Chapter 10:
Management in Transition
I can remember Dr. A. Starker Leopold, on a zoology
class field trip in Lake County, California, in 1951, telling some of
his students that before long fire would be restored to national parks.
It seemed a startling and revolutionary idea at the time.
Bruce M. Kilgore, 1974
More visitation, better roads, and improved
accommodationsthe traditional concerns of national park
managementwere gradually challenged during the 1960s and early
1970s by the need to address the ecological issues summarized at the
Second World Conference on National Parks in 1972. Meanwhile, America's
historical preoccupation with monumentalism masked the nation's failure
to establish national parks of unquestionable ecological integrity. The
result was renewed interest in the biological significance of the larger
national parks and monuments already in existence. Again precedent could
not be ignored. Granted, the old-line parks and monuments had been
established with cultural rather than ecological ends in mind. Only the
larger reserves, however, regardless of their imperfections, possessed
the diversity of natural features necessary to begin widespread
experimentation with the principles of biological management.
Among the Park Service's existing management
policies, none seemed more inconsistent with the needs of plants and
animals than providing opportunities for mass recreation. As
overcrowding worsened, however, a few scientists occasionally spoke out
against accommodating people in the parks at the expense of the natural
scene. Finally, these random notes of criticism achieved special
credibility in 1963, when the distinguished Leopold Committee, chaired
by A. Starker Leopold of the University of California at Berkeley,
released its sweeping report, Wildlife Management in the National
Parks. If the document had appeared but a few years earlier,
undoubtedly it would have been largely ignored. A new generation of
conservation leaders, however, influenced by Rachel Carson's Silent
Spring and caught up in the emotion of the environmental movement,
instead found the Leopold Committee's conclusions too provocative to
dismiss. [1]
Central to the committee's report was its
recommendation that protection, defined as the strict maintenance of
park features, must give way to greater respect for the importance of
the natural forces that had brought about those features in the first
place. For example, the scientists reported, "It is now an accepted
truism that maintenance of suitable habitat is the key to sustaining
animal populations, and that protection, though it is important, is not
of itself a substitute for habitat." Habitat had less to do with
artifacts or physical wonders and more to do with natural processes,
such as wind, rain, and fire. It followed that habitat could not be
regarded as "a fixed or stable entity that can be set aside and
preserved behind a fence, like a cliff dwelling or a petrified tree."
Biotic communities evolved by "change through natural stages of
succession." Managers who chose to alter the parks biologically must
therefore resort to the direct "manipulation of plant and animal
populations." [2]
How that manipulation might be directed, and toward
what ends, comprised the most significant portion of the Leopold report.
"As a primary goal," the committee suggested, "we would recommend that
the biotic associations within each park be maintained, or where
necessary recreated, as nearly as possible in the condition that
prevailed when the area was first visited by the white man." In short,
the scientists concluded, "A national park should represent a vignette
of primitive America." [3]
The obstacles to achieving "this seemingly simple
aspiration are stupendous," the committee wrote, admitting the obvious:
"Many of our national parksin fact most of themwent
through periods of indiscriminate logging, burning, livestock grazing,
hunting, and predator control." Once those areas became national parks
they again "shifted abruptly to a regime of equally unnatural protection
from lightning fires, from insect outbreaks, absence of natural controls
of ungulates, and in some areas elimination of normal fluctuations in
water levels." Meanwhile, exotic species of plants and animals had
"inadvertently been introduced." Finally, factors of human visitation,
including "roads and trampling and camp grounds and pack stock,"
had taken their toll of park environments. It was small wonder that
restoring "the primitive scene" would not be "done easily nor can
it be done completely," the committee concluded. The point was that the
National Park Service needed a new perspective from which to begin a
more sensitive management program. [4]
At least among scientists familiar with the national
parks, the suggestion that they be restored to their appearance at the
time of European contact with North America had been discussed as early
as the 1910s. [5] With the growing popularity
of the environmental movement during the 1960s, more Americans,
including eminent scientists such as those of the Leopold Committee,
found the ideal of pristine wilderness a comforting vision in a rapidly
changing world. Few at the time noted the apparent contradiction in the
committee's own conclusions. Having argued that natural forces were
dynamic, the committee nonetheless recommended that national park
environments be restored to an approximation of their original state
