The U.S . Army Corps of Engineers

and

Natural Resources Management

on Army Installations

1941-1987

by

James R. Arnold and Roberta Wiener
1941-1987

by

James R. Arnold and Roberta Wiener

ENGINEERING AND HOUSING SUPPORT CENTER

and

OFFICE OF HISTORY

UNITED STATES ARMY CORPS OF ENGINEERS

FORT BELVOIR, VIRGINIA

1989
Library of Congress Cataloging in Publication Data

Arnold, James R .

The U .S . Army Corps of Engineers and natural

resources management on army installations, 1941-

1987 .

Includes bibliographical references .

1 . Military bases--United States--Maintenance

--History--20th century . 2 . United States . Army .

Office of the Assistant Chief of Engineers .

Buildings and Grounds Branch--History . 3 . United

States . Army--Facilities--Maintenance and repair--

History--20th century . 4 . Natural resources--United

States--Management--History--20th century . 5 . Land

use--United States--History--20th century .

I . Wiener, Roberta . II . Title .

UC403 .A76 1989 355 .7 1 0973 89-17969

First Printing

EP 870-1-40
Foreword

This study shows the evolution of the Army Corps

of Engineers' responsibilities for the natural

environment on Army bases . Reflecting both wartime

urgencies and peacetime concerns, The U .S . Army Corps

of Engineers and Natural Resources Management on Army

Installations, 1941-1987 is a comprehensive overview of

the problems the Corps' natural resources managers

faced on Army bases both domestic and overseas during

those years . Their concerns included such topics as

soil conservation during the emergencies of World War

II and the impact of the environmental movement on Army

environmental planners in more recent times .

Today's Army engineers facing multiple questions

in the course of their work on installations should

find this retrospective analysis useful . The authors,

James Arnold and Roberta Wiener, break new ground in

tracing the history of environmental work in the

context of the military and civilian pressures

surrounding the physical development and maintenance of

bases .

ALBERT J . GENETTI, JR .

Colonel, Corps of Engineers

Chief of Staff
The Authors

James R . Arnold is a historian who has written

numerous articles and books about the Vietnam War, World

War II, and the Napoleonic wars .

Roberta Wiener is an editor and writer specializing

in business, government, and military topics .
Preface

This history covers the U.S . Army Corps of

Engineers' role in natural resources management on

military installations from 1 December 1941, the date

all construction activities transferred from the

Quartermaster Corps, to the end of fiscal year 1987, the

date natural resources management at Corps of Engineers

Headquarters transferred to the Environmental Office

from the Buildings and Grounds Branch . The Buildings

and Grounds Branch, created after World War II, handled

natural resources management throughout the period .

Natural resources management, as covered by this

report, includes soil erosion control, grounds

maintenance, land use management, forest management,

wildlife management and conservation, and pest control .

Each of these topics is discussed in three chapters

covering the periods 1941-1959, the 1960s, and 1970-

1987 .

This history encompasses the Army-wide natural

resources management program : the policy decisions of

the Buildings and Grounds Branch at the Office of the

Chief of Engineers (OCE) level, the technical assistance

provided by land managers at the Army commands, and the

influence of the program on activities at individual

installations . Pest control, although not a direct

natural resources management activity, is discussed

herein as it relates to protection of soil and vegetation . The final chapter describes natural resources

management in 1987 and provides illustrative examples of

conservation programs at selected installations .

For the reader's convenience, an executive summary

is provided . Assertions made in the summary are
footnoted only when they are not discussed and

documented in detail in the subsequent chapters .

Thanks are due Drs . Frank N . Schubert and Martin K .

Gordon, who reviewed and gave helpful advice on revising

the manuscript, and Susan Carroll, who edited the

manuscript . Special thanks go to Donald Bandel, who

conceived the idea for this study and who extended the

full cooperation of his office during the study's

research and writing .

JAMES R . ARNOLD

ROBERTA WIENER
Executive Summary

Wartime and the Postwar Years

The 1 December 1941 transfer of all construction

responsibilities from the Quartermaster Corps to the

Corps of Engineers included maintenance responsi

bilities . Maintenance, in turn, included grounds

maintenance and pest control . Initially, representatives of the Corps of Engineers did not want to be

saddled with these chores and resisted this part of the

transfer . Colonel Leslie R . Groves, Operations Branch

Chief of the Office of the Quartermaster General

Construction Division, and later the Deputy Chief of

Construction, Office of the Chief of Engineers, viewed

them as more appropriate to the housekeeping duties of

the quartermasters . However, the prevailing view in

Washington was that those who built the structures

should maintain them .l

The new Construction Division under the Office of

the Chief of Engineers retained the same five branches

as the division had held under the Quartermaster Corps .

One of these was Repairs and Utilities . 2 Reporting to

the Repairs and Utilities Branch was a Maintenance and

Repair Section . Under this section was a Grounds and

Grassing Unit responsible for grounds maintenance and

erosion control . ( See Appendix A, charts A-1 to A-3 .)

During World War II, land management consisted

largely of dust and erosion control at newly constructed

military installations . Natural resources management at

this time strove only to maintain adequate living

conditions for the troops and prevent the elements from

interfering with training . "Spartan simplicity" was the
order of the day .

After the war, Repairs and Utilities became a

division under the OCE Military Construction

Directorate . Under the Repairs and Utilities Division

(R&U), the Buildings and Grounds Branch (B&G) included

three sections that dealt with natural resources :

Grounds, Land Management (which included forestry and

wildlife management), and Entomology . The organizational structure for natural resources management

remained thus through the 1960s .

An agronomist headed the Land Management Section,

and a forester reported to him . 3 The branch's major

functions were to make policy, approve plans, and

allocate resources for Army-wide land management . The

individual army headquarters and the installations

mirrored this structure, with each headquarters and

installation ideally staffed by a land manager/

agronomist, a forester, and an entomologist . Typically,

at all levels the forester reported to the land manager

while the entomologist did not . 4 In practice,

entomologists were rarely assigned to the installations .

Not all installations had this staff structure : smaller

installations had to rely on the natural resources

management staff of the nearest larger installation . 5

Following the war, natural resources management

progressed beyond such emergency concerns as land

stabilization to the fostering of beneficial ground

cover crops or tree species suited to the military

purposes for which the Army held the land . During this

period, Army foresters began to develop innovative

techniques for controlling the frequent fires caused by

training exercises .

Professional land managers also promoted nonmilitary uses such as timber production and agricultural

leasing because they assisted in maintaining land in

good condition while saving the Army labor . Since

viii
forest management caused wildlife populations to

flourish, installations permitted hunting to control

wildlife populations and keep the land from being

overbrowsed .

The postwar period also saw the recruitment and

hiring of civilian professional agronomists, foresters,

and entomologists (with bachelors' degrees or equivalent

experience) to staff the army commands and installations . By the close of the 1950s, most installations

had developed land management plans that were approved

by the OCE Buildings and Grounds Branch . Lack of

official support for sufficient professional staffing,

particularly in the field, remained an ongoing

challenge .

The 1960s

At the beginning of the decade, Public Law 86-797,

act to promote effectual planning, development,

and coordination of wildlife, fish, and

rehabilitation in military

the Sikes Act of 1960--

"An

maintenance,

game conservation and

reservations"--known as

established procedures for conserving fish and wildlife

and allowing public access to outdoor recreation on

military land . The act and its subsequent amendments

were to have an enduring influence on Army natural

resources management .

