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NPS and ANILCA
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Contents
Foreword
Preface
NPS in Alaska Before 1972
ANCSA
Response to ANCSA, 1971-1973
ANILCA
NPS in Alaska, 1973-1980
Epilogue
Recommendations
Bibliography
Appendix
Endnotes
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The National Park Service and the
Alaska National Interest Lands Conservation Act of 1980: Administrative History
Endnotes
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Chapter
Five
1. Keith Trexler to Ted Swem, February 16, 1974, ARO
Goals, Denali Keyman Files, Box 28, Alaska Task Force Files, RG 79,
FARC, Seattle.
2. Al Henson to Ted Swem, March 5, 1974, Alaska
Organization - NPS, Swem Papers; Alaska Task Force Organization, April
12, 1974, History of ATFO, Henson Papers, Mancos; 'Meeting Regarding
Support Data for Alaska Areas," May 7, 1974, W-38, Box 20, Alaska Task
Force Files, RG 79, FARC, Seattle; Al [Henson] to Ted [Swem], [February
1974], Box 3, Ibid.; ATFO Employees as of 2/1/75, NPS Personnel -
ARO, Henson Papers, Mancos. Professionals were Project Leader (Henson),
Management Assistant (Keith Trexler), Park Planner (John Kauffmann),
Landscape Architect (Bailey Breedlove), Public Information Officer (Bob
Belous), and Special Research Analyst (Amy Paige).
3. Al [Henson] to Ted [Swem], [February 1974], A-94,
Box 3, Alaska Task Force Files, RG 79, FARC, Seattle; Interview of Al
Henson and Theodor R. Swem, June 7, 1973; Ron Walker to Assistant
Secretary, FWP, October 24, 1974, Alaska Organization, Swem Papers.
Henson's concerns were shared by a number of people. On March 7,
1974, for example, Celia Hunter wrote Theodor Swem, warning him that the
Service's efforts to promote its proposals in Alaska were far inferior
to other agencies, and would serve to convince people that it was not
capable of managing the new areas. Celia Hunter to Theodor R. Swem,
March 7, 1974, Alaska Organization, Swem Papers.
4. Gary Everhardt to Directorate, May 6, 1975,
Alaska Task Force, A-94, Box 2, Alaska Task Force Files, RG 79, FARC,
Seattle; Interview of William E. Brown, by Frank Williss, November 10,
1983; Interview of Donald Follows by Frank Williss, November 3, 1983;
Organizational Chart - Alaska Task Force, [1975], History of ATFO,
Henson Papers, Mancos; Donald S. Follows, "Conceptual Interpretive Plan
for Proposed Park Lands in Alaska," May 10, 1977, D-18, Planning,
Programs, and Master Plans, Box 6, Alaska Task Force Files, RG 79, FARC,
Seattle; Goals - Yukon-Charley Keyman, [1976], AAO: Goals, etc., Denali
Keyman Files, Box 28, Ibid. Originally other keyman were Fred
Eubanks (Lake Clark), John Kauffmann (Gates of the Arctic), Mark Malic
(Mount McKinley), Gerald Wright (Wrangell-St. Elias), Ralph Root (Katmai
and Aniakchak), and Robert Nichols (Cape Krusenstern).
Additionally task force members, particularly Al
Henson, Bob Belous and Stell Newman, along with people like Zorro
Bradley and Ray Bane were called back to Washington from time to time to
lend their expertise on various issues.
5. Sketch of organization of Alaska Task Force,
[1975], History of ATF, Henson Papers, Mancos; Biographical Sketches -
ATF, November 12, 1976, Box 1, NPS WASO Files, ANILCA Papers, USDI; Roy
Sanborn to Project Leader, March 9, 1976, NPS Personnel - AK, Henson
Papers, Mancos.
The Cooperative Park Studies Unit, which was directed by Zorro
Bradley, is discussed on pp. 258-59.
6. The Fish and Wildlife Service (formerly
BSF&W) employed the opposite approach in these years, using its
existing Alaska office, supplemented by people detailed from the "Lower
48". That approach proved somewhat cumbersome, and that bureau later
established a separate ANCSA office. Interview of William Reffalt,
December 9, 1983.
7. Interview of John Cook, January 26, 1984;
Interview of Stanley Albright, June 29, 1984; Interview of John Rutter,
May 16, 1984; John Rutter to George B. Hartzog, Jr., June 19, 1972 and
John C. Rumburg to John Rutter, June 29, 1972, ANCSA Implementation,
April-December 1972, Swem Papers; John Rutter to Associate Director,
Legislation [Richard Curry], June 21, 1974, Ibid.; Al Henson to
Dr. Curry, June 26, 1974, ANCSA Implementation, 1974, Ibid; John
Rutter to Deputy Director, October 7, 1974, Denali Keyman Files, Box 30,
Alaska Task Force Files, RG 79, FARC, Seattle.
For a discussion of relationship between the Park Service and the
Department of the Interior in the 1970s, see Ronald A. Foresta,
America's National Parks and Their Keepers (Washington, D.C.:
Resources for the Future, 1984), pp. 84-87.
