Chapter 6
Science and the Struggle for Bureaucratic
Power: The Leopold Era, 19631981 (continued)
The State of the Parks
Reports
Reflecting on the National Park Service's fragmented, ambiguous
natural resource management programs, a work session on Science and the
NPS at the 1978 superintendents conference deliberated on the serious
deficiencies in scientific research. In somewhat milder language than
the National Academy of Sciences had used in 1963, the session
participants reported that there were "significant gaps" in basic
knowledge of natural resources, that "decisions are being made on the
basis of inadequate information," and that natural resource management
programs "desperately need strengthening." [157] This admission by the superintendents
appeared in an internal paper and, given past experience, could be
absorbed within the bureau without a ripple.
The next year, however, a National Parks and Conservation Association
reportthe "NPCA Adjacent Lands Survey"appeared in the winter
and spring issues of in the association's magazine. It would lead to a
major investigation of Park Service science and natural resource
management. The survey, based on an assessment of park conditions,
emphasized the great variety and potency of influences originating
outside national park boundaries and threatening the remaining integrity
of the parks' natural conditions. Such "external threats" (as they
became known) included air and water pollution, clear-cutting, and
intensive development. The association warned that the parks were being
treated like "isolated islands" and that unless the external threats
were seriously confronted, traditional efforts to preserve the parks
from within would be "rendered meaningless." [158]
As with the Leopold and National Academy reports, this catalyst for
improving science in park management came mainly from outside the Park
Service. The Service had already been made aware of perils from activity
near park boundaries, especially in cases such as alterations to the
South Florida water system that affected the Everglades and
clear-cutting adjacent to Redwood National Park. Indeed, the impacts of
logging on contiguous lands had prompted a declaration in the Redwood
National Park Expansion Act of 1978 encouraging protection of national
parks from threats outside their boundaries. [159] Heretofore the Service had never analyzed
the external threats collectively as a special type of problem for the
parks, nor had it aroused the public to their seriousness and national
scope. The National Parks and Conservation Association's 1979 study
significantly enhanced awareness of such factors, ultimately leading to
the emergence of external threats as not only an enduring part of the
Park Service's lexicon and its policy and budget deliberations, but also
as a widespread public concern.
As a result of the association's report and subsequent lobbying
efforts, Congressmen Phillip Burton and Keith G. Sebelius, ranking
members of the House Subcommittee on National Parks and Insular Affairs,
requested that the Service make its own study of the condition of the
parks. Assigned to compile the study, Roland Wauer, head of the natural
resource management office in Washington, devised a questionnaire on
park conditions and polled all superintendents. The ensuing report,
entitled State of the Parks1980: A Report to the Congress,
amplified the National Parks and Conservation Association's study and,
in addition to external threats, included data on problems originating
within the parks, such as those caused by management actions or park use
by visitors. [160] This document prompted
the most significant boost to scientific resource management in the
parks since the National Academy and Leopold reports.
Under Wauer's direction, State of the Parks was both comprehensive
and candid. Rivaling in tone the National Academy study, the report
noted that internal and external threats were causing "significant and
demonstrable damage," which, unless checked, would "continue to degrade
and destroy irreplaceable park resources." In many instances such
degradation was deemed "irreversible." Among numerous specifics, State
of the Parks revealed that "aesthetic degradation," air and water
pollution, encroachment of nonnative plant and animal species, impacts
of visitor use (wildlife harassment, off-road vehicles, and trail
erosion, among others), and park operations (including "suppression of
natural fires, misuse of biocides, employee ignorance") constituted the
most damaging types of impacts. Although many threats resulted from
activities within the parks, more than half came from external sources,
such as commercial and industrial development and air and water
pollution. [161]
In truth, the Park Service had not realized the variety and magnitude
of the threatsan indication of the deficiency of its research
programs. Seventy-five percent of the threats, the report stated, were
"inadequately documented." And "very few" parks had the baseline
information "needed to permit identification of incremental changes"
that could be affecting the integrity of natural resources. The report
cited a situation that had in fact existed since the founding of the
National Park Service. It noted that the "priority assigned to the
development of a sound resources information base has been very low
compared to the priority assigned to meeting construction and
maintenance needs. Research and resources management activities have
been relegated to a position where only the most visible and severe
problems are addressed." The document concluded with an admission that
the Service's scientific resource management efforts were "completely
