Whitman Mission Administrative History

Chapter Four:
ADMINISTRATION

CULMINATION OF DEVELOPMENT: WILLIAM J. "JOE" KENNEDY 1956-1964

If 1950-1956 are considered the years of modest development progress, then 1956-1964 should be considered the years of major development progress; major progress not only in terms of construction projects but in terms of overall park accomplishments. By 1964 the Whitman Mission National Historic Site supported a more complex administrative structure, vigorous historical research, and active community relations. Never before had such diverse accomplishments occurred during one administration. The following examines the reasons for these changes and the people responsible for them.

Administrative Structure

In response to new projects and the increased workload, the staff increased from one permanent employee in 1956 to five in 1964: the superintendent historian, administrative assistant, maintenance man, and caretaker. In addition, two laborers, three rangers, and two clerks worked part time. Like Superintendent Weldon, Superintendent Kennedy was a jack-of-all-trades and required the same of his staff. Historian Erwin Thompson remembers that his responsibilities varied:

We did everything. During the week . . . [caretaker] Merlin Warner took care of the outdoors--cutting grass, picking up trash, whatever. On Saturday and Sunday I had to do it . . . .

Joe Kennedy . . . insisted I learn everything--budget, interpretation, and just everything that was going on at the park. He insisted that his staff know what was going on . . . . [67]

In spite of the shared duties, there was a clearer distinction of work responsibility among the administrative, maintenance, and historical divisions by 1964. Caretaker Merlin Warner was "pressed into emergency guide duty" [68] during the previous administration, but such occasions were less frequent and less necessary at the end of Kennedy's term due to the enlarged staff. In addition, responsibilities that were previously the superintendent's were delegated to the staff, freeing Kennedy to focus on the major development projects finally coming to fruition after 20 years.

Important structural changes occurred at the regional level, as well. On July 1, 1956, "Whitman National Monument was decoordinated from the supervision of the Superintendent of Mount Rainier National Park [reporting instead] directly to the Regional Director of Region Four." [69] The Regional Director was Lawrence C. Merriam until 1964 when Edward A. Hummel took the job.

Partial credit for the monument's successful administrative transition and development project belongs to Joe Kennedy. Kennedy entered the National Park Service at Grand Canyon National Park in 1939. After 10 years he moved to Iowa where he was Effigy Mounds National Monument's first superintendent before transferring to Bryce Canyon. Kennedy remained at Bryce Canyon until he began his superintendent assignment at the Whitman National Monument, January 6, 1956. After 8-1/2 years he was transferred to Lava Beds National Monument in 1964. Kennedy currently resides in California.

The superintendent's role changed drastically from 1956-1964 due to the new demands of Mission 66. Unlike his predecessor Bob Weldon, who was akin to a historian and groundskeeper, Kennedy's focus was public relations. Given Kennedy's interest in the community--he was First Aid Chairman of Walla Walla County Red Cross, and a member of the Chamber of Commerce and Kiwanis, just to name a few--promoting the Whitman National Monument was a natural extension of this involvement. However, his lectures were not about the Whitman story but rather the National Park Service in Walla Walla. Unlike Superintendent Weldon who gave slide presentations on national parks, Kennedy lectured that increased visitation to Whitman Mission sparked Walla Walla's economy. He also promoted Mission 66 and reassured frustrated Walla Wallans that development was truly underway. At a time when every new change at the park was closely scrutinized, Kennedy's involvement with local people and representation of the National Park Service generated support for the park and its programs. Kennedy remembers promoting the National Park Service: "I didn't particularly care for missionaries, but I wanted the National Park Service to be thought of with respect and with a measure of affection. I hope I succeeded." [70]

Indeed, a major reason for the park's successful development from 1956-1964 was Superintendent Joe Kennedy.

Principal Accomplishments: 1956-1964

In contrast to all previous years, 1956-1964 was a time of almost frantic development. Stimulated in 1958 by the passing of Public Law 85-388 authorizing 50 additional acres for the Whitman National Monument, long-delayed construction projects began in earnest. The following list highlights 8 years of major accomplishments:

1958:	Public Law 85-388 passes, Congress authorizing fifty additional acres for the Whitman National Monument.
1960:	Frazier farm (46.71 acres) purchased.
1960-1961:	Search for Blacksmith Shop and Alice Clarissa's grave.
1961-1962:	5.6 acres for access road right-of-way donated by Walla Walla County.
1962-1963:	Old county road closed; Oregon Trail restored.
January 1, 1963:	Name changed from Whitman National Monument to Whitman Mission National Historic Site.
1963:	Residence, visitor center, and utility building constructed.
June 6, 1964:	New Facilities dedicated.

