healthy Pinkley
made plans for the opening of the school. On 14 February 1940, as he
finished the introductory speech at the opening of the first session,
Frank Pinkley collapsed on the podium and died of heart failure. [34]
It was a fitting way to die for a man so passionate
about his work. The national monuments were his life, and he achieved
the goal that perpetuated his system of care. Pinkley created the system
that facilitated archaeological tourism and was instrumental in bringing
the Southwest to the attention of the American public. Millions of
people visited the monuments he had struggled to preserve, and because
of his efforts, they left knowing a great deal more than when they
arrived. Although Pinkley's enthusiasm and energy brought the
southwestern national monuments to the attention of the Park Service and
the nation, there was one thing he could not do. He could not make
prehistoric culture more interesting to the American public than its
Euro-American past.
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