8. Interview of John Rutter, May 16, 1984.
9. Franklin K. Lane to Stephen Mather, May 13, 1918.
Quoted in Unrau and Williss, Expansion of the NPS, p. 27.
10. John Kauffmann, "Noatak," The Living
Wilderness vol. 38 (Winter 1974-75), p. 18; Interview of John
Rutter, May 16, 1984. See also, Foresta, America's National Parks and
Their Keepers, pp. 112-15.
11. This view comes from a number of interviews
with Alaska Task Force personnel, as well as former PWW Regional
Director Rutter, former Alaska State Office Director Stanley Albright,
and former Alaska Regional Director, John Cook. Cook, NPS Associate
Director in the mid-1970s, recalls spending a considerable amount of
time mediating disputes between the two offices.
12. In general the Advisory Board supported the
Services's proposals, despite previous comments to the Alaska press that
they would recommend that some of land earmarked for National Parks
should be managed for other uses. Anchorage Daily News, June 21,
1975, A-16, Advisory Board, Box 1, Alaska Task Force Files, RG 79, FARC,
Seattle.
13. Melvin M. Payne [Chairman, Advisory Board on
National Parks] to Secretary of the Interior, April 24, 1974, Advisory
Board, NPS WASO Files, ANILCA Papers, USDI.
14. Peter C. Murphy, Jr., Steven Rose, et.
al. to Stanley K. Hathaway, confidential telegram, June 28, 1975,
Advisory Board, Box 2, NPS WASO Files, ANILCA Papers, USDI.
15. Ibid.
16. J.L. Norwood to Director, December 4, 1975,
Swem Correspondence, January 1975-December 1976, HFC; Gary Everhart to
Assistant Secretary, FWP, December 15, 1975, Advisory Board, Box 2, NPS
WASO Files, ANILCA Papers, USDI. Norwood's audit included a thorough
examination, and subsequent dismissal, of board member Steven Rose's
charge that a conflict of interest, or at least a compromise of position
existed in the Task Force's acceptance of NANA Regional Corporation's
offer of $5,000-10,000 in manpower and equipment toward a study of
subsistence for the Kobuk Valley.
17. Al [Henson] to Ted [Swem], [February 1974],
A-94, Box 3 Alaska Task Force Files, RG 79, FARC, Seattle; Interview of
Henson, June 6, 1983.
18. Ron Walker to Assistant Secretary, FWP, October
25, 1974, Alaska Organization, NPS, Swem Papers; Comments on New
Alaska Area Office Organization and Operation (Presented by members
of Park Planning Staff,) May 10, 1975, Denali Keyman Files, Box 30,
Alaska Task Force Files, RG 79, FARC, Seattle; "Statement for Gary
Everhardt on changes in Alaska Organization", October 4, 1975, Advisory
Board, Box 2, NPS WASO Files, ANILCA Papers, USDI; Alaska Area Office,
Alaska Task Force - Permanent Personnel, 12/75, NPS Personnel-AK, Henson
Papers, Mancos; Russell Dickinson to Bryan Harry, June 16, 1976,
Proposed Areas, 1976-77, Park Files, Denali National Park/Preserve.
19. "Statement for Gary Everhardt on changes in
Alaska Organization," October 4, 1975; Gary Everhardt to Steven L. Rose,
December 17, 1975, Denali Keyman Files, Box 27, Alaska Task Force Files,
RG 79, FARC, Seattle; Bob Utley to Bryan Harry, February 26, 1976, A-16,
Advisory Council, Box 1, Ibid.; Interview of Bryan Harry by Frank
Williss, November 14, 1983; Bailey Breedlove to All Task Force
Personnel, October 7, 1975, Box B, Old Federal Building Warehouse,
ARO.
20. Ted Swem to Gary Everhardt, October 4, 1975,
and Special Assistant to the Director [Swem] to Director [Everhardt],
October 28, 1975, October 28, 1975, Alaska Organization, Swem Papers; Al
Henson to Gary [Everhardt], March 26, 1976, doc. no. 002178, ANILCA
Papers, USDI; Director, NPS, to Assistant Secretary, FWP, May 25, 1976
[draft], doc. no. 002204, Ibid.; WASO Directorate to Acting
Assistant to the Director for Alaska, July 1, 1966, A-58, Proposed
Areas, ARO Central Files, Inactive, ARO.
21 . Bryan Harry, for example, felt that such an
action would be unnecessarily expensive, and would make the Park Service
in Alaska more vulnerable to political pressure. Interview, November 14,
1983.
22. [Roger J.] Contor, Discussion PaperFuture
Administrative Plans for Alaska," March 9, 1978, Box 40, NPS WASO Files,
ANILCA Papers, USDI; Juanita Alvarez, Notes, Alaska Planning Meeting,
May 19, [1978], Box 18, Ibid.; Alaska Planning Meetings, May 11,
1978, Ibid.; Bryan Harry to Roger Contor, June 6, 1978, Box 1,
Ibid.
