Chapter 3:
The National Park Service
I entered on duty in the National Park Service
February 6, 1931, as an assistant director (grade CAF-13) at a yearly
salary of $5,600, to head the Branch of Lands. The service at that time
occupied the third floor of the east wing of the old Department of the
Interior building, between Eighteenth and Nineteenth streets and E and F
streets, N.W., in Washington. The next two years were interesting as a
breaking-in and training period for me before the intensified activities
of the New Deal period.
The National Park Service was then approaching its
fifteenth anniversay. Its founder and first director, Stephen T. Mather,
had retired in 1929. My father had been with Mather in 1921 when he,
Horace Albright, and Secretary of the Interior John Barton Payne
organized the National Conference on State Parks, in Des Moines, Iowa.
Although I was too late to qualify as one of the devoted and capable
group known as the "Mather men," once in the service I found myself
surrounded by them. They were the core of about twenty-five people in
the Washington officea loyal, hard-working group. The thoroughness
that Mather and Albright applied to insure a good, sound organization
based on an equally sound policy, one constructed and documented to last
through the years, quickly became apparent to a new staff member.
On May 13, 1918, Secretary of the Interior Franklin
K. Lane wrote to Mather in some detail about the National Park Service
and what he hoped it would become. In that letter Lane set forth the
policy governing administration of the national park system by the new
service:
For the information of the public, an outline of the
administrative policy to which the new Service will adhere may now be
announced. This policy is based on three broad principles: First, that
the national parks must be maintained in absolutely unimpaired form for
the use of future generations as well as those of our own time; second,
that they are set apart for the use, observation, health, and pleasure
of the people; and third, that the national interest must dictate all
decisions affecting public or private enterprise in the parks.
On March 11, 1925, Secretary of the Interior Hubert
Work wrote Mather a similar letter:
Owing to changed conditions since the establishment
in 1917 of the National Park Service as an independent bureau of the
Department of the Interior, I find it advisable to restate the policy
governing the administration of the national park system to which the
Service will adhere.
This policy is based on three broad, accepted
principles:
First, that the national parks and national monuments
must be maintained un touched by the inroads of modern civilization in
order that unspoiled bits of the native America may be preserved to be
enjoyed by future generations as well as our own;
Second, that they are set apart, for the use,
education, health and pleasure of all the people;
Third, that the national interest must take
precedence in all decisions affecting public or private enterprise in
the parks and monuments.
The duty imposed upon the National Park Service in
the organic act creating it to faithfully preserve the parks and
monuments for posterity in essentially their natural state is paramount
to every other activity.
The commercial use of these reservations, except as
specifically authorized by law, or such as may be incidental to the
accommodation and entertainment of visitors, rs not to be permitted.
It is not too difficult to recognize that these
letters were carefully prepared by the team of Mather and Albright and
signed willingly and with pleasure by the secretaries of the Department
of the Interior so as to establish firmly the administrative policy in
conformity with the legislation. Secretary Lane was a Democrat, and
Secretary Work a Republican.
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The family tree shows the growth and the
different branches of the national park system. From Family Tree
of the National Park System by Ronald F. Lee (Eastern National Park
and Monument Association). (click on image for an enlargement in a new
window)
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Ronald F. Lee's Family Tree of the National Park
System, a booklet published by the Eastern National Park and
Monument Association, is valuable to an understanding of the history of
the National Park Service. Early in the Civilian Conservation Corps
period we brought Ronnie Lee to Washington as a young historian from one
of the National Park Service CCC camps. He was a very imaginative,
energetic, and intelligent person. After service in World War II he was
gradually advanced to the position of chief historian of the National
Park Service. He stimulated interest in the establishment of the
National Trust for Historic Preservation, and he worked closely with Tom
Vint in establishing the Federal Register for Historic Preservation. I
hope that some day one of his associates will put all his
accomplishments in print. In his Family Tree he traced seven
categorical lines, or types of units, that made up the national park
system as of 1972:
1. National Memorial Line, 1776
2. National Military Park Line, 1781
3. National Capital Parks Line, 1790
4. Mineral Springs Line, 1832
5. National Cemetery Line, 1867
6. National Park Line, 1872
7. National Monument Line, 1906
In Chapter 1, I briefly covered the founding and
development of the National Park Service from the perspective of the
individuals involved. Lee cogently outlined the evolution of the
national park concept as it was set down in acts of Congress:
Yellowstone National Park, established March 1, 1872,
marks the beginning of the National Park line and the center of gravity
of the chart. . . . Although Yosemite State Park, created by Federal
cession in 1864 to protect Yosemite Valley and the Mariposa Big Tree
Grove, was an important conservation milestone, Yellowstone was the
first full and unfettered embodiment of the National Park ideathe
world's first example of large-scale wilderness preservation for all the
people. The United States has since exported the idea around the
globe.
The remarkable Yellowstone Act withdrew some two
million acres of public land in Wyoming and Montana Territories from
settlement, occupancy, or sale and dedicated it "as a public park or
pleasure-ground for the benefit and enjoyment of the people."