Buildings and Grounds' primary task remained the

review of installation management plans . The required

number and scope of these plans expanded to include

landscaping, land management, forest management, and

fish and wildlife management plans, plus cooperative

and development of fish and

The evolution of scientific

knowledge about natural resources management during this

decade necessitated the overhaul of Army regulations and

plans for conservation

wildlife resources .
technical manuals, a task which also occupied much staff

time at Buildings and Grounds .

While erosion from new construction had been

largely controlled, problems persisted in specific areas

such as ammunition storage igloos . More importantly,

tank maneuvers caused additional erosion, which had to

be rectified through revegetation .

No longer did the rule of Spartan simplicity

prevail for landscaping and grounds maintenance practices . A drive for beautification of military bases,

fueled by public opinion and encouraged by the First

Lady, Lady Bird Johnson, accelerated . 6 Construction

projects now had to include landscaping in their plans

and preserve the natural features of the site .

The multiple use and sustained yield concepts,

required by public law for management of national

forests, entered into land and forest management .

Henceforth, land management had to support more than

military training . The production of crops and timber,

conservation of wildlife, and public recreation occurred

on Army land whenever possible.

Army forest management activities and timber

production expanded rapidly in response to a landmark

provision in the 1961 military appropriations bill .

Commercial loggers and installation commanders alike had

sought this provision, which allowed installations to

pay for forestry activities directly from timber sales

proceeds . This lent unprecedented stability to the

funding source . This stability benefited not only

forest management activities, but enhanced wildlife

habitats, outdoor recreation, fire prevention, and

military training areas as well . Yet many such benefits

of land management remained unappreciated from a

standard accounting perspective. Army land managers

periodically debated the realistic valuation of land

management costs and benefits .
The development of new and more effective

pesticides brought with it increased risks to both

handlers and the environment . The increased risks of

contamination caused the expansion of training requirements for pest control . In addition, the public and the

federal government took a closer interest in the

military's use of pesticides .

1970 to 1987

The Army natural resources management program

strove to mount an integrated response to the public's

interest in protecting the environmenta 7 While the

daily tasks and goals of natural resources management

remained basically unchanged, the policy behind them

came to be based largely on environmental legislation

and public pressure . 8 The growing importance of

environmental protection culminated in the 1987

moved the OCE natural resources

from the Buildings and Grounds

reorganization which

management functions

Branch to the Environmental Office . This reorganization

mirrored similar earlier changes at many installations . 9

After 1970, the Buildings and Grounds Branch had

been moved among several different directorates,

including Facilities Engineering . However, it continued

to discharge the same responsibilities and to be known

as Buildings and Grounds until the 1987 reorganization .

Up to 1 October 1987, an office separate from Buildings

and Grounds dealt with environmental issues, despite the

natural overlap in the concerns of the two offices .

Of the host of laws, both old and new, affecting

the branch's work during the 1970s and 1980s, the most

influential were the amendments to the Sikes Act of 1960

(Public Law 86-797), the National Environmental Policy

Act of 1969 (Public Law 91-190), the Endangered Species

Act of 1973 (Public Law 93-203), and the military
appropriations bills that permitted installations to use

the proceeds from timber sales (1961) and agricultural

leasing (1983) for natural resources management activities . 10

The Sikes Act amendments permitted the collection

of fees for hunting and their expenditure on wildlife

conservation programs . The National Environmental

Policy Act required environmental impact analyses for

any environmentally significant activity on federal

government land . The Endangered Species Act prohibited

the expenditure of federal funds on any activity that

would jeopardize an endangered or threatened species . 11

The ability to retain and use timber and leasing

proceeds provided a measure of funding stability to

natural resources management programs . The programs

became largely self-sustaining and had lose need to

compete for scarce appropriated funda . 1 2

Public relations grew in importance as public

knowledge about conservation issues and awareness of

Army activities and their impact on natural resources

increased . Public pressure for both recreational access

and wildlife conservation became a fact of life .

The period extending from the early 1970s through

fiscal year 1987 saw a gradual evolution in the daily

tasks and overall mission of Buildings and Grounds .

During the early 1970s, the basic duties remained review

of installation plans, supervisory visits, technical

assistance, and resource allocation . However, it became

necessary to spend more time providing policy guidance

as environmental laws proliferated . In 1975, the chief

agronomist decided to stop reviewing installation

natural resources management plans, to cut back the

amount of travel to installations, and to devote more

effort to policy development and administrative tasks . 13

The improvement in natural resources staff and

expertise at the commands and the installations made
this decision possible . The staff-building efforts of

the early decades had finally paid off . The agronomists

and foresters at the command level were now capable of

providing the necessary supervision, plan review, and

technical assistance to the installations . In addition,

despite the continued Department of Defense (DOD)-wide

lack of support for staff increases, many installations

had built outstanding staffs and programs which were

capable of operating independently . 14

Due in part to the increased sophistication of

installation firefighting skills, erosion reemerged to

replace fire control as the number one problem in the

1980s . Modern armored vehicles were both heavier and

more mobile than those of the past, causing much greater

damage to soil and vegetation . 15

Problems associated with preserving training

grounds were particularly acute at overseas installations . The local environmental pressure in the host

countries of Europe was even more intense than in the

United States because the land area of most of these

countries was smaller and the Army leased rather than

	Buildings owned the land . 16 and Grounds provided

general policy guidance to overseas installations . As

was done by their stateside counterparts, the major

commands overseas assisted the installations with

technical aspects of natural resources management . From

the late 1970s, the commands proved increasingly capable

of independent operation and no longer required

supervisory visits .

In the late 1970s, Army agronomists, foresters, and

wildlife biologists began to recognize that they were

harming their programs by competing for scarce

resources . By 1977, the requirement for a single

installation natural resources management plan replaced

the separate landscape, land, woodland, and wildlife

management plans . 17 At Buildings and Grounds and many
installations, agronomists, foresters, and wildlife

biologists became known as natural resources specialists

or environmental protection specialists . Another

amendment to the Sikes Act mandated an integrated

approach to wildlife and forest management, forcing

foresters and wildlife biologists to compete less and

cooperate more .l 8

Foresters grew more knowledgeable about wildlife

management as a result .l 9 Thus, the separate disciplines of agronomy, forestry, and wildlife biology

became parts of a single integrated field--natural

resources management .
1 . L . Fine and J .A . Remington, The Corps of Engineers :

Construction in the United States (Washington, DC :

Government Printing Office, 1972), pp . 463-472 .

2 . Ibid ., pp . 473 and 494 .

3 . Interview, authors with Wendell R . Becton,

Gainesville, GA, 15 January 1988 . Hereafter cited as

Becton interview .

4 . Interview, authors with Burton F . Kiltz, Arlington,

VA, 22 January 1988 . Hereafter cited as Kiltz

interview .

5 . Becton interview .

6 . Interview, authors with Donald Bandel and Donald

Cole, Washington, DC, 23 March 1988 . Hereafter cited as

Bandel interview .

7 . Interview, authors with Vance W . Mays, Glenwood,

MD, 29 October 1987 . Hereafter cited as Mays interview .

8 . Bandel interview .

9 . Ibid .

10 . Ibid .

11 . "Making Natural Resources Work for You," no date,

File 3, Donald Bandel Historical Collection, Buildings

and Grounds Branch, Corps of Engineers, Washington, DC .

Collection hereafter cited as Bandel collection .

12 . Bandel interview .

13 . Ibid .

14 . Ibid .

15 . Ibid .

16 . Ibid .

Notes

17 . "Department of the Army Land Management Program,"

no date, File 3, Bandel collection .

xv
18 . Telephone interview, authors with Tom Warren, Fort

Carson, CO, 7 April 1988 . Hereafter cited as Warren

interview .