23. Interview of John Cook, January 26, 1984;
Interview of Douglas Warnock, August 6, 1984. Time and again, the
political volatility of the Alaska situation had forced the NPS director
to make decisions without consulting subordinates in the line
organization. Evidence suggests that Director Whalen's decision was made
without informing the Washington Office or Pacific Northwest Regional
Office. See Assistant to the Director for Alaska, September 20, 1978,
Box 89, NPS WASO Files, ANILCA Papers, USDI and Talking Paper for
November 6 Meeting with Mr. Herbst, draft, Contor, 11/5/78,
Ibid.
24. Interview of John Cook, Jan. 26, 1984;
Interview of Douglas Warnock, August 15, 1984. Janet McCabe and Keith
Shreiner became area directors for the Heritage Conservation and
Recreation Service and Fish & Wildlife Service at the same time.
25. Secretary [Cecil Andrus] to Solicitor, et
al, December 2, 1980 [ANILCA Implementation Directive], ANILCA
Papers, USDI.
26. Interview of John Cook, January 26, 1984; "ARO:
A Regional Office," Courier, The National Park Service
Newsletter, vol. 4, no. 1, (January 1981), p. 2.
27. Albert G. Henson to Area Director, June 15,
1976, ANCSA Implementation, 1975-76, Swem Papers.
28. Biographical Sketches", November 12, 1976, Box
1, NPS WASO Files, ANILCA Papers, USDI; Summary of Interview of Gerald
Wright by Michael Lappen, February 13, 1984, typescript in author's
possession; R. Gerald Wright to Assistant to the Director, for Alaska,
June 1, 1979, Box 16, NPS WASO Files, ANILCA Papers, USDI; R. Gerald
Wright, "Sport Hunting in the Proposed Alaskan Parks - A Philosophical
Discussion," June 22, 1977, L-58, ARO Central Files, Inactive, ARO. Both
Gordon and Shaine were Alaska residents and familiar to residents of the
Wrangell-Saint Elias area.
29. Interview of William E. Brown, November 10,
1983; Trip Reports - Yukon-Charley Keyman, August 28-September 2, 1976,
September 6-9, 1976, September 9-14, etc., Box 46, Alaska Task Force
Files, RG 79, FARC, Seattle; Goals - Yukon-Charley [1976], AAO: Goals,
etc., Denali Keyman File, Box 28, Alaska Task Force Files, RG 79, FARC,
Seattle; Quoted in Everhart, National Park Service (1982
edition), p. 140.
30. Interview of John Kauffmann, December 5, 1983;
Goals - Keyman, Gates of the Arctic, AAO: Goals, etc., Box 28 Alaska
Task Force Files, RG 79, FARC, Seattle. After 1973 when the Noatak
proposal once again came under NPS auspices, Kauffmann assumed
responsibility for that area.
31 . Al Henson to Jerome Trigg [Director, Bering
Straits Native Corporation], October 3, 1975, Box 26, Alaska Task Force
Files, RG 79, FARC, Seattle; Goals - Keyman - Chukchi-Imuruk [1976],
AAO: Goals, etc., Denali Keyman Files, Box 28, Ibid.; T. Stell
Newman, "Bering Land Bridge, Arctic Causeway to the New World," in
Wilderness Parklands in Alaska, ed. by Connolly, p. 46. Dr.
Newman left Alaska to become superintendent of the new War in the
Pacific National Historical Park. He was killed in an automobile
accident there.
32. National Park Service, Inventory of Reports
and Publications Relating to Alaska, undated MS [ca. 1972],
Breedlove Papers, HFC. The figure does not include the natural landmark
studies. Some forty-six areas were studied as potential natural
landmarks before 1972.
33. John Dennis to Al Henson, March 1, 1974, L-48,
Wilderness, Alaska Task Force Files, RG 79, FARC, Seattle; Answers to
Senator Steven's Questions, draft, February 1978, Box 18, NPS WASO
Files, ANILCA Papers, USDI; National Park Service, "Natural, Historical,
and Cultural Resource Studies in Alaska," January 1978, Library, Rocky
Mountain Regional Office; "Task Force Research", undated MS [ca. 1976],
Senmark Files, HFC; Al Henson to Roger J. Contor, undated MS [1977], ARO
Files - Old Federal Building Warehouse, ARO; Dennis, "National Park
Service's Research in Alaska - 1972-76," passim; USDI, NPS,
Proceedings of the First Conference on Scientific Research in the
National Parks, November 9-12, 1976 ed. by Robert M. Linn,
(Washington, D.C.: GPO, 1976).
34. Report in Box 47, Alaska Task Force Files, RG
79, FARC, Seattle; Origin and Geologic Setting of the Maars Near Cape
Espenberg, Alaska (1976); The Raven, Quarterly Newsletter of the
Center for Northern Studies (July 1973); Dennis, "National Park
Research in Alaska," 281-82. A similar multi-disciplinary resource study
at Chukchi-Imuruk was produced.