four hundred years earlier. Obviously the committee, much like
preservationists in general throughout the 1960s, had been influenced by
the opinion that human beings were disruptive and therefore were
"unnatural" presence in wilderness areas. Yet another contradiction
was the committee's reluctance to extend this bias to Native Americans
as well as to their European conquerors. Instead, the committee endorsed
manipulation of the environment by the Indians, particularly their use
of fire, as a practice in keeping with the need to restore periodic
burning to many park landscapes. [6]
By "natural," in other words, the committee meant
"original," or at the time of European contact. Put another way, Native
Americans were "original" and therefore a "natural" presence in North
America. Europeans rather than Indians had been responsible for changing
the continent ruthlessly and unsystematically. "The goal of managing the
national parks and monuments," the committee restated, "should be to
preserve, or where necessary recreate, the ecologic scene as viewed by
the first European visitors." [7]
The use of the term "visitors" to describe European
pioneers again strongly implied that they and their descendents, not
Native Americans, were the unnatural element in the New World. As white
Americans moved westward, wildlife was greatly reduced in numbers, some
species to the point of extinction. Similarly, Europeans had permanently
introduced exotic varieties of plants and animals as well as human
diseases alien to North America into practically every environment. "All
these limitations we fully realize," the committee wrote by way of
confession. "Yet, if [our] goal cannot be fully achieved it can be
approached." Since perfection was impossible, the next best alternative
was to restore the national parks to at least suggest what North
America may have looked like in the precolonial period. "A reasonable
illusion of primitive America could be recreated," the scientists
maintained, "using the utmost in skill, judgment, and ecologic
sensitivity." [8]
With the publication of the Leopold report in 1963,
preservation interests eagerly endorsed its substitution of the
"illusion of primitive America" for the existing illusions of
monumentalism. [9] Much as Americans of the
nineteenth century had found comfort in the cultural symbolism of
Yosemite, Yellowstone, and the Grand Canyon, so preservationists of the
1960s found reason for hope in the suggestion that some of the
ecological damage experienced in the United Statesat least in the
national parksmight be reversed or undone. Indeed, the lasting
significance of the Leopold report lay not in its own romantic images of
pristine America but in its guiding principle that the biological
management of the national parks was just as important asif not
more so thanthe strict protection of their natural features.
PHOTOGRAPH BY NORMAN HERKENHAM, COURTESY OF THE NATIONAL PARK SERVICE
The 1970s campaign for national park expansion in
Alaska sought to include ecologically sensitive lands, such as wildlife
breeding grounds, in all protected areas. Park expansion was least
controversial when the territories proposed for wilderness status
encompassed only monumental topography, such as the Arrigetch Peaks,
Gates of the Arctic National Park and Preserve, above, and the Great
Gorge of Ruth Glacier, Denali National Park and Preserve, below.
COURTESY OF THE NATIONAL PARK SERVICE
The gentle beauty of Great Outer Beach, Cape Cod National Seashore,
Massachusetts, above, contrasts sharply with the boiling, windswept surf
of Point Reyes National Seashore, California, below.
PHOTOGRAPH BY RICHARD FREAR, COURTESY OF THE NATIONAL PARK SERVICE
National seashores, lakeshores, riverways, and urban
recreation areas, although not often monumental, were consistently
advocated for their ecological treasures. Above is Great Pond, a
freshwater remnant of the Ice Age, in Cape Cod National Seashore,
Massachusetts. Scenic riverways, such as the St. Croix National Scenic
Riverway in Wisconsin and Minnesota, below, offer a picturesque retreat
from urban surroundings.
PHOTOGRAPH BY RICHARD FREAR, COURTESY OF THE NATIONAL PARK SERVICE
Rugged topography often explains why open spaces near major American
cities have not been extensively developed. Here, the Marin Headlands of
the Golden Gate National Recreation Area frame the Golden Gate Bridge
and San Francisco, California.
PHOTOGRAPH BY RICHARD FREAR, COURTESY OF THE NATIONAL PARK SERVICE
Gateway National Recreation Area, New York and New Jersey, offers
recreation for nearby population centers, such as bird watching, above.
But urban parks must also cope with urban problems. Below, a high rise
and car abandoned at Breezy Point in the same park.
PHOTOGRAPH BY RICHARD FREAR, COURTESY OF THE NATIONAL PARK SERVICE
This controversial observation tower, constructed during the early 1970s
won private land just outside Gettysburg National Military Park,
Pennsylvania, dramatizes the continuing threat to all national parks
from commercial encroachments.
PHOTOGRAPH BY WILLIAM TWEED, COURTESY OF THE NATIONAL
PARK SERVICE, SEOUQIA NATIONAL PARK
A prescribed burn to remove competitive vegetation
among the Giant Sequoias in Giant Forest, Sequoia National Park,
California, September 1980, contrasts sharply with the principles of
total protection generally followed by the National Park Service before
the introduction of fire ecology during the late 1960s and 1970s.