19 . Telephone interview, authors with John Andrews,

Vienna, VA, 6 April 1988 . Hereafter cited as Andrews

interview .
Contents

Xvii

Chapter Page

1 . THE WAR YEARS AND THE POSTWAR GROWTH OF

NATURAL RESOURCES MANAGEMENT,

1941-1959 . . . . . . . . . . . . . . . 3

Erosion Control . . . . . . . . . . . . . . 3

Grounds Maintenance . . . . . . . . . . . . 11

Land Management . . . . . . . . . . . . . . 12

Agricultural Leasing . . . . . . . . . . . 17

Forest Management . . . . . . . . . . . . . 17

Wildlife Management . . . . . . . . . . . . 28

Pest Control . . . . . . . . . . . . . 31

Notes . . . . . . . . . . . . . . . . . . . 35

2 . THE 1960S--RESPONDING TO THE PUBLIC'S NEW

INTEREST IN NATURAL RESOURCES . . . . 45

Erosion Control . . . . . . . . . . . . . . 45

Grounds Maintenance . . . . . . . . . . . . 45

Land Management . . . . . . . . . . . . . . 46

Agricultural Leasing . . . . . . . . . . . 48

Forest Management . . . . . . . . . . . . . 50

Wildlife Management . . . . . . . . . . . . 58

Pest Control . . . . . . . . . . . . . . . 62

Notes . . . . . . . . . . . . . . . . . . . 66

3 . RESPONDING TO THE PUBLIC MANDATE FOR ENVIRONMENTAL PROTECTION, 1970-1987 . . . . 73

The View From Washington . . . . . . . . . 73

Land Management . . . . . . . . . . . . . . 75

Soil Erosion and Conservation . . . . . . . 76

Grounds Maintenance . . . . . . . . . . . . 78
Agricultural Leasing . . . . . . . . . . . 79

Forest Management . . . . . . . . . . . . . 80

Wildlife Conservation and Outdoor

Recreation . . . . . . . . . . . . . . 82

Preservation of Historic Sites . . . . . . 85

Pest Control . . . . . . . . . . . . . . . 86

Notes . . . . . . . . . . . . . . . . . . . 87

4 . NATURAL RESOURCES MANAGEMENT IN ACTION . . 91

Fort Meade, Maryland--October 1987 . . . . 91

Aberdeen Proving Ground (APG), Maryland--

October 1987 . . . . . . . . . . . . . . 94

National Guard Bureau, Edgewood, Maryland--

October 1987 . . . . . . . . . . . . . . 96

V Corps Area, West Germany--August 1988 . . 97

5 . CONCLUSION . . . . . . . . . . . . . . . . 105

APPENDIX A : CHARTS . . . . . . . . . . . . . . . 109

A-1 . Organization of Construction Division,

OQMG, 17 October 1941 . . .

.

. . . . . . 110

A-2 . Organization of Construction Division,

OCE, April 1942 . . . . . . . . . . . . 111

A-3 . Organization Chart, Repairs &

Utilities Branch, Construction Division,

O .C .E . . . . . . . . . . . . . . . . . . 112

BIBLIOGRAPHICAL NOTE . . . . . . . . . . . . . . . 113
THE U.S . ARMY CORPS OF ENGINEERS

AND NATURAL RESOURCES MANAGEMENT

ON ARMY INSTALLATIONS

1941-1987
CHAPTER I

The War Years and the Postwar Growth of

Natural Resources Management, 1941-1959

Erosion Control

During the prewar buildup of the U .S . Army, many

soldiers had to live and train in dismal surroundings .

The joke about living at 'Camp Swampy' was all too real

	During for many recruits . 1 rainy periods the bare

earth around new installations became a sea of mud .

During dry weather it produced immense amounts of dust .

Army physicians believed that these conditions

contributed to flu epidemics and other diseases among

the troops . 2

Prior to war's outbreak, the U .S . Department of

Agriculture Soil Conservation Service (SCS) willingly

responded to Army installation requests for erosion

	Oncontrol assistance on an individual basis . 3 1

December 1941, representatives of the office of the

Quartermaster General Repairs and Utilities Branch

(R&U), Construction Division, met with experts from the

Soil Conservation Service to formalize their cooperation for erosion control on Army bases . 4 They created

the liaison representative program so that SCS experts

could provide surveys, planning, and technical

assistance to the Army in response to the national

	However, emergency . 5 the ongoing reorganization process caused by the Construction Division's transfer

from the Quartermaster Corps to the Corps of Engineers

also on 1 December complicated the liaison program .

For example, SCS liaison representatives encountered
confusion regarding who to report to until mid-January

1942 . 6

The Japanese raid on Pearl Harbor on 7 December

1941 brought the United States into formal conflict

with the Axis powers . Military planners recognized

that national wartime mobilization required a military

construction and training program on a massive scale .

Natural resources management within the Army focused on

facilitating the war effort .

A short three weeks after Pearl Harbor, an SCS

regional officer sent a circular letter to area

conservationists notifying them that erosion control

operations in Army camps "has first priority as far as

technical planning and the use of the technical

facilities o£ this Service are concerned ."

An example of a typical inspection of an Army

installation by an SCS liaison representative occurred

on 19-20 December 1941 at Fort Leonard Wood, Missouri .

The inspection concentrated on the cantonment area "and

only a very brief amount of time was given to the

balance of the 85,000 acre reservation ." 8 The inspector found enormous problems with drainage, grading,

road work, and the development of a parade ground and

artillery range . Plant cover and topsoil had been

removed, leaving a sterile subsoil . River bottom soil

was being hauled in and dumped but no one knew if this

soil would support a vegetative cover . The inspector

requested a party comprising a conservation engineer,

soils specialist, and erosion control planner to

prepare an erosion control plan that would supplement

the proposed landscaping plan . Absent such planning,

the inspector worried that runoff from the denuded

construction site would create a constant and costly

upkeep problem . 9

Erosion control received early attention from

Repairs and Utilities because serious erosion hampered
troop training . In turn, training exercises and tank

traffic tore up the ground and caused erosion .l0 From

the beginning, the lack of trained personnel and

equipment made the erosion control effort difficult .ll

The available manpower was spread so thin that when a

civilian landscape architect unexpectedly quit at one

installation, the commanding officer was "in a bad

spot" without a technical person to supervise erosion

control measures .

12 Lieutenant Colonel E . F. Ketcham,

chief of Repairs and Utilities, noted in 1943 that

"the shortage of qualified agronomists in the Seventh

Service Command has made it necessary that the fullest

use be made of those who are available ." 13 He

explained that those installations lucky enough to have

agronomists had to share their "technical knowledge and

experience" with installations racking agronomists . 14

The magnitude of Army erosion control needs led to

their classification as a national priority and a

"Direct National Defense Activity" in early 1942 . 15

Simultaneously, installation officers became so conscious of the need for erosion control for practical

and tactical reasons that many objected to any socalled landscaping plans because they appeared to go

beyond erosion contro1 . 16

In the nationwide push for erosion control at Army

installations, some planners went a bit overboard and

forgot about their budget limitations. The Agronomy

Division chief of the Soil Conservation Service, C .R .