35. John Kauffmann to Dan Strickland, February 24,
1977, Field Reports, Park Files, Gates of the Arctic National
Park/Preserve; Interview of G. Ray Bane, July 15, 1983; Fairbanks
Daily News-Miner, April 1, 1978, Belous Clipping Files, Special
Collections Division, DPL. Bane, who is an anthropologist by training,
later participated in subsistence studies of the Kobuk and Koyukuk. He
joined the NPS and played a crucial role as the only NPS employee
permanently in any of the new areas before 1980. After passage of ANILCA
he coordinated subsistence at Gates of the Arctic and northwest areas
and is today management assistant at the latter.
36. Gordon Watson to Al Henson, Bill Thomas, et.
al., July 30, 1975, A-94, FWS, Box 4, Alaska Task Force Files, RG 79,
FARC Seattle; Distribution and Density of Bald Eagle Nests, Katmai
Area, Alaska (1974) and Distribution and Density of Brown Bear
Denning, Katmai Area, Alaska (1974) in Box 2, NPS WASO Files, ANILCA
Papers, USDI; William R. Powers, "North Alaska Range Early Man Survey,"
in USDI, NPS, Fourth Annual National Park Service Pacific Northwest
Region Science/Management Conference ed. by Shirley A. Scott (1977),
p. 41; Briefing Papers - Early Man Studies Program, November 1977, Box
17, NPS WASO Files, ANILCA Papers, USDI; Proposed Research Strategy for
NPS-NGS Early Man Studies, draft, 3/12/79, Box 26, Ibid.; N.W.
Ten Brink to D.H. Scovill, T. Dale Stewart, and E.W. Snider, October 12,
1979, Box 23, Ibid.; John F. Hoffecka, "A Report to the National
Geographic Society and National Park Service. The Search for Early Man
in Alaska: Results and Recommendations of the North Alaska Range
Project," 1979, Ibid.
37. T. Stell Newman to Assistant to the Director
for Alaska, April 13, 1977, Box 31, NPS WASO Files, ANILCA Papers, USDI;
John Dennis to Al Henson, March 1, 1974, L-48, Wilderness, Box 17,
Alaska Task Force Files, RG 79, FARC, Seattle.
38. "Subsistence Activities in Proposed National
Parklands, undated MS [1977], 2850-Subsistence Policy and Comments, ARO
Central Files, Inactive, ARO; T. Stell Newman to Assistant to the
Director for Alaska, April 13, 1977, Box 31, NPS WASO Files, ANILCA
Papers, USDI; Newman to Roger Contor, August 11, 1977 [Preliminary
Reports on Subsistence Research], ARO Central Files, Inactive, ARO; Task
Force Research, undated MS [1977], Stenmark Files, HFC; "Publications
and Occasional Papers," Anthropology and Historic Preservation
Cooperative Park Studies Unit, University of Alaska, Fairbanks, Alaska,
undated MS, [1981], TIC, DSC; Richard K. Nelson, "Subsistence in Future
Alaska Parklands: An Overview," July 1977, Subsistence, Box 1, NPS WASO
Files, ANILCA Papers USDI.
The studies mentioned above were all published as occasional papers
by the Cooperative Park Studies Unit: Merry Allyn Tuten, A
Preliminary Study of Subsistence Activities on the Pacific Coast of the
Proposed Aniakchak Caldera National Monument, Occasional Paper No. 4
(1977); Richard A. Caulfield, Subsistence in and Around the Proposed
Yukon-Charley National Rivers, Occasional Paper No. 20 (1979);
Richard K. Nelson, Kathleen Mautner and G. Ray Bane, Tracks in the
Wildland: A Portrayal of Koyukon and Nunamiut Subsistence,
Occasional Paper No. 9, (1978).
39. Interview of George B. Hartzog, Jr., December
7, 1983; Interview of Zorro Bradley, November 7, 1983; Earl E. Chase to
K.M. Rae, August 28, 1972 [enclosed contract for $35,000 for
establishment of CPSU and preparation of certain reports], S7215,
University of Alaska, ARO Central Files, Inactive, ARO; Biology and
Resource Management Unit, Final Report on the Establishment and First
Year's Activities of Alaska Cooperative Park Studies Unit (Contract
4-9000-3-0041) (Fairbanks: University of Alaska, 1974) and Final
Report on Calendar Year 1978 (Fairbanks: University of Alaska,
1979); David Libbey, "The Cooperative Park Studies. Its birth, death and
distribution," undated MS [1983-84], typescript in Brown Files, ARO.
40. Contract 9000-3-0041, August 2, 1972, enclosure
in Chase to Rae, August 28, 1972; Final Report on the Establishment
and First Year's Activities of the Alaska Cooperative Park Studies
Unit, p. 1; Alaska Studies, National Park Service, Publications
Conference Papers, Reports and Thesis, undated MS, Brown Files, ARO.
41. "Cooperative Research Unit (Zorro Bradley's
operation at Fairbanks), in "Background," May 10, 1975, File 27-ANCSA,
Park Files, Kenai Fjords National Park, Seward, Alaska; Zorro Bradley to
Dr. Harvey J. Carlson, December 11, 1973, Swem Correspondence,
July-December 1973, HFC. "During the past two years," an obviously angry
Bradley wrote, "there has been very little evidence of NPS support for
this activity."
