Chapter 6
Science and the Struggle for Bureaucratic
Power: The Leopold Era, 19631981 (continued)
Mission 66 and Parkscape
U.S.A.
Conrad Wirth's Mission 66 had revitalized the National Park Service,
lifting it out of the doldrums of the postwar years. Much as the New
Deal had done, the program poured large amounts of money into the parks,
to bring facilities up to standards the Service deemed appropriate.
Horace Albright believed Mission 66 to be one of the "noblest
conceptions in the whole national park history," ranking in importance
"with the creation of the National Park Service itself." [1] Indeed, the emphasis of Mission 66 on park
development and use made it more evident than ever that the large parks
in the system were subject to a kind of recreational "multiple use."
Taken as a group, they accommodated a range of uses, such as downhill
skiing, motorboating, sportfishing, hiking, horseback riding, and
hunting (in recreation areas and in Grand Teton National Park)all
facilitated by largescale camping and lodging accommodations.
The extensive surveys for future parks, begun as early as the 1930s
and continued under Mission 66, began to pay off in the 1960s, with the
growing national interest in setting aside recreational lands. Congress
approved a remarkable array of additions to the national park system
during the 1960s and 1970s. New parks were created at a more rapid pace
than ever before, with many of the areas providing opportunities for
intensive recreational uses. From the shoreline surveys alone, twelve
parks came into the system between 1961 and 1972, including Cape Cod,
Padre Island, and Point Reyes national seashores, along with Pictured
Rocks, Indiana Dunes, and Apostle Islands national lakeshores. Together
these new parks contained more than 700,000 acres, with 718 miles of
shoreline as initially established. [2]
Wirth's expansionist zeal was rivaled by that of his successor,
George B. Hartzog, Jr., who became Park Service director early in 1964
and used many of the surveys conducted under Wirth to bring about the
creation of new parks. A politically astute lawyer and Park Service
veteran, Hartzog adroitly capitalized on the momentum of President
Lyndon Johnson's Great Society to expand the national park system.
Support for his expansion efforts continued through the first
administration of President Richard M. Nixon. Under Hartzog ten new
parks were created in 1964 alone. Other notable years included 1965,
with fourteen new parks; 1966 and 1968, with ten each; and 1972, with
thirteen. Overall, between 1961 and 1972 (the year Hartzog's
directorship ended), a total of eighty-seven units came into the system,
constituting nearly 3.7 million acres. Besides the seashore, lakeshore,
and recreation areas, numerous small historical parks were established,
plus larger natural units like Voyageurs, Guadalupe Mountains, and North
Cascades national parks. [3]
Many of these parks were brought in under a new Service agenda:
"Parkscape U.S.A." In the mid-1960s, seeking to maintain the momentum
created by Mission 66, the Service devised this successor program, which
had as its principal focus the continued expansion of the system, rather
than construction of roads and facilities, as with Mission 66. In
Director Hartzog's words, Parkscape U.S.A. would "complete for our
generation a National Park System by 1972," the centennial year of
Yellowstone. The tremendous surge in outdoor recreation during this era
placed added pressure on national park areas and increased the urgency
to create new parks. In 1966, at the close of Mission 66, total annual
visits to the park system had reached 133.1 million, up from 61.6
million when the program began in 1956. By 1972, annual visits climbed
to 211.6 million. [4] These figures stemmed
in part from the increased number of parks over the years, but clearly
the Service's responsibilities and workload were growing and the parks
were under a greater burden than before. [5]
Among the new parks, the national recreation areas in particular
added to the Service's involvement in recreational tourism. Director
Hartzog stated in an article in the July 1966 National Geographic
(a special issue celebrating the Park Service's fiftieth anniversary and
the accomplishments of Mission 66) that the national recreation areas
"have been so popular that [the Service knows now] that we do not have
enough of them." Hartzog suggested that it was in this category that the
"greatest expansion of the National Park System" would take place. In
the same article, the director extolled the virtues of Lake Powell, the
principal feature of recently created Glen Canyon National Recreation
Area. Hartzog viewed this new recreation area as representative of the
"spirit of Parkscape U.S.A." His statement identifying the Park
Service's significant new program with a large water impoundment came
less than two years after passage of the Wilderness Act, which reflected
a diametrically opposed philosophy of land management. [6]
During Hartzog's tenure and the Parkscape era, eight reservoirs were
added to the system as national recreation areas, among them Bighorn
Canyon, Lake Chelan, and Curecanti. Each of these new units marked a
continuation of the national recreation area concept initiated in the
1930s with Lake Mead, and each reflected the strength of the
recreational tourism urge within the Park Service. Yet Lake Powell
(acclaimed in the National Geographic article for its sparkling
waters and its swimming, waterskiing, and motorboating potential)
flooded deep, strikingly scenic sandstone canyons of southern Utah.