Enlow, was forced to write to the San Antonio District

Engineer, "While you fellows have done a whale of a

piece of work in a very short time, I am afraid that

you have over-controlled the erosion a bit . If all of

the money that the Army has for erosion control were

allotted to the 8th Corps Area, you still would not

have enough to do the job you have outlined ." 17

After the Soil Conservation Service's initial rush
to help the Army with its erosion control problems,

some SCS personnel expressed a desire to return to

their normal routine . The Soil Conservation Service

chief felt obliged to remind his subordinates that "The

erosion control work on cantonments, forts, camps, and

all other Army posts, that may be requested by the

Utilities Officers in the District Engineers Offices,

is No . 1 priority ." 18

The beginning of July 1942 saw the transfer of SCS

liaison representatives to the War Department payroll

so they could function more efficiently within the

military chain of command . 19 The Soil Conservation

Service accepted the transfers as necessary, agreeing

to give the liaison personnel their jobs back when the

war ended . 20 Ultimately, many former SCS agronomists

opted to remain with the military after the war . 21 The

Army and the Soil Conservation Service maintained their

erosion control partnership in the decades following

the war . Under a departmental cooperative agreement

and memoranda of agreement with individual installations, the conservation service continued to provide

Army installations with technical assistance, such as

soil surveys, on request . 22

Over time, the Soil Conservation Service developed

guidelines for erosion control . The guidelines

emphasized the need to control excess water before

attempting any planting and specified soil preparation

methods, methods of seeding and sodding, appropriate

regional grass mixtures, and management of growing

vegetative cover . 23

In general, the erosion control problems Repairs

and Utilities confronted occurred on installations east

of the Mississippi . 24 In the arid West, problems

centered around dust control . Wind rather than rain

propelled construction-exposed soils and created

dustbowl-like conditions on many installations . Prob-
lems were particularly acute at newly built air bases

where the effects of frequent air traffic augmented

natural forces .

Burton F . Kiltz, Buildings and Grounds' chief

agronomist from 1951 to 1965, served as a dust control

specialist with Eighth Army in Dallas during the war .

Like many others, he moved from the Soil Conservation

Service to the Army engineers to lend his expertise to

the military construction effort . Kiltz's first chore

was to establish dust control schedules for each

installation that had to be met "no matter what the

cost . "25

Repairs and Utilities, located in faraway

Washington, DC, contributed little toward a solution to

dust control problems . Headquarters personnel tended

to be Easterners who did not know very much about the

special problems occurring in desert environments .

Accordingly, Kiltz supervised a series of trial and

error experiments at various installations until

finding a solution . The solution involved dumping

crushed rock on dusty areas . Supported by the planting

of drought-resistant plants, this approach worked at

such places as Fort Bliss .

News of the successful use of crushed rock spread

to other installations . By 1943 it became a standard

procedure for dust control at airfields . Workers at

Dugway Airfield in Utah, for example, covered 22 acres

with a gravel blanket and sprinkled additional areas

with gravel as needed . They supplemented this by

seeding vegetative cover on 320 acres . 26

Solving dust problems at air bases required

Repairs and Utilities to coordinate with the Buildings

and Grounds Section of the Army Air Force . Beginning

in 1943, the Repairs and Utilities Grounds Maintenance

Unit advised the Army Air Force on how to plant turf

and ground covers to control dust at airfields . 27
Until the Air Force became an independent branch of the

military in 1947, overlapping lines of authority caused

confusion for workers in the field . 28

In sum, Repairs and Utilities' wartime efforts

centered on making installations livable while solving

any problems that interfered with troop training . In

the East, the water erosion of bare soils at new

installations was the major challenge . In the West,

wind erosion of dry soil and resulting dusty conditions

predominated .

Igloos

In the postwar years, Repairs and Utilities

continued to oversee projects begun during the war . 29

In addition to the old erosion and dust control

problems, a new erosion problem centered around land

management practices in ammunition storage areas . 3 0

Earth-covered structures called igloos served to store

ammunition . Soils easily eroded from the igloos . The

area around the igloos required an extensive system of

firebreaks and vegetation had to be controlled to

preclude the accumulation of combustible material .

In 1947, Repairs and Utilities, now a division

under the Military Construction Directorate, considered

procedures for repairing ammunition igloos and

magazines . Heretofore, water leakage into the igloos

had been a serious problem . Repairs and Utilities'

initial efforts to solve this problem focused on

mechanical solutions such as correcting defective

flashings or using a different waterproofing materia1 . 31 Efforts then turned to the problems of erosion

control around the igloos .

Vegetative cover was not an option in very arid

locations . Asphalt roofs tended to crack . Each crack

became a vulnerable spot in the protective cover .
Tumbleweed sprouted in the cracks, eventually died, and

left a root network that weakened the soil and

attracted rodents . Rodents further eroded the

protective cover . Installation maintenance personnel

explored a variety of solutions, including a barricade

of protective gravel on top of an arsenic trioxide soil

sterilant .32

The lack of detailed policy statements regarding

grounds maintenance in general and igloo maintenance in

particular was the subject for a meeting between

Repairs and Utilities and the Personnel and Training

Division of the Office, Chief of Ordnance, in November

1949 . Repairs and Utilities worried that there were

widely varying standards of grounds maintenance at

Ordnance installations . 33 Repairs and Utilities recognized such variation was partly due to the fact that

local conditions rendered detailed instructions

undesirable and that change of commands often caused a

revision of ground maintenance plans . Repairs and

Utilities made two proposals to address these problems .

It suggested that specific conditions at all installations should be subject to detailed analysis during

the normal review and approval of the land management

plan by Army headquarters and the Offices of the Chief

of Ordnance and the Chief of Engineers . It further

proposed that a special regulation should require that

major revisions to grounds maintenance plans be

approved through the same channels as the original

plan . In this fashion Repairs and Utilities hoped to

introduce some standardization in grounds maintenance

procedures .

The value of land management planning quickly

became apparent in the field . In response to Engineer

Letter Number 46, 28 November 1949, requiring Fourth

Army installations to consider how to utilize their

grounds economically, the Louisiana Ordnance Plant in
Shreveport began a grazing program. The plant found

that grazing around its igloos and production line

areas was an excellent way to control vegetative

growth . Grazing reduced mowing requirements, virtually

eliminated hand labor requirements, reduced soil

erosion and fire hazards, and contributed substantial

revenue from leases . 34

Throughout the 1950s, the dual problems of

vegetative cover on top of and soil erosion around the

storage igloos continued to plague Repairs and Util

ities . The American Society of Agricultural Engineers

discussed the problem at its annual meeting in 1956 .

Papers presented by military land managers compared

various types of grass as vegetative covers for

explosive storage igloos and considered aggregate

blankets for earth-covered structures . 35

During the 1950s, Repairs and Utilities promoted

herbicides for controlling vegetative growth in certain

	Installations situations, including around igloos . 36

employed chemical sterilization of the soil, chemical

elimination of undesirable species, and chemical

control of plant height, known as chemical mowing .

In 1960, the Office of the Chief of Ordnance sent

a letter to Repairs and Utilities indicating the

continuing severity of the igloo problem and requesting

technical assistance : "This office is vitally interested in assembling data and criteria upon which to

base engineering decisions regarding maintenance and

repair of protective earth cover on ammunition storage

igloos ." 37 Ammunition storage igloos at Ordnance

installations had been built using a minimum of at

least two feet of earth cover . Erosion had reduced

numerous igloos to less than this minimum. Restoration

was necessary, but funds were limited.

Repairs and Utilities had carefully considered the

erosion problem the previous year and published a

1 0
supplement to Technical Manual 5-630, Repairs and

Utilities, Grounds Maintenance and Land Management .