42. Proposed regulations regarding Native land
selections published in 1973 indicated that 14(h) selections could also
be made on lands withdrawn under sections 17-d-2. By 1975, however,
questions had been raised within the Interior Department whether d-2
lands included in Secretary Morton's legislative proposals were
available for selection. Despite eloquent appeals from people like Zorro
Bradleywho wrote that exclusion of d-2 lands seemed "legally
indefensible and morally reprehensible"the department took the
position that d-2 lands included in Secretary Morton's 1973 proposals
were not available for cemetary and historic site selection. It did
indicate, however, that "a withdrawal made pursuant to section 17(d)(1)
of the Act which is not part of the Secretary's recommendation to
Congress of December 18, 1973, on the four national systems shall not
preclude a withdrawal pursuant to section 14(a) of the Act." Federal
Register, Vol. 38 Part 2 (March 9, 1973), p. 6510; Zorro Bradley to
Assistant Director, Park Historic Preservation, September 8, 1975, L-30
- Native Claims Regulations, Box 9, Alaska Task Force Files, RG 79,
FARC, Seattle; Bradley to Assistant Director, Park Historic
Preservation, Sept. 30, 1975 [encloses an Analysis of the Legislative
Development and Intent Behind Sections 14(h)(1) and 17(d)(2) of the
Alaska Native Claims Settlement Act," that was primarily the work of Dr.
Gary Stein], 14(h) Files, ARO; Deputy Solicitor to Secretary of the
Interior, November 5, 1975, Cultural Resources, Katmai Keyman Files, Box
37, Alaska Task Force Files, RG 79, FARC, Seattle; Federal
Register Vol. 40 (December 9, 1975), p. 57365 and Vol. 41 (April 7,
1976), p. 14737.
43. For example, William Schneider indicated that
for the Inupiat, historic sites are not only the tangible physical
remains left after settlement and use, but also included the "natural
features that first attracted settlement activities and that today make
the sites desirable for hunting, fishing, and trapping." "Activities and
Opportunities for Cultural Anthropologists," CRM Bulletin, III,
(September 1979), p. 5.
44. Roger C.B. Morton to Commissioner of Indian
Affairs, Director, National Park Service, and Director, Bureau of Land
Management, December 12, 1974, H3405-14(h), Selections Box 8, Alaska
Task Force Files, RG 79, FARC, Seattle; Federal Register, vol. 4
(April 7, 1976), pp. 14734-14740; Theodor Swem to Gary Everhardt,
January 16, 1976, Alaska Status Reports, Swem Papers; Zorro Bradley to
State Director, October 19, 1977, H32 Historic and Cemetery Sites, ARO
Central Files, Inactive, ARO; Grauman, "The ANCSA 14(h)(1) Program," p.
4. There is considerable evidence indicating that things did not go
smoothly between the agencies. Roger Contor, memo to Files, October 2,
1978, Box 2, NPS WASO Files, ANILCA Papers, UDSI.
45. Al Henson to Theodore Swem, Jan. 6, 1975
[December 1974 Monthly Report], A-58, ARO Central Files, Inactive,
ARO.
46. Earl E. Chase to A.B. Froi, June 23, 1975,
14(h) Files, ARO. The amount of the original contract was $99,000.
47. Zorro Bradley to State Director, October 18,
1977, H32 - Historic and Cemetery Sites, ARO Central Files, Inactive,
ARO; Grauman, "The ANCSA 14(h)(1) Program," p. 4.
48. Bradley to State Director, October 19, 1977. In
addition Bradley indicated that over 1,100 of the sites would be
nominated to the National Register of Historic Places. Nominations would
be submitted by the Corporations, but at their request, the 14(h) staff
would prepare the necessary documentation.
49. Bradley to State Director, October 19, 1977;
Grauman, "The ANCSA 14(h) Program," pp. 4-5; Wendy H. Arundel - "Report
on Current Research," May 22, 1980, Box 1, NPS WASO Files, ANILCA
Papers, USDI.
50. John Bligh to John Cook, March 24, 1982, 14(h)
Files, ARO; Ira J. Hutchinson to Assistant Secretary, FWP, January 13,
1982, Ibid.; John Cook to Area Director, BIA, February 23, 1983;
Ibid; J. Craig Potter [Acting Assistant Secretary, FWP] to
Assistant Secretary for Indian Affairs, April 19, 1983, Ibid.
Talk of having HCRS take over the Service's role surfaced in 1979.
Nothing came of it, however. Paul C. Pritchard to Director, HCRS, August
6, 1979, HCRS Files, ANILCA Papers, USDI.
51 . Al Henson to Theodor Swem, January 6, 1975,
A-58, ARO Central Files, Inactive, ARO; Swem to Gary Everhardt, January
16, 1976, Alaska Status reports, Swem Papers.
52. Bradley to State Director, October 19, 1977.
Andrews' and Stein's Reports were published as Report on the Cultural
Resources of Doyon Region: Central Alaska (1977) and Report on
the Cultural Resources of the Aleut Region (1977).