Water impoundment began in 1963, damaging the riverine ecology
downstream in Grand Canyon. The dam that helped create a national
recreation area began to degrade natural conditions in a national park.
[7]
As the environmental debates of the 1960s and 1970s intensified, the
National Park Service was substantially compromising itself as an
advocate for nature preservation. Indeed, reclamation interests, which
were allied with the Service in national recreation area management,
proposed about a half-dozen additional water-control projects in
northern Arizona that would create a string of reservoirs all or partly
within Grand Canyon National Park itself. Such proposals threatened to
alter drastically the very heart of this spectacular park, one of the
giants of the system. Conservationists eventually succeeded in blocking
the proposals, preventing further degradation of Grand Canyon. [8]
Two of the new national recreation areas created during the Parkscape
eraGateway and Golden Gatewere not associated with big
western reservoirs; rather, they were justified as providing the crowded
New York City and San Francisco metropolitan areas with significant
recreational opportunities. Yet they also brought the especially
difficult challenges of urban conditions, not unlike those the Service
already faced in managing the numerous parks and monuments in
Washington, D.C. With the exception of Washington, the Park Service's
chief involvement with cities had been management of small historic
sites, such as Federal Hall on lower Manhattan Island and Independence
Hall in Philadelphia. Having little experience with large recreational
open space in or near major urban areas, the Service had to devote
considerable attention to developing the skills and staffing necessary
to administer Gateway and Golden Gate. Other national recreation areas
near large urban areas soon followed: Cuyahoga Valley (near Cleveland),
Chattahoochee River (near Atlanta), and Santa Monica Mountains (near Los
Angeles). [9] The demands of these heavily
used parks could not help but heighten the bureau's emphasis on
planning, developing, and managing for intensive public recreational
use.
Reservoir and urban park management drew Park Service attention to
law-enforcement issues much more than before, as crowded public-use
zones became scenes of increasing crime and accidents. Even the
traditional natural parks like Grand Canyon, Yellowstone, and Yosemite
began to experience urban kinds of law-enforcement problems, owing
largely to crowded conditions. A 1970 Interior Department report on law
enforcement compared Grand Canyon Village (an extensive development on
the canyon's south rim) to a small city, with an average overnight
population of 6,000 people, plus a daily transient population of 12,000.
Similarly, figures for Yellowstone's Old Faithful Village were 5,000
overnight plus 10,000 transient. Yosemite Valley topped them all with
15,000 overnight and 18,000 transient, for a daily total of 33,000.
Another internal report revealed that "major offenses" (homicide, rape,
assault, robbery, and larceny) had more than doubled in the national
park system in just a few years, jumping from about 2,300 incidents in
1966 to about 5,900 in 1970.
In the summer of 1970, a riot in Yosemite and a young boy's death in
one of Yellowstone's thermal pools brought greater focus on
lawenforcement and safety issues. The widely publicized riot by mostly
countercultural youth in Yosemite Valley's Stoneman Meadows on the
Fourth of July in 1970 emphasized to Park Service leadership that the
bureau's lawenforcement capability needed serious attention. [10] The riot created a crisis atmosphere that
made Congress more receptive to increases in lawenforcement funding.