The supplement dealt with planting and erosion control

on earth-covered structures . While the Ordnance Corps

recognized the wisdom of Repairs and Utilities'

approach, it decided that "to permit efficient and

orderly programming of required maintenance work, it is

considered necessary to establish tolerances which will

allow a reasonable degree of deviation from the

standard ."38

Grounds Maintenance

In addition to the special problems associated

with igloos, Repairs and Utilities confronted other

types of grounds maintenance problems . During the war

its Grounds and Grassing Unit provided oversight for

the post engineer's grounds maintenance responsibilities . These responsibilities

Technical Manual 5-600 : "The

maintenance responsibilities

renovation, fertilization,

Technicians on the staffs of service command engineers

supervised grounds maintenance and dust and erosion

control projects . During the war, any landscaping done

in the name of groundskeeping had to meet a standard of

Spartan simplicity . 40

Land management

concern, and grounds

management planning,

tion's overall

conference at

best be done .

records for grounds maintenance . 41 Cost records were

important, because while some 80 percent of all Army

installations were wooded, more funds were spent on the

planning was becoming a major

maintenance, a subset of land

had to fit in with an installa

management plan . In 1949, an engineer

Fort Belvoir considered how this could

The conference focused attention on cost

were codified in

post engineer's groundsinclude revegetation,

and grass mowing ." 39
other 20 percent for such activities as landscaping,

maintenance, and grass cutting . 42

By 1958, Army Regulation (AR) 420-74 defined

grounds maintenance in some detail as

work essential to the assigned military mission

for preservation, development, and improvement of

lands . It includes technical land management

planning and supervision ; control of erosion,

dust, and vegetative fire hazards ; field drainage ;

establishment, maintenance, and control of

vegetative cover ; control of weeds and noxious

plants ; development and maintenance of landscape

plantings ; traffic control on other than established traffic areas ; repair of eroded areas ; soil

conservation ; and woodland management and

improvement practices . 43

The regulation, as had previous versions of Army

Regulation 420-74, distinguished improved from unimproved grounds . Improved grounds were those on which

"intensive development and maintenance measures are

effected to facilitate the military mission ." 44 These

normally included an installation's built-up sections

that had lawns and landscape plantings such as parade

grounds and athletic fields . Unimproved grounds were

areas not defined as improved or woodlands . Normally

the term applied to such zones as maneuver areas,

artillery ranges, ammunition storage areas, and

outlease areas .

Land Management

During the war, land management planning

"consisted of evaluating individual proposals which

demanded immediate attention with little thought to the

1 2
results of such action beyond the immediate future ."

Following the cessation of hostilities, the Army began

to seriously plan for land management . 45

By 1949, professional Army land managers had

formulated a policy for the management and utilization

of lands within military installations : "It is the

policy of the Department of the Army to manage, utilize

and maintain all lands and grounds within the

boundaries of an installation so as to facilitate its

present and future military mission, and to conserve

and maintain all its lands including forests in

accordance with sound agricultural principles ." 46

Buildings and Grounds' major tool for implementing this

policy was the land utilization and management plan

required of each Class I and II installation . 47

Such plans had become requirements for

installations with sufficient acreage only in the

previous year . Timber and crop sales, leases, permits,

and related activities were predicated upon an approved

land management plan . Initially, installations tended

to concentrate on land that could be leased for crops

and grazing and on woodland management . 48 As a result,

the Army began to find that many of its lands could

yield economic benefits without impairing an installation's military mission .

By 1951, the chief of Buildings and Grounds' Land

Management Section, Walter Kell, was vigorously

promoting land management plans . He wanted each

installation protected by a plan that said how it

should be managed and what resources would be required .

Heretofore, few land management plans had been in

effect . When Burton F . Kiltz succeeded Kell as the

chief that same year, one of his first tasks was to

prepare a new land management manual to assist

installations in preparing plans . Kiltz soon realized

that he was really creating a forestry manual, so he

13
delegated the task to Buildings and Grounds' forester,

Cyril Webster . However, Webster died before completing

the task, and Kiltz finished the manua1 . 49 This

episode illustrates how throughout its early history

the Buildings and Grounds' professional land management

staff was beset by frequent turnover and unfilled

vacancies .50

Buildings and Grounds land managers in the mid1950s sought to put installation planning on a scientific basis . 51 They promoted scientific applications

as well as the hiring of experienced professionals at

the installation level . To further these goals, the

chief of Buildings and Grounds' Land Management

Section, Burton Kiltz, took an important step that

contributed to the growing sophistication of Army land

management planning . Kiltz belonged to the American

Society of Agronomy (ASA) . In 1955, he supported the

creation of a military land management division (A-2

Division) within the society . This established a link

between the society and military land planners . It

brought scientific recognition of military land

management problems to a national technical audience .

The recognition helped attract trained professionals to

the Army . 52 Periodically, Army specialists presented

papers to this division . Furthermore, topical section

meetings developed ideas and disseminated information

that influenced Army policy . 53 In sum, the creation of

the A-2 Division elevated the stature of military land

managers within the scientific community .

The problem of staffing persisted, however . In

1956, Kiltz wrote, "Our greatest need is for more

professionally competent employees ; however, technical

excellence is not enough . We need employees who know

military regulations and who sympathize with the

military problems of the installations or commands to

	During which they are assigned ." 54 his installation

14
visits, Kiltz pressed installation commanders to hire

professionals who understood land management . 55 The

installations' staffs usually recognized the value of

Kiltz's advice, but it took time for them to act upon

the suggestions . Many installations continued to do

without specialists who could advise a commander about

such issues as the environmental consequences of

training activities . When a commander inquired about

the effect of shrapnel on future timber harvesting or

the effect of tank training on erosion, often there was

no one qualified to answer . 56

Gradually this changed as the drive for professionalism began to pay dividends . For example, special

fire problems occurred in the pine areas of the

Atlantic Seaboard states . A peculiar weather phenomenon sometimes caused the jet stream to descend and

create extremely low relative humidities . As Wendell

Becton described the situation : "In the past these had

caused fires to run completely across whole states .

The prevailing opinion was that nothing could be done

	However, to combat such fires ." 57 installation

foresters devised an elaborate firebreak system and

successfully used large-scale controlled burning during

low danger periods to alleviate the problem .

During World War II, dire necessity forced Repairs

and Utilities to focus on land stabilization at Army

installations . Once this was accomplished, the ques

tion became what to do with the land . It took until

the mid-1950s for a policy to evolve . From the end of

the war until this time the land management planning

that took place was rudimentary in nature . One veteran

of this era states that the Army did not participate in

land management before about 1955 . 58

The 1958 version of Army Regulation 420-74 defined

Repairs and Utilities' land management goals : "These

regulations prescribe applicable procedures for the

1 5
economical maintenance of grounds and management of

land, conservation of agricultural and forested lands,

and establishment and maintenance of durable turf for

troop training, lawns, and recreation areas ." The

regulation called for "modern, progressive methods of

land management and improvement for all applicable

lands ." 5 9

Buildings and Grounds realized that installations

needed an organized approach . With this realization

came the birth of modern land management planning in

the Army . Before planning could be effective, people

would have to be trained to implement plans . On the

basis of an installation's acreage, Buildings and

Grounds established criteria as to how many and what

types of trained personnel were needed .