53. USDI, APG, Final Environmental Statement,
Proposed Yukon-Charley National Rivers, Alaska (Washington, D.C.:
GPO, 1974), pp. 13-14; William Brown, Richard Caulfield and Robert
Howell, "Plan Up-date - Revision Yukon-Charley National Rivers
Proposal," undated MS [1976], Denali Keyman Files, Box 30, Alaska Task
Force Files, RG 79, FARC, Seattle; Brown, "Yukon-Charley: Rivers to
Yesteryear," in Wilderness Parklands in Alaska, p. 64.
Apparently, the earlier statements regarding the potential for float
trips on the Kandik and Nation Rivers were based on a report of a BOR
reconnaissance survey made in 1972-73 (see pp. 127-28). Residents of the
area disagreed with those recommendations.
54. Not all agreed that Alaska was all that
different as to require new management approaches. This continues to be
the subject of some debate within the Service today.
55. William E. Brown, This Last Treasure: Alaska
National Parklands (Anchorage: Alaska Natural History Association,
1982), p. 6; John Kauffmann, in Position Papers and Reflections on GAAR
by Keyman John Kauffmann, compiled from files by Bill Brown; Brown,
Caulfield, and Howel, "Plan update - Revision Yukon-Charley National
Rivers," [1976]; "Statement for Management Proposed Gates of the Arctic
Wilderness National Park, Alaska," November 1977, GAAR Keyman Files, Box
32, Alaska Task Force Files, RG 79, FARC, Seattle.
56. This shift away from recreational development
was certainly not confined to Alaska, but reflected a shift in NPS
approaches elsewhere. The movement toward preservation was however,
considerably more pronounced in Alaska.
57. Activity Reports No. 19 and 22, Assistant to
the Director for Alaska, July 14 and November 2, 1977, Box 23, NPS WASO
Files, ANILCA Papers, USDI; Richard J. Myshak to Directors, NPS, BOR,
FWS, February 27, 1978, Box 12, Ibid.; [Roger] Contor, Discussion
Paper - Future Administration Plans for Alaska, March 9, 1978, Boyle,
Ibid.; John Kauffman to Area Director, April 6, 1978, GAAR Keyman
Files, Box 35, Alaska Task Force Files, RG 79, FARC, Seattle;
Implementation Tasks for New National Park Units in Alaska, May 4, 1978,
Alaska Background, Box 23, NPS WASO Files, ANILCA Papers, USDI; Ira J .
Hutchison to Regional Director, Pacific Northwest, et al.,
September 21, 1978, Box 40, Ibid.; Interview of William E. Brown,
November 11, 1983.
A considerable amount of the Department of the Interior's effort was
directed toward establishing some form of cooperative planning and
management. Along these lines, Fish and Wildlife and Park Service staffs
worked during 1978 and 1979 to develop an "Alaska Management Guide,"
described by one participant as a holistic approach to planning and
management. The effort came to naught, however, when other assistant
secretaries complained that the "covering was too broad and its
implications were so comprehensive." Although the Park Service had been
involved in cooperative planning efforts at Mount McKinley as early as
1973 and recognized, with their colleagues in the Fish and Wildlife
Service, the importance of moving ahead to some coordinated fashion,
they too objected to the guide as an effort to centralize
decision-making power in an Interior Department Alaska office. John
Reynolds to Ted Swem, May 25, 1973, Denali Keyman Files, Box 33, Alaska
Task Force Files, RG 79, FARC, Seattle; Department of the Interior,
"Cooperative Planning and Management in Alaska," November 28, 1979, A-40
- Alaska Cooperative Planning Group, ARO Central Files, Inactive, ARO;
Richard Myshak to Undersecretary, September 5, 1973, Box 31, NPS WASO
Files, ANILCA Papers, USDI; Robert Herbst to Directors, NPS, FWS, BOR,
January 15, 1979; Box 17, Ibid.; Fish and Wildlife and Parks,
Alaska Management Guide, draft, June 25, 1979, Ibid.;
Robert Herbst to Asst. Secy-LW, et al., July 25, 1979,
Ibid.; Guy Martin to Robert Herbst, April 11, 1978, L204 E
Management, Box 17, Alaska Task Force Files, RG 79, FARC, Seattle;
Interview of Hugh Mueller (October 3, 1983), Roger Contor (November 2,
1983), John Cook (January 26, 1984), and Bill Reffalt (December 9,
1983).
58. G. Bryan Harry to Regional Director, PNW, June
21, 1977, A6435 - Organization, ARO Central Files, Inactive, ARO;
Activity Report, Assistant to the Director for Alaska, September 27,
1977, Box 23, NPS WASO Files, ANILCA Papers, USDI; Interview of Bill
Brown, November 11, 1983. Henson's primary job was to assist service
center staff in preparing for the anticipated special design and
planning work load. However, in the two years before retiring he
continued to be active in the Service's Alaska affairs, advising the
director, participating in writing the supplemental environmental impact
statements, preparing information for Department of Interior testimony
at legislative hearings, and assisting in drafting national monument
proclamations.