Russ Olsen, then assistant superintendent in Yosemite, later observed
that Hartzog "parlayed" the American public's concern about law
enforcement "into big bucks"; and in March 1971 the director announced
the establishment of a law-enforcement office in Washington. He also
announced a wider deployment of the U.S. Park Police, a Park Service
unit previously engaged in policing parks and other federal properties
in the District of Columbia and environs. Hartzog planned to increase
the Park Police staff by 40 positions (from 371 to 411), the bulk of the
new positions to be assigned to the Service's regional offices and to
parks most in need of police authority.
In addition, the director began a "comprehensive" law-enforcement
training program, to include 225 entry-level rangers and selected
management personnel. He anticipated that by the beginning of the 1971
summer travel season, 50 rangers from throughout the national park
system would each have completed 540 hours (17 and a half weeks) of
police training. Furthermore, an "intensive" eight-week program was to
be conducted for supervisory park rangers from the areas most impacted
by crime; and a minimum of 100 rangers hired only for the summer season
would receive training. [11]
Exacerbating the situation, law-enforcement emphasis conflicted with
the antiestablishment attitudes of the times, as evidenced in Yosemite.
As longtime Park Service law-enforcement authority William R. Supernaugh
recalled, a critical factor was that park rangers did not understand the
youth of this eratheir concerns for free expression and their
challenge to authority. The rangers were "separated in years and point
of view" from the youth of the 1960s and 1970s. Still, the Service's
expanded law-enforcement effort would become increasingly important in
park management, and part of the customary scene in national parks.
In Washington, Hartzog placed the newly created law-enforcement
office with the rangers, a move that reflected their long-established
responsibility for such work. With the rangers bureaucratically allied
with park superintendents (and solidly within the main feeder group for
superintendency positions) the law-enforcement programs, or "visitor
protection and safety" programs, as they would become known, were
virtually assured of continued strong support from Service leadership.
[12]
Following the tragic death of nine-year-old Andrew Hecht, who in
June 1970 accidentally fell into one of Yellowstone's boiling-hot
thermal pools, safety issues also came front and center. Hecht's parents
filed a $1 million tort claim against the Park Service, charging that
safety precautions around the thermal pools were inadequate. The Hecht
case (and effective pressure applied directly on the Park Service by the
Hecht family) brought public criticism on the Service for its overall
weak safety program, generating a significant new emphasis on safety in
the parks. An increased commitment of funds and staffing included a
safety specialist in the Washington office, allied with the ranger
operations. [13]
In another program expansion, Hartzog diversified and increased the
parks' interpretive activities, particularly focusing on environmental
education and "living history" presentations, the latter given at
historic areas by Park Service employees dressed in period costumes. The
motivations behind these two activities were related. Even living
history (especially "living farms") contributed to the Great Society's
efforts to improve public understanding of environmental matters.
Reflecting Director Hartzog's deep personal commitment to the idealistic
values of the Great Society (and in all probability his awareness of
potential urban-area political support for the Park Service), the new
programs focused on inner-city populations, mainly children, with the
hope of enriching their everyday lives and perhaps their appreciation of
nature and the nonurbanized world. [14]
Hartzog's "Summer in the Parks" program, providing entertainment and
recreational opportunities for city dwellers, began in Washington, D.C.,
in the late 1960s and became a cornerstone of the Service's urban
efforts. The director soon added other programs, involving many parks in
the system. Among the new endeavors was the National Environmental
Education Development program, which provided materials and curricula
for environmental studies, kindergarten through high school, especially
in schools near units of the national park system. Associated with this,
Hartzog's Environmental Study Area program identified special areas in
the parks where student groups could conduct field studies. In January
1970 the Park Service reported that it was operating 67 study areas
throughout the system, and that 50,000 children were participating in
the education program, with increasing involvement expected soon. Even
more popular, the living history programs had spread to 114 parks by the
mid-1970s. [15]
To assist with these efforts, Hartzog had an interpretive planning
and design center built at Harpers Ferry, West Virginia, which opened in
March 1970. He located the new facility adjacent to the Stephen T.