Furthermore, the law provided for preservation of all timber, mineral
deposits, natural curiosities, and wonders within the park "in their
natural condition." The twin purposes of preservation and use, so
important and so susceptible to conflict, yet so eloquently reaffirmed
by Congress when the National Park Service was established in 1916, were
there from the beginning.
Once inventedand Yellowstone National Park was
an important social inventionthe National Park idea was attacked
by special interests, stoutly defended by friends in Congress, and
refined and confirmed between 1872 and 1916. During this period fourteen
more National Parks were created, most of them closely following the
Yellowstone prototype. Their establishment extended the National Park
concept throughout the West....
One milestone in this history is notablethe
emergence of a distinction between National Parks and National Forests.
Eighteen years elapsed after the Yellowstone Act before another scenic
park was authorized, and then threeSequoia, Yosemite, and General
Grantwere created in the single year of 1890. Yosemite and General
Grant were set aside as "reserved forest lands," but like Sequoia they
were modeled after Yellowstone and named National Parks administratively
by the Secretary of the Interior. The very next year, in the Forest
Reserve Act of 1891, Congress separated the idea of forest conservation
from the National Park idea. That act granted the President authority to
create, by executive proclamation, permanent forest reserves on the
public domain. Here is the fork in the road beyond which National Parks
and National Forests proceeded by separate paths. Within sixteen years
Presidents Cleveland, McKinley, and particularly Theodore Roosevelt
established 159 National Forests containing more than 150 million acres.
By 1916 Presidents Taft and Wilson had added another 26 million acres.
During this same period each new National Park had to be created by
individual Act of Congress, usually after many years of work.
Nevertheless, by 1916 eleven National Parks including such superlative
areas as Mount Rainier, Crater Lake, Mesa Verde, Glacier, Rocky
Mountain, and Hawaii, had been added to the original four and Mackinac
abolished, bringing the total number to fourteen and the acreage to
approximately 4,750,000.
Establishment of these first National Parks reflected
in part changing American attitudes toward nature. The old colonial and
pioneering emphasis on rapid exploitation of seemingly inexhaustible
resources was at last giving way, among some influential Americans, to
an awakened awareness of the beauty and wonder of nature....
While the early National Parks were being created, a
separate movement got under way to preserve the magnificent cliff
dwellings, pueblo ruins, and early missions discovered by cowboys, army
officers, ethnologists, and other explorers on the vast public lands of
the Southwest from plunder and destruction by pot-hunters and vandals.
The effort to secure protective legislation began early among
historically minded scientists and civic leaders in Boston and spread to
similar circles in Washington, New York, Denver, Santa Fe, and other
centers during the 1880's and 1890's. Thus was born the National
Monument idea. With important help from Rep. John Fletcher Lacey of Iowa
and Senator Henry Cabot Lodge of Massachusetts, it was written into law
in the Antiquities Act of 1906with profound consequences for the
National Park System.
The National Monument idea extended the principle of
the Forest Reserve Act of 1891 to antiquities and objects of scientific
interest on the public domain. It authorized the President, in his
discretion, "to declare by public proclamation historic landmarks,
historic and prehistoric structures, and other objects of historic or
scientific interest" situated on lands owned or controlled by the United
States to be National Monuments. The act also prohibited the excavation
or appropriation of antiquities on Federal land without a permit....
Between 1906 and 1933 three Federal agencies, the
Departments of Interior, Agriculture and War, initiated and administered
separate groups of National Monuments. In the Family Tree, these
form three National Monument lines, one for each department....
We conclude our presentation with the definition of
the National Park System written into law in 1970 by the Congress of the
United States. The General Authorities Act of that year, Public Law
91-383, signed by President Nixon on August 18, 1970, reads in part as
follows:
"Be it enacted by the Senate and House of
Representatives of the United States of America in Congress assembled,
that Congress declares that the national park system, which began with
establishment of Yellowstone National Park in 1872, has since grown to
include superlative natural, historic, and recreation areas in every
major region of the United States, its territories and island
possessions; that these areas, though distinct in character, are united
through their interrelated purposes and resources into one national park
system as cumulative expressions of a single national heritage; that,
individually and collectively, these areas derive increased national
dignity and recognition of their superb environmental quality through
their inclusion jointly with each other in one national park system
preserved and managed for the benefit and inspiration of all the people
of the United States; and that it is the purpose of this Act to include
all such areas in the System and to clarify the authorities applicable
to the System."
The title of Ron Lee's Family Tree of the National
Park System is apt, for it suggests more than a genealogy. Through
the years the people of the National Park Service have often been
referred to as the "Stephen T. Mather family," and they have, as Steve
Mather did, devoted time and effort over and above their official duties
to protect and manage the National Park System. (When I say "the people
of the National Park Service," I include spouses and children as well as
employees.) I am certain that they inherited this fondness for their
assigned responsibilities as the protectors of the nation's great
heritage of natural and human history from those who pioneered in the
establishment of the first national park, Yellowstone, and those who
subsequently developed a chain of such reservations for recreational use
or cultural preservation throughout the country.
Mather contributed much of his private fortune and
all of his energies the last eleven years of his life to organizing the
Park Service, formulating policies, and developing the park system.