59. Task Force Leaders - FWS, BOR and NPS to Alaska
Planning Group, December 4, 1974, L3014d, Permits, Surface d-2, Box 9,
Alaska Task Force Files, RG 79, FARC, Seattle; Memorandum of
Understanding Between the Bureau of Land Management and Department of
Agriculture, United States Forest Service, and the Department of the
Interior, National Park Service, Fish and Wildlife Service, Bureau of
Outdoor Recreation, Regarding Interim Management of Four Systems Areas
under the Alaska Native Claims Settlement Act, July 30, 1975, Swem
Correspondence, 1/75-12/76, HFC; Curt McVee to DM's, August 5, 1975,
2650-03, Authority and Directives - ANCSA FY '76, BLM Files, ANILCA
Papers, USDI; Keith Trexler to Thomas Dean, October 25, 1974, L30146 -
Permits, Box 9, Alaska Task Force Files, RG 79, FARC, Seattle; Carl D.
Johnson to Al Henson, August 25, 1975; Ibid.; Roy Sanborn to M.
Thomas Dean, December 12, 1975, Ibid.; Al Henson to M. Thomas
Dean, June 27, 1974, Ibid; Ralph Root to Al Henson, July 24,
1975, L30236, Oil Wells - Kurupa, Box 12, Ibid.
60. William J. Whalen to Robert Herbst, November 9,
1978, doc. no. 003040, ANILCA Papers, USDI.
61. James A. Joseph [for Cecil Andrus] to Mike
Gravel, December 3, 1979, Box 18, NPS WASO Files, ANILCA Papers, USDI;
Secretary to James T. Mcintyre, Jr., January 2, 1979 [unsigned draft],
Ibid.; NPS Alaska Framework - Proposed Level of Funding and
Activity for Alaska under Executive Action, November 6, 1978, Planning,
Box 3, ARO Files, Old Federal Building Warehouse, ARO. The Fish and
Wildlife Service, on the other hand, assigned fourteen people to assist
in the administration, planning, and enforcement in the monuments under
its control.
62. Interview of John Cook, January 26, 1984;
Interview of William E. Brown, November 11, 1984; Douglas Warnock,
"Recollections of a First Trip to Eagle, Alaska," 1983; Temple A.
Reynolds to Regional Director, PNW, February 28, 1979 [Critique of
"Great Denali Trespass"], W3415, Great Denali Trespass, ARO Central
Files, Inactive, ARO; Interview of Dave Mihalic by Frank Williss, May
17, 1983. In addition members of regional special events team flew to
Seattle, where they waited should additional help be needed. These
special events teams are groups of rangers within a region who are
trained as a unit with an assigned leader and who are able to respond to
any law-enforcement problem.
63. William J. Whalen to Assistant Secretary, FWP
[Robert Herbst], November 9, 1979, doc. no. 003040, ANILCA Papers, USDI.
Whalen wrote that a major conflict with monument regulations would come
from sport hunting interests. If Congress acted to establish preserves,
the problem would not exist.
64. Interview of John Cook, October 27, 1983 and
January 26, 1984; Anchorage Daily News, October 21, 1979
[Interview of NPS Director William J. Whalen], ARO Clipping Files,
Special Collections Division, DPL; W.T. Tanner to Alaska Area Director,
October 18, 1979 [Operational Outline, Alaska Detail, June Through
September 1979], W-34, Law Enforcement, ARO Central Files, Inactive,
ARO. Tanner had recently spent three years in the Service's WASO office.
For two of those years he was agency representative to the Federal Law
Enforcement Center, and during the third year was staff Park Ranger in
the Division of Ranger Activities.
65. W.T. Tanner to Alaska Area Director, October
18, 1979, and Rick Smith to John Cook, October 18, 1979, W-34, Law
Enforcement, ARO Central Files, Inactive, ARO; Enforcement Plan for the
1979 Sport Hunting Season in Alaska, undated MS [June 1979], Box 19, NPS
WASO Files, ANILCA Papers, USDI; Suggested Public Affairs Program for
the National Park Service Sport Hunting Plan - July-August 1979, undated
MS [1979], Ibid.; Douglas Warnock to Assistant to the Secretary
for Alaska, September 10, 1979, Ibid.; Robert Herbst to Ted
Stevens, August 20, 1979, Ibid.
66. Funds on monuments, September 11, 1979, Box 18,
NPS WASO Files, ANILCA Papers, USDI; James A. Joseph for Cecil Andrus to
Mike Gravel, December 3, 1979, Ibid.; Interview of John Cook,
January 26, 1984; Interview of Bill Tanner, July 20, 1983. Home parks
were given funds to hire seasonals to fill the slots of those detailed.
Because the rangers in the 1978 task force came largely from
high-visibility positions in the park, this did not prove satisfactory,
and was one reason for change in personnel detailed in the summer of
1980.
67. Tanner to Cook, October 18, 1979; Rick Smith to
Cook, October 18, 1979; Enforcement Plan for the 1979 Sport Hunting
Season in Alaska, [June 1979], Box 18, NPS WASO Files, ANILCA Papers,
USDI.