PHOTOGRAPH BY WILLIAM S. KELLER. COURTESY OF THE
NATIONAL PARK SERVICE
As secretary of the interior between 1981 and 1983,
James Watt drew fire from environmentalists for his outspoken opposition
to national park expansion and inspired literally hundreds of political
cartoons. Above, Watt is shown at Yellowstone National Park, September
1981. David Horsey depicts him as the serpent in a national park Garden
of Eden, below.
Of all the attractions of the national park system
none more dramatically symbolized the slow but steady adoption of the
principles of biological management than the Giant Sequoias of the High
Sierra. Recognition of their cultural symbolism as America's "living
antiquity" had led to the protection of scattered groves of the Big
Trees as early as the Yosemite Grant of 1864. With their protection
against logging and vandalism, however, had not come ecological
understanding of their life cycle. The biological sciences were still in
their infancy and still basically obsessed with cataloging data rather
than viewing it comprehensively. As a result, few but the Native
Americans who resided in the High Sierra understood that fires were a
common occurrence among the redwood trees. Government wardens of the
Sequoia groves instead tried to suppress the ground fires that
periodically crept toward the boundaries of the early parks. [10]
Strict protection of the Giant Sequoias against fire
seemed in the best interest of their perpetuation as natural monuments.
Fire burned other forests; as a result, awareness of the fact that its
presence was not universally destructive grew slowly. For example, as
late as 1929 Curtis K. Skinner, a respected conservationist, upheld the
popular view that fire "without a doubt" was "the greatest threat
against the perpetual scenic wealth of our largest National
Parks" [italics added]. Throughout the 1880s and 1890s, Skinner wrote,
arguing his point, "a fire might rage in the mountain forests for weeks
without exciting any more attention than an occasional remark between
ranchers concerning the dryness of the weather. Not until the early
1900s, following greater publicity about the needs of the national
parks, did the government fully adopt a policy of "increased vigilance
and much careful attention to fire-fighting equipment" that the
protection of their forests required. [11]
Given the depth of support for Skinner's point of
view among the general public, anyone who questioned the wisdom of
excluding fire from every forest inevitably drew strong criticism from
professional and amateur foresters alike. Still, although they were a
distinct minority, proponents of the so-called light burning theory
occasionally managed to get a public hearing. [12] One of the first to defend the use of fire as
a management tool in the national parks was Captain G. H. G. Gale,
commandant of the Fourth U.S. Cavalry, which was assigned to the patrol
of Yosemite in 1894. "Examination of this subject," he reported in June
to the secretary of the interior, "leads me to believe that the absolute
prevention of fires in these mountains will eventually lead to
disastrous results." Fire did not appear to be the enemy of the Sierra
forest but a presence crucial to the forest's very survival. Annual
fires removed the litter of fallen needles and toppled trees on the
forest floor, leaving "the ground ready for the next year's growth."
Enough younger trees escaped the flames to replace the forest, "and it
is not thought," Gale remarked, appealing to the common wisdom of Sierra
natives and pioneers, "that the slight heat of the annual fires will
appreciably affect the growth or life of well-grown trees. On the other
hand," he concluded with a warning, "if the year's droppings are allowed
to accumulate they will increase until the resulting heat, when they do
burn, will destroy everything before it." [13]
As a proponent of light burning, Captain Gale was
little more persuasive than his counterparts in introducing the
sustained, systematic use of fire to the national parks. Nor did the
establishment of the National Park Service in 1916 lead to any
relaxation in the policy of fire suppression. As a result, over the
years the superintendents of the respective parks lost sight of the
composition of the parks' original forests as younger, competitive
vegetation and debris accumulated among the older growth. Finally,
scientists during the 1950s turned increasingly to the problems of fire
suppression, later publishing their findings in both respected general
and professional journals. Not until 1963 and the publication of the
Leopold Committee Report, however, did the National Park Service pay
serious attention to this new research. Meanwhile, the Park Service was
caught up in its Mission 66 program to open the parks to greater
numbers of visitors. Thus it was during the 1960s that the need for
periodic burning in most of the larger national parks and monuments was
recognized as a management necessity. [14]
The Tuolumne and Mariposa groves of Giant Sequoias in
Yosemite National Park served as early examples of the consequences of
fire suppression. "Two great changes have taken place as a result of
fire protection," wrote H. H. Biswell, a professor of forestry with the
University of California, in 1961: "First, the more shade-tolerant white
fir and incense cedar have developed in dense thickets in the understory
of many Big Trees and pines. They greatly add to the fire hazard."