Twenty years to plan, eight years to complete: the Whitman Mission National Historic Site of June 1964 looked almost entirely different from the Whitman National Monument of two decades earlier. An important impetus to this change occurred on just one day when the park nearly doubled in size from 45 acres to 98.15. This sizeable accomplishment deserves attention as do those people responsible for its occurrence.

The Frazier Farm: Last Obstacle to Development

In June 1956, after consulting with Superintendent Kennedy, Glen Frazier's son Lyle offered to sell approximately 31 acres of his property, known as Tract 11, to the National Park Service for $50,000.00 [71] (see map, Appendix H). One year later, Acting Regional Chief of Operations B. F. Manbey reported that the National Park Service preferred the entire tract. [72] To avoid splitting their property, the Fraziers agreed to sell their entire Tract 11, 46 acres, for the same price [73] (see map, Appendix I).

In response to this offer, Assistant Director of the National Park Service Jackson E. Price authorized Regional Director Lawrence C. Merriam "to negotiate an option at the best price obtainable, but not to exceed $38,000.00." [74] When the Fraziers refused to accept the $38,000.00 offer, Regional Director Merriam suggested offering $40,000.00 for the property. [75] Assistant Director Price agreed with the proposal but also recommended that "if the Fraziers will not give us an option to purchase the property for $40,000.00, we see no alternative to recommending condemnation." [76] Indeed, shortly thereafter the government filed for condemnation primarily because mineral rights belonging to former owner Dr. Cowan were discovered, preventing a simple title transfer. The National Park Service had no choice other than to refer the matter to the Federal court. Therefore, on August 3, 1959, suit was filed in the U. S. District Court for Eastern District of Washington, Southern Division for the condemnation of the Frazier Tract 11 for addition to Whitman National Monument. At the same time a Declaration of Taking of Frazier Tract 11 was filed with the taking to be effected by or before January 1, 1960. [77]

In 1959, Glen Frazier moved from Walla Walla so subsequent correspondence occurred between his lawyer, Mr. Mininick and Assistant U. S. Attorney Ronald H. Hull. While each side reevaluated their appraisals before the court hearing, Superintendent Kennedy discovered that the mineral rights belonged to the United States according to the patent issued to the American Board of Commissioners for Foreign Missions in 1926. [78] This new information affected the property value so in May 1960, Lyle Frazier visited Superintendent Kennedy and offered to settle out of court for $45,900.00. [79] Kennedy reported that Attorney Hull responded: ". . . he will come down still further rather than go to court." [80] Just as predicted, the Fraziers dropped their offer again, two months later. In response, Regional Director Merriam teletyped to Director Wirth:

Assistant U. S. Attorney Whitaker handling case advises by letter Frazier's attorney has offered settlement at $44,000.00. Whitaker believes offer of settlement should be accepted, as award by trial jury likely to be higher. [81]

Chief of Lands Donald E. Lee agreed with this recommendation, [82] so on October 28, 1960, Regional Chief of Lands B. F. Manbey reported that "the case did not go to trial and settlement was reached at $44,000.00" [83] for the 46.71 acres of land. Four years of negotiations between the Fraziers and the National Park Service culminated in one day, doubling the size of the park and enabling the long-awaited development plans to proceed. Because of the advice of Assistant United States Attornies Ronald H. Hull and Ronald F. Whitaker, and the perseverance of Superintendent Kennedy, the plans first suggested by Senior Archeologist Nusbaum and Dr. Aubrey Neasham in the 1940s were realized--the land necessary for development of a visitor center, superintendent's residence, and utility building belonged to the Whitman National Monument.

New Approach Road

From 1947-1956, park personnel agreed that the monument's proposed entrance road should run in an east-west direction, north of the Great Grave (see map, Appendix G). Then, in April 1956, Walla Walla County Engineer B. Loyal Smith proposed a new access road aligned south from Highway 410 (later Highway 12) through the Frazier's Tract 11 [84] (see map, Appendix J). Smith assured Superintendent Macy that the County Commissioners "would be very willing and agreeable to the construction and acquisition of this necessary right-of-way if the Park Service could find some way to finance the necessary new bridge over the creek." [85] On June 7, 1956, Superintendent Kennedy, Augden, and Acting Mount Rainier Superintendent Curtis K. Skinner examined Smith's proposal and suggested a slight road realignment through Frazier's Tract 10 [86] (see map, Appendix K).