Mather Training Centeranother new Park Service operation (begun
during the Wirth era, but officially opened under Hartzog in 1964). The
Mather center emphasized interpretive training for Service employees.
Also in the early 1970s, Hartzog created a new unit in the Washington
office to provide oversight and policy guidance for urban issues: the
Office of National Capital and Urban Affairs, which included the
divisions of Urban Park Planning and Urban Park Programs. [16]
In addition, in 1971 Hartzog centralized most park development
activities by combining the eastern and western offices of design and
construction (which Wirth had enlarged to push through Mission 66) into
a single office in Colorado, the Denver Service Center. By the early
1960s, at the midpoint of Mission 66, Park Service design and
construction offices had employed more than 400 people, including
engineers, planners, architects, landscape architects, graphics
specialists, and construction representatives, along with administrative
support positions. When the Denver Service Center officially opened in
1972, it employed approximately 350 persons, committed in one way or
another to national park planning, design, and construction. In
addition, the center stationed specialists in the parks to oversee major
projects. Reflecting the continuing emphasis on development, service
center employment would increase with preparations for the 1976
Bicentennial, which included a huge design and construction program. The
center's staffing would peak in 1978 at about 800 employees. [17]
A high point in the growth of Park Service activities during this
era came with the demanding responsibilities in Alaskathe
extensive planning for new parks, as mandated by the Alaska Native
Claims Settlement Act of 1971. From the first, the Alaskan effort was
exceptionally political, involving other Interior Department bureaus and
the U.S. Forest Service, plus the state government of Alaska and
numerous Alaskan native groups. Tight congressional and departmental
deadlines, along with intense surveillance from both environmental and
private-enterprise groups, added to the pressure, so that the attention
of Park Service leadership was continually drawn to this arena. The
ensuing 1978 proclamation by President Jimmy Carter of national
monuments totaling about 41 million acres in Alaska (mostly creating new
units, but also including additions to some older parks) initiated huge
additional land management responsibilities for the Park Service.
Carter's action was sanctioned two years later when Congress passed the
Alaska National Interest Lands Conservation Act, increasing by
approximately 2.6 million acres the Alaska lands placed under Park
Service administration. [18]
The 1980 legislation also designated about 32.4 million acres of
Alaska park lands as wildernessmore than ten times the total
acreage so designated in all other parks. Congress thus bestowed on the
Service the responsibility for more wilderness acreage than that of any
other land-managing bureaua factor that helped obscure the
Service's reluctance to support passage of the 1964 wilderness
legislation and, subsequently, its restrained implementation of the act.
The antithesis of development, wilderness designation meant that
restrictions would be placed on national park backcountry management,
thereby protecting the designated areas not only from excessive use by
the public, but also from the managerial and developmental impulses of
the Park Service itself.
The Park Service met the act's ten-year deadline to evaluate roadless
park lands of five thousand acres or more for their wilderness
suitability, and submitted to the secretary recommendations for
wilderness in fortynine parks. Further wilderness reviews continued.
Realizing that public use of these areas had to be controlled, the
Service initiated formal backcountry planning for wilderness and other
undeveloped areas. From the beginning of the review process, however,
environmental organizations charged that the Service was opting for
smaller wilderness designations than it should. They claimed that, using
land classifications recommended by the 1962 report of the Outdoor
Recreation Resources Review Commission, the Service had devised a purist
definition of wilderness to exclude certain undeveloped lands. It also
planned what the environmental groups viewed as unnecessarily wide
buffer areas between wilderness zones and developed areas (especially
roads), rather than extending the zones close to development. [19]
In a particularly striking case, the Service limited its wilderness
proposal in Great Smoky Mountains National Park to conform with its
plans to construct a second transmountain highway through the park.
Opponents, claiming the Park Service was allied with "crowd
recreationists," gathered sufficient support to defeat the road plans.