Visitors to the park who considered this accumulation "natural" failed
"to recognize that fire, too, was a natural and characteristic feature
of the environment in earlier times." "The second change of great
importance in the Sierra Nevada forests," Biswell said, continuing his
pathbreaking article, "is the large increase in debris on the forest
floor." Sierra forests "were relatively clean, open, and park-like in
earlier times, and could be easily traveled through." After decades of
fire suppression, however, most were "so full of dead material and young
trees and brush as to be nearly impassable." [15]
By so increasing the fire hazard, such conditions
only invited a major conflagration that would wipe out the forest
entirely. Fires in the original, primeval forest had been "friendly,"
limited to the smaller accumulations of "herbs, needles, and leaves on
the ground." The Giant Sequoias themselves, "with their asbestos-like
bark," easily resisted the low flames and mild heat. In contrast, a
modern fire among the redwoods would be enormously destructive, fed by
"the development of a solid fuel layer in many places from the tops of
the tallest trees to the young saplings and brush and litter on the
ground. Is it any wonder," Professor Biswell asked in conclusion, "that
the wildfires in such situations are so devastating and difficult to
control?" [16]
The significance of these findings aside, additional
research during the 1960s and early 1970s further established the
importance of fire not only in clearing the Sequoia groves of
competitive vegetation, but in actually providing for their existence in
the first place. Once again, the observations of a few perceptive
individuals writing in the nineteenth century were confirmed. As early
as 1878, for example, John Muir wrote that "fire, the great destroyer of
Sequoia, also furnishes bare, virgin ground, one of the conditions
essential for its growth from seed." [17]
Although Muir greatly exaggerated the destructiveness of natural fires,
he was nonetheless among the few people prior to 1900 to recognize
their significance in the regeneration of Giant Sequoias.
After 1900, fire suppression throughout the High
Sierra undermined the advancement of this hypothesis well into
mid-century. Finally, both private and government scientists admitted
few Sequoia seedlings were growing in the mountains, even in the
protected groves. That startling revelation led to the first major
studies of the intricacies of the Sequoia forests, studies that widely
confirmed that Sequoia seeds rarely germinated unless simultaneously
exposed to bare mineral soils in open sunlight. Not only were young
Sequoias found to be intolerant of shade and competitive vegetation, but
they required fire to burn away the forest litter that prevented their
seeds from reaching bare ground in the first place. Historically many of
the seedlings had perished in the ground fires that later swept through
the groves every few years. The point was that enough of the younger
growth had survived the flames to grow up into a new and complete
Sequoia forest. In contrast, the suppression of all fires over a period
of several decades had choked the open areas of the Sequoia groves with
cedar and white fir. Coupled with their own growth, which shaded out the
forest floor among the Big Trees, the competitors contributed increasing
amounts of needles and fallen branches to the forest litter,
simultaneously strangling any Sequoia seedlings that managed to take
root in debris as well as darkness. [18]
With the problem in the Sequoia groves so graphically
identified, scientists devoted the remainder of their research to
finding a practical solution. Among them was John L. Vankat, assistant
professor of botany at Miami University in Oxford, Ohio. "Our great
challenge," he wrote, summing up the recent findings in the Big Tree
groves, "is to return disturbed ecosystems to the point where natural
processes may act as primary management agents." In other words, ideally
the appearance of the Sierra forest a century ago might be restored, at
least in the national parks. As the basis for his conviction, Professor
Vankat extensively quoted the Leopold Committee Report of 1963. "When
the forty-niners poured over the Sierra Nevada into California, those
that kept diaries spoke almost to a man of the wide-spaced columns of
mature trees that grew on the lower western slope in gigantic
magnificence. The ground was a grass parkland, in springtime carpeted
with wildflowers. Deer and bears were abundant." Ground fires were
primarily responsible for this pristine environment; with fire
suppression began the changes leading to the "dog-hair thicket of young
pines, white fir, incense cedar, and mature brush" common along the
western slope of the Sierra in 1963. [19]
At least for a government agency, the National Park
Service reacted rather swiftly to the findings of the Leopold Committee
Report. In September 1967 the Park Service officially reversed its
long-standing policy of suppressing all fires in the great majority of
its parks. "Fires in vegetation resulting from natural causes are
recognized as natural phenomena," read the agency's new policy
statement. Accordingly, wherever fires might "be contained within
predetermined fire management units" and where burning would "contribute
to the accomplishment of approved vegetation and/or wildlife management
objectives," natural fires "may be allowed to run their course." [20]
To reemphasize, by "natural" was meant the original
appearance of North America at the time of European contact. Strictly
interpreted, such a definition obviously had to make allowances for the
extensive use of fire by Native Americans. Of course the Park Service
had neither the intention nor the means of honoring such authenticity in
its forests. Human beings, including Indians, could no longer be
recognized as agents of "natural" change. What appeared at first glance
to contradict man's original contribution as a factor of biological
succession, however, in fact provided park biologists with a resolution
to their basic dilemma. Before natural processes could be restored to
the national parks as self-perpetuating agents, biologists would have to
resort to human intervention yet again. But since Native Americans
historically had set fire to forests later protected in the parks, it
followed that the adoption of Indian aims and techniques would be
consistent with the goal of returning specific ecosystems to the point
of self-renewal.