There are several instances of other people with private means who
followed his example. Among them was George Wright, a man of independent
fortune and a dedicated worker in the service. He served without salary
for a while and paid the salaries of some of his staff when Congress
failed to make funds available. Another was Roger Toll, an engineer from
Denver. He followed Horace Albright as superintendent of Yellowstone and
field assistant to the director when Albright moved to Washington to
devote his full time to assisting Mather. Both Toll and Wright met their
tragic deaths in an automobile accident in the Southwest while studying
proposed international park sites along the Mexican boundary.
Among the many others whose generosity benefited the
Park Service, I should include George B. Dorr, superintendent of Acadia
National Park in Maine, a man of considerable means who spent much of
his own money buying land for the park. John D. Rockefeller, Jr., also
spent a lot of money buying land for Acadia, and the joke of the time
was that Superintendent Dorr was trying to outdo Rockefeller. When the
time came for his retirement as superintendent of the park, he had spent
all of his substantial fortune and had only two old family homes left.
Representative Cramton, of Michigan, then chairman of the Subcommittee
on Appropriations for the Department of the Interior, was apprised of
Dorr's circumstances. He persuaded Congress to write into the
appropriation act a specific amount each year for the salary of
Superintendent Dorr of Acadia National Park. Dorr later willed his
holdings to the government, and the old family home, with one-quarter
mile of waterfront, became a part of Acadia National Park.
This deep feeling of concern and responsibility for
the parks continues today, and while there may be no individuals of
comparable wealth in the service at the present time, the Mather spirit
prevails: complete dedication and devotion to the protection of the
great scenic, historic, and scientific areas of the national park system
for the use and enjoyment of the people.
Mather may not have originated the idea of providing
park visitors with interpretation of what they saw in the national
parks, but he believed in it strongly and adopted this public service as
one of the cornerstones of his overall policy. The concept evolved over
the years into the establishment of a strong ranger force responsible
for the protection and informed use of the national parks. This force
grew, and as conditions changed and gradually demanded new skills and
specializations in protection and interpretation, its members became
classified as ranger naturalists, ranger historians, and a ranger
protection force. The early park buildings contained what were called
museums. These were gradually changed until, during Mission 66, they
became focal points for all park activities and were named visitor
centers. Today almost every area of the system has a visitor center
where information concerning the area's indigenous features is available
to the public.
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The Washington office staff of the
National Park Service in 1932. Left to right: Assistant Director
Conrad L. Wirth, Associate Director Arno B. Cammerer, Chief Clerk R. H.
Holmes, Director Horace M. Albright, Assistant Director Harold C.
Bryant, Senior Assistant Director A. E. Demaray, Assistant Director G.
T. Moskey, and Editor Isabelle F. Story.
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Not all of these aids to park use are paid for by tax
dollars. Since the beginning of the service the rangers, and to a great
extent their families, have been on duty around the clock. In the
Mather-Albright era the larger parks formed natural history associations
that, under agreements with the service, undertook to prepare, print,
and distribute literature for the park visitor. They charged nothing for
their time or efforts, and any profits from sales were used to prepare
additional material and buy needed equipment for the interpretive
program. Even the neighbors around the parks joined in and assisted
these associations with their activities (see chapter seven).
The executive roster of the National Park Service at
the beginning of the New Deal, March 4, 1933, was about the same as when
I entered on duty in 1931. Director Albright's right-hand man was Arno
Cammerer, assistant director from 1919 through January, 1926, and
associate director from 1926 and 1933. Arthur Demaray was the senior
assistant director in charge of general administrative matters, having
under his jurisdiction personnel, finances, and so on. He had
transferred to the National Park Service in the early twenties as a
draftsman and went on to become the editor of publications, then
assistant director, and then senior assistant director in 1929. George
A. Moskey, assistant director, was the service's lawyer and handled
legal matters, including legislation. In those days the bureaus had
their own attorneys rather than having to depend on the solicitor of the
Interior Department, as is now required. Harold C. Bryant, a naturalist,
was the assistant director in charge of the Branch of Natural History
and Interpretation. He had been in the field for a number of years and
had transferred to the Washington office in 1930. Hillory A. Tolson was
Moskey's assistant. In October, 1933, when Albright left to become
vice-president and general manager of the U.S. Potash Company, Cammerer
stepped up to be director, Demaray became associate director, and Tolson
was promoted to assistant director in charge of the Branch of
Administration. Isabelle F. Story was the editor for the National Park
Service and supervised the preparation of informational bulletins and
other printed material. Charles L. Gable was head of the Concessions
Division, and R. M. Holmes was chief clerk.
As assistant director in charge of the Branch of
Lands, I had responsibility for all land matters, including
investigation, study, and reporting on proposed new areas for the park
system, as well as land acquistion. Superintendent Roger Toll of
Yellowstone was the principal pivot man for most of the field
investigations of proposed new parks and monuments. I had a secretary
and two draftsmen in my Branch of Lands, and besides land maps we
prepared maps used in the publications issued for park visitors. The
national highway system of the western states wasn't anything like it is
today, and our Park-to-Park Highway Map of the western parks was
always in demand.
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