68. Tanner to Cook, October 18, 1979; Interview of
Stuart Coleman by Frank Williss, January 26, 1984; Interview of Don
Utterback by Frank Williss, January 26, 1984; Interview of Dave Mihalic,
May 17, 1983; Interview of Mack Shaver by Frank Williss, November 11,
1983. The 1979 Task Force reported directly to the Area Director. In
1980, the task force became a part of the on-going regional operations
division.
69. Tanner to Cook, October 18, 1979; Entry for
August 21, 1979, Wrangell-St. Elias N.M. Record, Park Files,
Wrangell-St. Elias National Park/Preserve. In addition the three Rangers
assigned to Wrangell-St. Elias spent several short periods at Eagle,
Circle and the Charley River in Yukon-Charley.
70. Interviews of John Cook (Jan. 26, 1984), Dave
Mihalic (May 17, 1983), Stuart Coleman (Jan. 26, 1984), Don Utterback
(Jan. 26, 1984), Mack Shaver, and Larry Van Slyke (November 2, 1983);
J.W. Tanner to Alaska Area Director; Dave Mihalic to John Cook, October
9, 1979, Walt Dabney to Cook, December 10, 1979, WaIt Gale to Cook,
October 18, 1979, Don Sholly to Cook, October 14, 1979, Roger Rudolph to
Cook, October 9, 1979 [Final Reports of Visiting Task Force], Box A, ARO
Files, Old Federal Building Warehouse, ARO. At Seward, for example, Mary
J. Karracker became deeply involved in the community
affairsplaying on a local softball team, and serving with a
voluntary ambulance crew.
71. Interview of Dave Mihalic, May 17, 1983;
Interview of Bill Tanner, July 20, 1983; Tanner to Cook, October 18,
1979; Copper Valley Views, August 8 and 22, 1979, ARO Clipping
Files, Special Collections Division, DPL; Interview of Stuart Coleman,
January 26, 1984. An embarrassed staff did make an appointment with
another dentist for Coleman. In no condition to take chances, Coleman
did not indicate that he worked for the National Park Service the next
time.
72. Interview of Dave Mihalic (May 17, 1983), Bill
Tanner (July 20, 1983), John Cook (January 26, 1984), and Don Utterback
(January 26, 1984); Tanner to Cook, October 18, 1979; Dave Mihalic to
John Cook, October 9, 1979, Box A, Old Federal Building Warehouse, ARO;
Walt Dabney to Cook, Ibid.; Walt Gale to Cook, October 18, 1979,
Ibid.; Ibid.; Don Sholly to Cook, Roger Rudolph to Cook,
Ibid; Weekly Activity Report, NPS, September 10-14, 1979; Case
Incident Report, October 22, 1979, Case Incident Reports, 1979-81, Law
Enforcement File, Park Files, Gates of the Arctic National Park and
Preserve. On October 22, after the task force rangers had returned to
their permanent assignments, vandals inflicted approximately $2000
dollars damage on an NPS plane in Bettles.
73. While it would be too much to say that violence
brought about a reversal in attitudes toward the monuments or NPS
employees, it did convince many Alaskans that protests over the monument
proclamations had gone too far. Even in the Wrangell area, which was a
hotbed of opposition, signs warning rangers to stay away came down after
the burning of the NPS plane. Tanner to Cook, October 18, 1979.
Telephone discussion with William E. Brown, November 15, 1984.
74. Tanner to Cook, October 18, 1979; Douglas G.
Warnock to Assistant to the Secretary for Alaska, September 10, 1979,
Ranger Task Force, Box 19, NPS WASO Files, ANILCA Papers, USDI. The
Rangers at Wrangell-St. Elias brought the body of a climber down from
Mt. Sanford, an act that won considerable goodwill.
75. Anchorage Daily News, September 18,
1979, ARO Clipping Files, Special Collections Division, DPL; Interviews
of Bill Tanner (July 20, 1983), John Cook (January 26, 1984), Don
Utterback (January 26, 1984), and Dave Mihalic (May 17, 1983). The
charge of excessive force came out of an investigation of possible
illegal hunting in Gates of the Arctic. Citizens who took part in a
camp-in in Wrangell-Saint Elias (Camp Tradition) claimed that rangers
looked the other way to avoid issuing citations. Evidence does not
substantiate either claim.
76. The 1980 Ranger Task Force differed from that
in 1979 in that the fifteen rangers were generally lower-graded and
generally younger, and had fewer years' experience. Although there were
instances of violence (a NPS plane at Bettles was again vandalized) the
1980 group met less hostility and certainly less publicity. Ranger II
Task Force to Sourdoughs of Yesteryear, July and August 1980,
Secretary's files, Office of Associate Regional Director, Operations,
ARO; Interviews with Bill Tanner (July 20, 1983), John Cook (January 26,
1983), and Don Utterback, (January 26, 1983).
Dave Mihalic, Mack Shaver, and Mike Tollefson, for example, all
became superintendents. Mihalic went to Yukon Charley Rivers National
Preserve, Shaver became superintendent of the northwest areas, and
Tollefson is superintendent of Glacier Bay.
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