Especially in the Giant Sequoia groves of Yosemite,
Sequoia, and Kings Canyon national parks, the unnatural accumulation of
dead branches, litter, and competitive vegetation over many decades of
protection indicated that any fire, however natural in origin, would
nonetheless be highly destructive. In this instance, at least, the
biological ends justified any artificial means. The artificial
suppression of fires had led to the problem in the first place; clearly,
the only way "back to nature," so to speak, was by resorting to an
artificial remedy in the interest of eventually recreating the natural
rhythms that had been lost. First, the competitive vegetation growing
among the Big Trees would have to be cut, stacked by hand, and burned
under strict supervision. Afterward, the litter and other accumulated
debris on the forest floor might also be burned under carefully
monitored conditions when fires were not likely to get out of control.
Finally, ground fires of natural origin, obviously from lightning
strikes, could again be permitted to burn themselves out in the groves
under the watchful eye of park biologists. [21]
As in the past, groves cleared of debris and
competitive trees would be subjected only to ground fires, each limited
by the scarcity of fuel and the work of previous combustion to lower
levels of heat and intensity. The thick, asbestoslike bark of the Giant
Sequoias would again protect the mature specimens from harm; equally
important, enough of the seedlings would survive the occasional flames
to perpetuate the Sequoia forest for centuries to come.
The realization of this scenario, coupled with the
ability to restrict controlled burning to the parks proper, spurred its
emergence in the 1970s as the most profound and successful response to
the principles of biological management outlined in the Leopold
Committee Report of 1963. Unlike the committee's other controversial
recommendations, such as the reintroduction of natural predators to park
environments, allowing fire back into park ecosystems did not depend
for its success on the cooperation of other government agencies or
private landowners surrounding the preserves. Predators wandering
outside park boundaries were almost certain to be shot by farmers,
ranchers, and hunters. At least with the proper precautions, fire could
be restricted to areas solely under the control of the National Park
Service.
As any management philosophy, however, controlled
burning also had its detractors, including old-line rangers and
concessionaires sensitive to the disappointment of park visitors seeking
out the traditional as opposed to the biological. Tourists who had
driven hundreds or thousands of miles in search of monumental scenery
especially found little to inspire them in mountains obscured by the
smoke of smoldering fires, however natural or apparently necessary. [22] Other critics saw another contradiction in
allowing natural pollution to hang over the parks, while at the same
time objecting to the smoke and dust of distant cities and coal-fired
power plants. [23] Manipulation of the
environment toward human objectives had long been the basis of American
society. Were not the pioneers and their descendents, not merely Native
Americans, a natural and therefore legitimate presence in the
environment?" Was it not illogical to expect that the environment could
be suspended at a fixed point no one living could even remember? Weighed
against these deeply philosophical issues, monumentalism in comparison
seemed so simple to understand.
The appreciation of natural objects, unlike an
intimate awareness of natural processes, required only childlike wonder
and a sense of imagination. To be sure, America's historical
preoccupation with monumentalism still masked the nation's failure to
establish national parks of unquestionable ecological significance. In
the final analysis, obtaining national parks of adequate size, not
simply experimenting with new management techniques, was the key to the
survival of resources other than scenic wonders. In this regard, the
ecological issues raised by the Leopold Committee Report and underscored
by the First and Second World Conferences on National Parks were still
years away from being addressed politically, let alone even partially
resolved biologically. [24]
PHOTOGRAPH by M. WOODBRIDGE WILLIAMS, COURTESY OF THE NATIONAL PARK
SERVICE
PHOTOGRAPH by M. WOODBRIDGE WILLIAMS, COURTESY OF THE NATIONAL PARK
SERVICE
PHOTOGRAPH BY RICHARD FREAR, COURTESY OF THE NATIONAL PARK SERVICE
These women at Old Faithful Inn, Yellowstone, in 1922, were given a tour
in a Park Service car.
COURTESY OF DAVID HORSEY AND THE SEATTLE POST-INGELLIGENCER
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