The next month, from August 1-9, Regional Landscape Architect Thomas C. Carpenter and Landscape Architect Alfred C. Kuehl from Washington, D. C., inspected the monument grounds and proposed the alignment that exists today:

We met with County Engineer B. Loyal Smith and reviewed County road problems relating to access to the Monument. Mr. Smith indicated his concurrence in our suggestion for a road route to extend southerly from Highway 410 along the west boarder of Tract 10 of the Frazier lands. [87] (see map, Appendix L)

Interestingly, this alignment was first suggested twenty years earlier by Walla Walla Trust Foundation's T. C. Elliott. According to Regional Historian Russell C. Ewing, Elliott proposed two road locations, one of which was the same route selected in 1956 [88] (see map, Appendix C).

The location confirmed, National Park Service Director Conrad L. Wirth advised Regional Director Merriam of the National Park Service position regarding the proposed road:

We would prefer to place the entire right-of-way under Federal ownership and, by means of an agreement, the County would construct the approach ramp and we would be responsible for the cost of the construction of the bridge over Mill Creek . . . .

It is hoped that our design requirements for this road--with regard to such factors as width of right-of-way, control of access, elimination of roadside advertising and commercial development, and adequate insulation on U. S. Highway 410 to provide an attractive access road entrance to the Monument--will not be too high for the County to consider. It would be well, too, to try to obtain the agreement of the County to assume responsibility for the maintenance of the full length of the proposed road after construction. [89]

The Walla Walla County Commissioners agreed to these stipulations so the National Park Service signed a 20-year agreement with the Board of County Commissioners on August 28, 1961. [90] Although this formal document expired in 1981, both the park and the county still recognize this agreement which gives road ownership to the Federal government and maintenance responsibility to the county.

In spite of the agreement, development funds were allocated for archeological excavations that year to ensure that Alice Clarissa's grave did not lie in the location of the proposed road. While road construction awaited the excavation results, controversy arose over its impending construction. Property owners near the mission objected to the rezoned "Parkway" status which prevented all commercial activity for 100 feet on each side of the proposed road. Historian Erwin Thompson remembers one heated public hearing in which one man

attacked the Park Service, in general and Superintendent Joe Kennedy, in particular. I got so angry that I jumped up out of my seat and tried to defend Joe Kennedy, and the man said, "We can't hear you. Come on down front and speak in the microphone." By that time I was cooling off but I had to go down and say it all over again. [91]

The protests of the neighbors and others were in vain because the County Commissioners agreed to the "no commercial development" provision in their August 1961 agreement with the National Park Service. The County finally dropped the road's "Parkway" zoning prior to 1980 as part of a county-wide zoning consolidation effort; the historic scene is not threatened because the Federal government will not allow commercial activity along the road. In a related issue, College Place residents protested closing the old county road and converting it to the Oregon Trail because "a dead-end road, stopping near the Monument, would virtually shut off the area to Walla Walla College students and residents of the community." [92] Rather than a dead end road, they suggested a turnaround and parking area, and a walkway through that section of the park. [93] A February 20, 1962 Union-Bulletin article reported that Superintendent Kennedy "promised there would be a turnstile through the fence . . . ." [94] By May 1963, a "walk-through" stile was built. [95]

After the road controversies subsided and funds materialized, a contract for the Mill Creek bridge was awarded to Hans M. Skov Construction Company of Yakima on May 21, 1962. [96] The bridge, designed by B. Loyal Smith and constructed under his supervision, was completed October 8, 1962. [97] By June 1963, the new park approach road was paved [98] and by May 8 the old county road permanently closed. [99]

After 22 years of deliberation, the new access road was completed. Proposed locations for the road varied over the years--from the Church Tract in 1941 to the Great Grave in 1950. Several people deserve credit for finally determining the best location for the road and completing the project. In 1936, Regional Historian Ewing concurred with T. C. Elliott's suggestion to build the road from Highway 410 along the Frazier Tract 10. The enthusiastic and cooperative B. Loyal Smith not only reminded National Park Service employees of this option, but designed and built the road and bridge. Finally, Regional Landscape Architect Carpenter and Washington, D.C., Landscape Architect Kuehl deserve credit for making the final decision in 1956. Thus, by 1963 the Whitman National Monument had more land, a new road, new archeological excavations, and, by January of that year, a new name: The Whitman Mission National Historic Site. Building construction, by far the most visible change, occurred that same year, as well.