An agronomist generally headed an installation's

land management team . Foresters had a more limited

role and reported to the agronomists . 60 The agronomists reported up the chain of command to their

counterparts at the headquarters of the numbered

armies . The headquarters personnel closely cooperated

with the Buildings and Grounds Branch . Under Repairs

and Utilities, the Buildings and Grounds Branch Land

Management Section prepared policy and disseminated the

policy to the army headquarters . After review and

comment, a final policy evolved that guided installation procedures . All in all, there was a good

feedback network up and down the chain of command and

good coordination between the headquarters and

Buildings and Grounds . 61

By the end of the decade, land and forest

management had progressed from the scattered

application of Buildings and Grounds' broad management

policies to the widespread development and approval of

sound management programs .
Agricultural Leasing

Agricultural leasing programs began during World

World II . The first such programs were in place by the

1943 growing season . 62 As the program evolved during

and after the war, farmers leased open land around

airfields and ammunition storage sites . Their

activities formed buffer strips, controlled weeds, and

reduced maintenance costs . Army policy promoted

leasing because of its economic benefits . Local

farmers of good reputation worked under strict surveillance . Farmers whose land had been acquired by the

military initially had first priority in leasing the

land . By 1955, installations

highest local bidder . 63

consultation with county

rotation

if the

purposes . By 1956, the Army leased 992,894 acres . 64

awarded leases to the

National policy called for

agricultural agents on crop

and soil management . Leases could be revoked

Army again needed the land for military

Forest Management

During the 1940s and 1950s, there was a close

connection between the status of Army land management

and individual installations' forestry programs . Until

1942, the forestry program on Army reservations

operated under an old regulation prohibiting the sale

of timber except trees that had been so damaged that

	Inthey were unusable for construction purposes . 65

1942, Army regulations changed the definition of

damaged to include timber that had reached maturity and

was beginning to deteriorate . Two years later a new

regulation considerably broadened the criteria for

disposing of timber . 66

During World War II, large supplies of wood

products from Army reserves had been assembled for

1 7
shipment to Europe . The forestry activities of the

Allied Forestry Section

European Theater of operations were so successful that

these stockpiles were not needed . 67 When the war

ended, the stockpiles were sold as surplus property to

create a revolving fund to finance future lumber

procurement contracts at Army installations . This

revolving fund operated until 1952 . 68

Postwar forest management got off to a slow start .

Much of the forest land acquired during the war had

been heavily cut over and had little standing timber

left . 69 When Repairs and Utilities turned its

attention to timber management on military

lations after the war, it faced the same

confronting dust and erosion control efforts--lack of

trained personnel . Accordingly, the chief of Repairs

and Utilities, Colonel Frank Forney, requested that

the U .S . Forest Service loan forest management experts

so that productive timberland on military installations could be used . 70 The foresters were to assist

the War Department

Department policy

possible forestry practice

Repairs and Utilities

timber management plans .

of trained forestry

implemented such plans . Rather, it requested "simple

plans of management worked out in order to insure at

least reasonably good timber cutting ." 72 The division

also wanted timber harvesting to accord with watershed

protection needs at military installations .

In August 1947, Repairs and Utilities requested

the Forest Service to study forest resources . 73 Forest

Service experts reported in June 1948 that "at least

1,432,500 acres of the total forest land was free from

contamination and could, without limiting military

in "the formulation of broad War

which will correlate the best

with military plans ." 71

did not expect sophisticated

Given the Army-wide shortage

personnel, it could not have

1 8

the Chief of Engineers'

instalproblem
operations, be managed to yield 200 million board feet

of lumber annually ." 74 From this time, the Buildings

and Grounds Branch of the Repairs and Utilities

Division viewed proper timber management as the key to

profitable timber harvesting .75

The Forest Service's studies and reports pointed

out the economic potential of timberlands on Army

installations . i n addition, the earlier success of the

Army-Navy Lumber Agency's revolving fund program

"served to inform everyone that large supplies of

timber did in fact exist on lands held by the

services ." 76 The chief R&U agronomist, Walter Kell,

believed that the Corps could manage a sound forestry

program because he had seen the Corps' success in

France during the war . 77 He decided that Army

installations should each prepare a detailed forestry

plan using the Forest Service plan as a model . It was

"to show requirements for manpower by types, equipment

needed, suggested harvesting schedule, forces needed to

combat fires . . . where active firing ranges lay, how

to isolate them by construction of fire breaks ." 78

Each numbered army, operating under the general

guidance of the Buildings and Grounds Branch's Land

Management Section, attended to the task of devising a

forestry management plan . Skepticism greeted the

request for individual plans . Many officers felt that

installations "were so badly dudded and the trees so

full of metal that a forestry program was likely to

fail ." 79 At first, the Third and the Sixth Armies were

the only ones to show any interest in forest management . 80

In the Third Army, as elsewhere, installations

lacked foresters to devise management plans . The army

called upon the proven technical expertise of the South

Atlantic Division engineers . 81 Wendell R . Becton

received the assignment to assist the Third Army by

1 9
writing forestry management plans for each installation . The task involved detailed coordination and

cooperation with installation commanders who had to

treat forestry projects with the same seriousness as

other military missions . Becton found that "a knowledge of Army Staff operations that had been gained by

study and experience proved of great assistance in

tailoring forestry practices to the military situations

and having the plans accepted ." 82

Ultimately, such an ad hoc approach could not

endure . The Forest Service study had recommended that

a civilian chief manage the forestry planning process .

In 1950, Becton departed from active duty to fill this

position .

The Fort Benning Experience

The history of forest management at Fort Benning,

Georgia, shows the evolution of management practices .

In 1920, the Army requested that a Forest Service

employee inspect Fort Benning . The forester's report

recommended the employment of a forester on-site . The

report led to the establishment by executive order of a

national military forest in 1924 . The Forest Service

an organization to administer nearly 78,560

an agreement between the Secretaries of

and War . The laws and agreement recognized

established

acres under

Agriculture

that the land would be "subject to the unhampered use

of War or Navy Department ." 83

Three years later, the Forest Service requested

that the executive order be canceled, because "a forest

land use policy cannot be founded upon the notions and

	Inabsent interest of a shifting Army personnel ." 84

1936, the Army again requested Forest Service personnel

to make a detailed study of the fort's timber

resources . The foresters identified areas for cutting

20
and trained Army personnel in proper harvesting

techniques . They again recommended that a trained

forester be assigned to the installation . The fort's

expansion in World War II made this plan obsolete.

A third request to the Forest Service came in

1943 . The 1943 study determined that the 1936 plan had

been followed for about two years . Subsequent harvesting practices ignored its recommendations .

In 1948, a forester from the Forest Service

returned to Fort Benning . He found that cutting could

be performed without interfering with current military

practices provided there was constant supervision by a

capable person and continuous liaison with the Infantry

Center . However, such a person would have to start

from scratch because "there has been no continuity of

management or records of cutting ." The 1948 report

concluded that the installation's history "demonstrated

conclusively the futility of drawing up detailed

management plans without the continuity and guidance of

a well trained technical forester ." It criticized the

Army for merely expressing support for good forest

management without actually investing the resources

necessary to carry out such a program : "If one lesson

can be learned it is that the forest management

activity should be carried out by a technical forester

under the direction of the Army and not by an unrelated

agency on a personnel assignment basis ." 85

Forest Management Continuing Into_the 1950s

Meanwhile, in the late 1940s, the numbered armies

continued with the task of devising forestry management

plans for each installation . In the Third Army,

Wendell Becton began by writing broad policy statements . They described personnel and financial

requirements, equipment, and a harvesting schedule . He

2 1
displace the incumbent active-duty World War II

veterans .88

The Buildings and Grounds Branch received copies

of each installation's forestry plan . It did not

influence the plan's details but instead provided

oversight . While Buildings and Grounds nominally had to

examine such details as plans to erect watchtowers for

fire control at an installation, the few people

assigned to this top level of responsibility had more

than a full-time job establishing policy, approving the

detailed plans, and allocating money and manpower .89

Buildings and Grounds was the driving force propelling

the planning process . It verified that installations

made plans and that the plans appeared reasonable .