The wilderness proposal was increased in size; however, entangled in the
politics of road construction, it was never enacted by Congress.
Similarly, the Service's expansive plans for developing Cumberland
Island National Seashore into a recreation hub to accommodate more than
fourteen hundred visitors a day foundered in the face of strong
opposition seeking to protect the Georgia sea island's relatively
undeveloped natural setting. Instead, access to the park was calibrated
to allow a far more limited number of visitors per day, and more than
twenty thousand acres of the park were designated as wilderness or
"potential wilderness." Overall, Congress frequently disagreed with the
Service's more limited proposals and increased them in size before
enacting them into legislation. In part because of the opposition of
local congressional members and a changing national political climate,
several large parks containing huge tracts of de facto wilderness never
gained the added protection of the Wilderness Act, among them
Yellowstone, Grand Canyon, and Big Bend, in addition to Great Smoky
Mountains. [20]
With the creation of several dozen new parks of different types
during the 1960s and early 1970s, the growth of the national park system
was so rapid that the Service established a task force to make
recommendations on how such growth might be controlled. This was
apparently the first formal effort of its kind in the bureau's history.
The report, submitted in early 1973, stated that indeed "areas of
questionable quality" had been included in the system, and that they had
"overreached [the Park Service's] capability to manage a System at the
desired level of quality." Without naming them, it recommended that some
park areas, mainly "in the recreation category," should "not be
administered by the National Park Service," and that there should be "no
further urban recreation areas added to the System." Yet, instead of
reductions, large numbers of new parks (including recreation areas and
the Alaska expansions) added tremendously to the burden. Later studies
to reduce the size of the system were conducted sporadically during the
1970s and 1980s. These efforts failed to produce results, in part
because additions to the system most often were a result of
congressional politics and largesse, and proposals for removal would be
zealously resisted. [21]
Although Park Service leadership might have wished to get rid of
certain parks it considered unworthy, it never ceased to promote overall
growth of the system. Just before the 1973 report appeared, the Service
issued a long-range National Park System Plan for natural areas, a
document intended to guide expansion. The plan presupposed continued
expansion, and (inspired by the rising public interest in environmental
issues) stated that the national park system should "protect and exhibit
the best examples of our great national landscapes, riverscapes and
shores and undersea environments; the processes which formed them; the
life communities that grow and dwell therein." The plan sorted the
nation's natural history into physiographic and biological regions,
representation of which would form the basis for a "completed National
Park System." Identifying "gaps" in the system, the plan divided the
regions into types of areas. For instance, the Great Basin region,
centered in Nevada and Utah, contained areas of "mountain systems,"
"works of volcanism," "hot water phenomena," and "works of glaciers."
[22]
Ironically, at the height of the environmental movement the Service
contemplated expanding the national park system on the basis of
scientific and ecological characteristics, while only grudgingly
accepting ecological science as part of park management. The Park
Service may have thought of itself as being ecologically aware, but it
remained largely uninformed about its biological resources and oblivious
to the ecological consequences of park development and use. Its
reluctance, dating from the 1930s, to pursue recommendations of the
wildlife biologists for scientifically based preservation of natural
resources had no doubt allowed a vast multitude of both anticipated and
unforeseen changes to the parks' natural conditions changes that
might have been avoided had the Service understood the parks better.
Before passage of the Wilderness Act in 1964, the Park Service was
the only federal bureau with a mandate specifically encouraging
preservation of natural conditions on public lands; thus it might have
been expected to assume a leadership role in the emerging environmental
movement. Instead, entangled in its own history and the momentum of its
tourism and park development, the Service had to be awakened to
ecological management principles by outside critics. Ecological
management inherently required far deeper understanding of natural
resources than did scenic preservation and tourism management, a factor
that brought new pressure on a traditional Park Service. The Service's
vacillating response would stand in marked contrast to its energetic
support of law enforcement, safety, interpretation, and other matters
related to tourism.
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