Mission 66: Long-Term Construction Progress

Whitman National Monument's delayed development was a typical problem of National Park Service areas after World War II. National Park Service administrators struggled for ten years trying to reorganize their parks after the war; Superintendent Weldon's administration is an example of this effort. When conditions had not improved by 1955, National Park Service Director Conrad L. Wirth responded by initiating a long-term national recovery program for the National Park Service called Mission 66. This ten-year rehabilitation program was designed to improve facilities, staffing, and resource preservation at all areas in time for the 50th anniversary of the Service. [100] Congress provided an estimated $786 million for the ten-year program. [101] The Whitman National Monument development project cost $451,300.00. [102] Assigned to the Whitman National Monument the same year the Mission 66 program began, Superintendent Kennedy had as his primary responsibility overseeing Mission 66 development at Whitman Mission. After Public Law 85-388 provided the needed land for construction in 1958, new project ideas flowed from administrators in anticipation of the impending development.

The monument's "Mission 66 Prospectus" planned for superintendent's and historian's residences. On May 9, 1958, Superintendent Kennedy recommended new locations for these buildings. Rather than locating them "easterly of the Frazier residence and a little to the north of the present Monument boundary" [103] Kennedy suggested a more visible location to deter vandalism: "I feel that if the residences are to be constructed they should be placed in sight of the Mission Grounds . . . . I suggest a location near the present Frazier buildings." [104] Rather than constructing a combined utility building and visitor center: "It might be better to have the utility building separate . . . to place it a little east of the residence out of sight of the Mission Grounds." [105]

Regional Director Merriam concurred, and these revisions were incorporated into the park's master plan.

National Park Service Director Wirth visited Whitman National Monument in 1960 to check on the park's Mission 66 progress. Certainly a noteworthy occasion, Director Wirth's visit was made more memorable when, at a reception given by Superintendent Kennedy and his wife, "[Director Wirth] helped catch the sheep that jumped over the fence into our yard while we were having cocktails and a picnic dinner." [106] When not busy rounding up sheep, Director Wirth suggested a few changes to the park's development plan. He objected to the visitor center's proximity to the mission site and the parking area's proximity to the Great Grave:

Mr. Wirth suggested that the visitor center be moved northward approximately 400 feet and one parking area designed to serve both visitor center and the Monument . . . . A trail from the monument [on Shaft Hill] southward to the historic Oregon Trail was also suggested. This would permit a circulatory walk to all the important features from the one parking area . . . . [107]

Director Wirth's suggestions and those of Regional Director Merriam and others were incorporated into the "General Development Plan" and approved by Superintendent Kennedy, Regional Director Merriam, Chief of Design and Construction Vint, and Director Wirth on August 31, 1960 (see plan, Appendix M). This layout combined with the master plan narratives written by Kennedy provided the basis for construction from 1961-1963.

Construction: First Phase

Construction proceeded in three main phases. During the first phase, a contract for roads, trails, parking areas, and utilities was awarded to Edward Mardis of Walla Walla in 1961. [108] Supervised by Herbert Quick, Project Officer from the Western Office of Design and Construction, San Francisco, and assisted by Thomas L. Weeks, Landscape Architect from Washington, D. C., several projects were completed by June 1962. The parking and picnic areas were constructed, two septic tanks installed, a 50,000-gallon reservoir built on Shaft Hill, the irrigation ditch and millpond dikes were restored, and the millpond filled with water for the first time since the Whitman era.