Around 1948, an unidentified R&U employee wrote

about the division's future direction . He asserted

that land held for military purposes presented a

tremendous national resource and that the timber

growing on military lands was vital to meeting national

emergencies whether they occur "this year, in five

years, or a hundred years ." 90 Past inattention had

reduced most of the forest lands to overgrown woodlots

containing undesirable species . The writer concluded

that either qualified personnel had to be assigned to

timber management or future harvests had to be

abandoned .9 1

When Kiltz joined Repairs and Utilities in 1951,

2 2
he found a well-managed office whose major job was to

keep track of projects started during the war years . 92

In addition to soils stabilization, major challenges

centered around forest management .

During the* early 1950s, the biggest problem

confronting Buildings and Grounds and Corps of

Engineers foresters in the field was fires caused by

training exercises . While each installation had a post

engineer, his major concerns were buildings and maintenance, not land management . Land management simply

was not part of most post engineers' experience . They

were ill-prepared to handle the special land management

problems caused by fires .

Fires happened with great frequency . As the Third

Army's forester observed, there was "no way to get

	Fires around it, fires are going to happen ." 93 had

been a persistent problem over the years . When

foresters in the Department of Agriculture examined the

problem, they concluded that "there was no reason the

Army couldn't successfully handle the problem ." 94

These foresters believed that it merely was a matter of

getting people assigned to the installations to do the

work . This suggestion hit at Buildings and Grounds'

core problem--the lack of trained personnel . According

to Wendell Becton, before 1950 "the Army dragged its

feet on making such assignments . It didn't want to

utilize scarce resources for this task . Thus the

problem lasted longer than it had to ."

When Becton became civilian chief forester in

1950, he immediately set out to address the fire

problem . His solution was to use the time-tested

forestry practice of controlled burns . Becton visited

installations where he worked with foresters to isolate

firing ranges by clearing fire breaks . This created

dedicated areas for exclusive use as firing ranges .

Becton told installation commanders, foresters, and

23
post engineers alike, "Forget trying to keep fires off

it, let it burn ." 95 Instead, fire breaks and prescribed burning on adjacent lands controlled the fires .

At Buildings and Grounds, the new chief of the

Land Management Section inherited the same problem for

installations nationwide . Forest and brush fires were

an all too common experience . Typically, some installation would have heavy rains that yielded tall grass .

Absent cutting or grazing, the grass would dry out and

catch fire easily . A rapidly spreading, tremendous

fire would start--in the West burning tumbleweeds

carried the flames--and there was little anyone could

do . Kiltz recalls, "First thing you knew, the whole

county was on fire ."96

Sometimes a fire spread beyond the boundaries of a

base and private landowners would sue . In one case at

Fort Bragg, Becton investigated a citizen's complaint

and determined that the owner had repeatedly experienced this problem . He sued not to recover losses but

to motivate the Army to control its fires . 97

Becton became known as a consistent champion of

the importance of fire prevention . Burton Kiltz, chief

of the Land Management Section, recognized that Becton

was more familiar with fire problems than anyone in the

Army . Kiltz endorsed Becton's solution, calling Becton

"the best salesman on the need to manage forests ." 98

Over time, Kiltz spread knowledge of Becton's fire

prevention techniques . Under his direction, Buildings

and Grounds began promoting fire control measures

including timber harvesting, building fire lanes, using

grazing to control combustible growth on nonforested

areas, and conducting controlled burns in forested

areas . 99

The fire control issue also highlighted another

problem : differing perceptions held by field foresters

versus headquarters agronomy personnel . Becton recalls

24
that Buildings and Grounds' suggestions were sometimes

geared toward cleared, cultivated areas and thus did

not accord with the management needs of rough,

uncleared woodland areas . He believed that the B&G

personnel were spread too thin to visit the field often

enough to understand forestry needs . 100

Simultaneously, B&G personnel felt that they

contributed to solving the fire problem by

disseminating information about control techniques .

Kiltz recalls that he personally visited installations

as often as possible, usually making at least one

inspection trip a month . 101 While headquarters and

field personnel worked toward the same goal, there

apparently existed some understandable tension stemming

from their different responsibilities .

Also in 1951, the Departments of the Army and

Agriculture issued a joint policy statement on the use

of national forest lands for defense purposes . The

statement recognized that national forests were vital

to the economy and for the defense production of the

country . However, "the use of national forests for

maneuvers and training will inevitably result in damage

to important natural resources and frequently inflict

damages of an irreparable nature ." 102 Consequently,

the Department of the Army pledged that it would try to

obtain alternative lands for maneuvers whenever

possible . Beginning in 1954, Buildings and Grounds'

Land Management Section expanded its cooperation with

the Department of Agriculture by compiling and

reporting annual reforestation data for all branches of

the Department of Defense . 103

Buildings and Grounds continued to request technical assistance from the Forest Service . In 1955, the

Chief of Engineers, Major General Samuel D . Sturgis,

Jr ., informed the Army Chief of Staff, General Maxwell

D . Taylor, about the ongoing good relationship and

25
close cooperation between the Corps of Engineers and

the Forest Service . 104 In particular, the two

exchanged information about research and development

activities related to forest management . Buildings and

Grounds participated in exchanges regarding forest and

grass fire prevention techniques, control of forest

insects and tree diseases, optimum timber production on

military lands, and wood preservation methods .

In response to the growing body of knowledge about

forestry and recognition of the value of forests, a

1955 regulation required that a woodland management

supplement to the approved land management plan had to

be completed for each Army installation having 100

acres or more of productive or potentially productive

timberland . 105 The same year, the Department of

Defense provided a statement regarding management of

woodlands : "Forest areas of commercial value shall be

maintained in accordance with the management plan which

will include provisions for the removal of dead,

diseased, or poor risk trees ; the harvesting of

merchantable timber ; protection from fire ; control of

disease and insects, reforestation, and other approved

practices ." 106

Not every installation complied with the Army

Regulation 420-74 dictates . In 1955, Redstone Arsenal,

Alabama, and Volunteer Ordnance Works, Tennessee,

requested assistance from forestry experts in order to

improve their timber stands . Examination of the record

revealed that neither installation had submitted an

approved woodland management plan nor did they have

trained foresters . Field inspections revealed that

although the installations lacked the formal plans

required by Army Regulation 420-74, they had responded

to the Army-wide growing awareness of the value of land

management . 107 At Redstone, all unimproved grounds

that would require mowing were under agricultural or

2 6
grazing leasing . At Volunteer, an extensive reforestation effort was under way . Neither of these findings

would have been likely before the advent of the Army

Regulation 420-74 planning mandate .

In 1956, Cyril B . Webster, the B&G forester,

addressed the annual meeting of the American Society of

Agricultural Engineers on the topic of managing

military woodlands . He explained that it was

Department of the Army policy to provide, to the extent

consistent with an installation's mission, "scientific

management of the installation woodlands in order to

conserve and protect natural resources, give proper

maintenance to military grounds, insure continuing

production of forest products useful to National

Defense ." The Chief of Engineers held the responsibility for making this policy effective as part of

his installation maintenance and repair duties . At

this time, the total reported acreage of Army woodland

was 1,940,154 acres in the United States, Alaska, the

Canal Zone, and the Caribbean . 108

The annual cost for "good management," including

protection for the 77 installations reporting woodland

in 1956, would have been about $2 million, according to

Webster . However, the actual cost to the installations

that year was about $0 .5 million, and the U .S . Treasury

received an income of about $1 .25 million from the

annual timber harvest . Webster believed that costs

would diminish as management was extended and that

"good forestry practices applied to the installations

need not constitute a drain on the taxpayer's

pocketbook, but will actually pay cash dividends ." 109

In 1958, Army Regulation 420-74 elaborated on what

constituted woodland management . Such management

included "the development and application of

technically sound operating plans and practices which

will insure the continuous production of designated

27
tree species ." 110 It defined a woodland as an area of

100 acres or more that produced or could produce

productive forest products . This meant that in

addition to standing timber capable of harvest for

pulpwood or sawtimber, treeless areas designated for

reforesting were classified as woodland .