inadequate to cope effectively" with the many problems affecting the
parks' resources. The Park Service, it stated, "publicly calls attention
to this serious deficiency." [162]
These remarkably critical observations represented the scientific
(rather than the traditional) perspective from within the National Park
Service, and voiced the frustrations of those who had long advocated a
strong scientific research program to inform park management. The report
received attention in the national press, which "alarmed" some
high-level officials in the Service and in the Interior Department, as
Wauer recalled. He added that, having second thoughts after they
"realized the visibility" of the report, Service leaders began "playing
down" State of the Parks because they thought it "made the National Park
Service look bad." [163]
State of the Parks made specific proposals for improving natural
resource management. These included a "comprehensive inventory" of
natural resources, programs to monitor changes in the parks' ecology,
individual park plans for managing the resources, and increased staffing
and training in science and natural resource management. But the
document contained no firm commitment by the Park Service that it would
act on the proposals. Indeed, the proposal section read as if it were
prepared by individuals who had no power to enforce change, only to
recommend it. Believing that the Park Service was vacillating, and with
no specifics on how the proposals would be implemented, Wauer feared the
Service might let the State of the Parks effort "fade away" unless
Congress required action. His subsequent contacts with National Parks
and Conservation Association representatives and with congressional
staff soon prompted a request by Congressmen Burton and Sebelius for the
Service to prepare a "mitigation report" documenting the exact steps by
which the bureau's own proposals would be realized. [164]
In January 1981, following a period of intense data gathering, the
Park Service submitted its mitigation report to Congress, as the second
State of the Parks report. Articulating a complex, ambitious plan, the
document included several significant points. As an immediate step, the
Service pledged to prepare a list of the most crucial threats, which
would receive the highest priority for funding in upcoming fiscal years.
In addition, the Park Service would complete its resource management
plans for each park by December 1981. This planning effort, long under
way but never finished, would strengthen justifications for future
budget submissions to Congress. The resource management plans were to
document the general condition of the resources, the necessary research,
and possible management actions necessary to respond to particular
problems. Finally, the Park Service promised a greatly expanded training
program, to give superintendents and other personnel a better grasp of
natural resource needs. Perhaps most important, through special training
the Service would develop a stronger, more professional cadre of natural
resource managers. [165] Together, these
basic approaches constituted the most comprehensive, systemwide strategy
yet devised by the Service to address the parks' natural resource
problems.
Subsequent to the Leopold and National Academy reports of 1963,
scientists had struggled for two decades to gain an effective role in
national park management. Handicapped by a lack of experience in
bureaucratic affairs, the scientists were the chief proponents of the
ecological point of view in the Servicebut they were confronted by
leadership that embraced traditional practices and lacked a commitment
to ecological management principles.
The Service had continued to respond to the pragmatic pressures of
park operational needs, and the science programs never received the
steady, continuing support given, for instance, to law enforcement in
the 1970s, with greatly increased funding, personnel, and training
throughout the park system. Nor did science get large, permanent
facilities and consistent high-level support, as did interpretation. The
scientists' role in the Denver Service Center's far-reaching planning,
design, and construction programs remained extremely weak. And, in
striking contrast to that of other key Service functions, the
organizational status of the scientists fluctuated for a decade and a
half before achieving long-term stability at a high level.
In the absence of sustained commitment from Park Service leadership,
a strong push from outside the Service in the late 1970s and early 1980s
finally motivated an earnest reconsideration of science in the national
parks. With the Service having always operated without a specific
science mandate from Congress, commitments made to Congress in the State
of the Parks reports served as a kind of substitutea
nonlegislative scientific mandate. To establish accountability in its
renewed effort, the Service pledged to submit progress reports to
Congress. In addition, as noted in the second State of the Parks report,
the National Academy of Sciences agreed to plan an "in-depth study" of
the Park Service's science program to undertake a repeat
performance of its 1963 study, which had been, in effect, suppressed.
The State of the Parks endeavors thus gave the Park Service, as an
internal paper proclaimed during preparation of the first report, a
"golden opportunity" to set "new directions of conservation leadership."
[166] In 1981, with prodding from
Congress, the National Park Service had a renewed opportunity to revise
its traditional priorities and develop an ecological perspective on park
management.
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