Construction: Second Phase

The second phase of construction began in 1963 and included two contracts--one for the visitor center and utility building, the other for a three-bedroom residence. Two invitations to bid were issued for the visitor center since the lowest bid was 10 percent over the government estimate. [109] Both contracts were finally awarded Mr. Mardis and supervised by Project Supervisor Robert F. Smith. [110] After eight months of construction, the visitor center opened to the public on September 28, 1963. [111] This building also provided administrative offices, previously located in the temporary museum in 1956, in a house trailer near the temporary museum from June 1957 to September 1961, and finally in the Frazier residence in 1962. While the new visitor center finally alleviated the cramped office space problem, the new utility building, constructed from January-May, solved many long-term storage problems. [112]

In 1961, W. A. Bailey of Walla Walla removed the Frazier farm buildings in preparation for construction of the three-bedroom residence. [113] The residence was built from March-May 1963; Superintendent Kennedy moved in on May 29. [114] The next step was remodeling the old Frazier residence into the historian's residence, but in 1964 the decision was made to forgo remodeling and, instead, remove it altogether. In April 1964, the house was sold to Mr. W. F. S. Nelson of Walla Walla and removed by May 28. [115] By the end of 1964 the historian's residence was planned but not built.

Construction: Third Phase

The third and final phase of development included a landscaping contract awarded in 1963 to Staneks, Incorporated, of Spokane. [116] Supervised by Project Supervisor Thomas L. Weeks, Washington, D. C., these jobs included planting lawns around the visitor center, laying trails and sidewalks, installing sprinklers and restoring the Oregon Trail. [117] When Staneks, Inc., obliterated the temporary museum in October 1963 [118] its destruction symbolized the passing of an era in facilities used to manage the Whitman Mission National Historic Site.

Whitman Mission National Historic Site's Mission 66 program culminated on June 6, 1964, with the dedication of the visitor center. More than one thousand guests attended the ceremonies in a tribute to the successful development. The dedication culminated not only the work of Director Wirth, Superintendent Kennedy and the mission and regional staff, but included the work of all those who since 1941 strove to make the Whitman Mission development project a reality.

Historical Research and Interpretation

Although certainly an important aspect of Kennedy's administration, construction was not the only significant accomplishment during 1956-1964. Important historical research was accomplished during these years due to Park Historians George Tays, Jack Farr, Erwin Thompson, and John Jensen. Historian Tays mapped the building sites and Historian Farr began writing the museum prospectus and historical handbook, both of which were completed by Historian Thompson in addition to his own study of the mission house kitchen. Thompson remembers that lack of funds and resources hindered research so he had to make do with what they had. He remembers, "The two colleges were our greatest help. Then we got the [Whitman-American Board of Commissioners for Foreign Missions correspondence] microfilm from Yale University and that helped a lot." [119] These resources were especially useful when the museum was constructed:

[The museum planners] . . . would send up requests--"What ages were the . . . Sager children?" . . . "What kind of clothes did they wear at that time?" and so forth. Then I would busy myself around here, Whitman College and sometimes go up to Pullman and try to find the answers for their questions, and that varied from minute research to some fairly complex jobs. [120]

In addition, artifacts for the museum were acquired during these years, including Elizabeth Sager's "papoose" doll and a lock of Narcissa Whitman's hair. Aside from their research and writing, each historian guided tours and interpreted the site for visitors until 1964 when tours were phased out and the site became truly self-guiding. In no way should the years 1956-1964 be considered only in terms of construction, but rather, in terms of development which encompassed important historical research and interpretation, as well.

Planning, research, changes in the park's administrative structure and physical appearance were all achievements of 1956-1964. "Exciting" was the word Erwin Thompson used to describe those years. "We knew great things were happening," he said. [121] Today Kennedy credits their success to "a good, strong program worthy of support" [122] and to his staff, Regional Directors Lawrence C. Merriam and Edward A. Hummel and their staffs, and finally Walla Wallans Allen Reynolds, B. Loyal Smith, and Vance Orchard. Kennedy also remembers his own place in those busy years:

For me, Whitman was a real challenge. It was so bleak when we arrived there that January day in 1956 . . . and Whitman was so beautiful and kind of shining when we left eight and one-half years later! I had worked my tail off, but I had enjoyed it. Some of the fights had been bitter but we had always won, always, because we were always on the right side. [123]

Or as Superintendent Stickler said of the park's development in 1966, "It was a good 'package plan' rather than a piecemeal operation." [124] The accomplishments of 1956-1964 changed the park's direction forever. The process of development was finished and the process of management begun. As Park Historian John Jensen aptly wrote in 1965, "[These accomplishments] marked the start of a new era in operation of the Park--a change from a program of research and construction to one of interpretation and maintenance." [125] How the next administration coped with these changes and new responsibilities is the subject of the following section.