One benefit of knowledgeable woodland management

practices was the cultivation of the specific types of

cover required for each training area . Such culti

vation created training areas without drawing on

appropriated military funds . This resulted in a

tremendous savings that was not generally acknowledged

by installation commanders when they considered their

budgets . 111

Another important benefit of good forestry

practice was that it prevented major insect problems .

As the Third Army forester recalls, "Insects are not a

	Becton big problem if you manage trees well ." 112

reminded installation commanders that thinning

increased the vigor of the remaining trees, and the

removal of infested or decaying trees kept harmful

insects from spreading . A woodlot required such

thinning once every 8 to 10 years . Becton helped

installations plan an 8- to 10-year maintenance cycle .

An installation's woodlands would be divided into 8 or

10 segments and one segment would be worked on per

year . The application of such forestry management

practices obviated the widespread use of chemicals for

woodland insect contro1 . 113

Wildlife Management

In the years following World War II, wildlife

management on Army installations consisted primarily of

enforcing all state and federal fish and game laws .

The dilemma presented by large animal populations

28
confined in fenced installations caused commanders to

turn to state fish and wildlife laws as the basis for

hunting policy . 114 However, consistent policies for

enforcement did not exist among military installations

until the 1958 passage of the Engle Military Lands

Bill . 115

Periodically, Repairs and Utilities sent installations regulations on the "Development and Conservation

of Wildlife on Military Reservations ." These both

stated existing policy and updated installation

commands about new federal and state laws . For

example, Repairs and Utilities issued a 1950 regulation, Army Regulation 210-480, to alert installations

that henceforth the Migratory Bird Treaty Act would be

operative on all military reservations and the Alaska

Game Law would be enforced in Alaska . The regulation

also addressed the enforcement of fish and game laws

and the duty of the commanding officer to issue hunting

and fishing permits . 116

Prior to the mid-1950s, wildlife management

programs existed on only a few installations . In 1949,

the passage of Public Law 81-345 initiated the first

official DOD wildlife program by providing for a fish

and wildlife program to be implemented at Eglin Air

Force Base in Florida . The law further provided that

the program be conducted in cooperation with the state

and the Interior Department and that the base could

sell special hunting and fishing permits and keep the

proceeds to sustain the program . The success of the

Eglin program ultimately led to the 1960 passage of the

Sikes Act, Public Law 86-797, which extended the law to

all military bases .117

In general, during the 1940s and 1950s, the public

lacked concern about wildlife on existing military

	However, lands . 118 the public prevented several Army

attempts to acquire more land that they viewed as

29
important for wildlife conservation . In 1941, public

pressure forced the Army to abandon plans for a

training center near North America's last refuge of

trumpeter swans in Montana. 119 The public also

objected in 1955 when the Army tried to incorporate

10,700 acres of a national wildlife refuge into the

Fort Sill Military Reservation . Conservationists

opposed this action and began to examine military

natural resources management policies . This examination led to the Engle Military Lands Bill . 120

Testimony on the bill provided a blanket

condemnation of military wildlife policies . When passed

as Public Law 85-337 in February 1958, the bill tried

to resolve basic conflicts between military and

civilian conservation agencies . It dealt with hunting,

fishing, and trapping on military reservations and

required that all such activities accord with state and

federal laws . The Engle Act also required state

licenses for hunting and fishing and granted access by

conservation officials for management and conservation

activities . 121

Outside pressure for public use of military lands

increased as a result of the vast increase in land

controlled by the Department of Defense . In 1940, the

military controlled 2 .5 million acres (excluding

Alaska) . By the early 1960s, the figure had risen to

28 .7 million acres .

122

Although they controlled a great deal more land

than ever before, post commanders did not make public

access to hunting and fishing a high priority . Any

plans for such recreation could not be allowed to

affect adversely the use of the land for military

purposes . When deer herds on bases got too big, only

military personnel received permission to hunt . Public

pressure eventually led to various forms of supervised

public access . Each of the field army headquarters

30
designed hunting policy with input from Buildings and

Grounds, the individual installations, and the

states . 123 The installation's land manager usually

handled wildlife management . 124 In 1960, the Sikes Act

and its provision for collecting and retaining license

fees gave installations the necessary incentive to

welcome public access .

Pest Control

The 1941 transfer of responsibility for military

construction and maintenance of Army installations from

the Quartermaster Corps to the Corps of Engineers

included most of the quartermasters' former responsibilities for controlling insects, rodents, and other

pests . Initially, much confusion occurred among the

Surgeon General, Quartermaster General, and Chief of

Engineers about who would now be responsible for what

aspects of pest control .

Procurement of pest control equipment and supplies

for indoor and outdoor use was one of the points of

contention . A series of letters and circulars

addressing these responsibilities began in March 1942

and culminated in War Department Circular No . 178 dated

7 August 1943 . 125 This circular, titled "Insect and

Rodent and Vermin Responsibilities in the Armed

Forces," made the engineers responsible for carrying

out pest control tasks on real property . This involved

such chores as draining for mosquito control, outdoor

spraying, and fumigation of entire buildings . The

engineers also had to procure their own supplies for

these functions . The Quartermaster General retained

responsibility for procuring pest control supplies for

routine indoor spraying . The Surgeon General and post

medical officers remained responsible for oversight of

pest control, including conducting inspections and

3 1
initiating and enforcing preventive measures . 126

Embarrassing newspaper publicity arising from a

squabble over who--the quartermasters or the

engineers--must procure poison to kill ants in one

installation office is said to have directly led to the

assignment of an entomologist to the Office of the

Chief of Engineers in July 1943 . 127

In July 1943, the OCE Repairs and Utilities Branch

established the Insect and Rodent Control Unit, which

later became the Entomology Section . An entomologist

for the U .S . Department of Agriculture, William D .

Reed, transferred to the Corps of Engineers to organize

and staff the entomology services at the Office of the

Chief of Engineers and at army headquarters and

installations . 128 The Corps of Engineers also held its

first entomology training course in the summer of 1943,

and the courses have continued on a regular basis since

that time . 129

As with other activities under the Repairs and

Utilities Branch, the lack of trained personnel greatly

impaired the mission : "During initial phases of

organization of the mission the engineers attempted to

provide technical and administrative leadership for

pest control activities with unsatisfactory

results ." 130 In the summer of 1943, Reed was the only

trained entomologist in the Corps of Engineers . Only

four or five types of pesticides existed, and there was

little equipment to apply them with . The unit cost of

pest control in 1943 was $6 .27 per 1,000 square feet of

buildings, a figure which decreased in subsequent years

as the technology improved . 131

Post engineers were responsible for pest control

activities to protect the health and morale of the

troops and to preserve property . Post engineers did

not become responsible for pests affecting trees or

other plants until the late 1950s . The post engineer

3 2
performed the work of spraying, supervised drainage

projects, and installed screens under the supervision

of the medical officer . 132

The Office of the Surgeon General provided "such

technical advice or recommendations as may be required

to aid the Chief of Engineers in carrying out his

	The functions in the Insect Control Program ." 133

Office of the Surgeon General also performed rodent and

mosquito control research, as well as providing Repairs

and Utilities with relevant publications advising post

surgeons and post engineers on such topics as "Methods

for Insect and Rodent Control ." 134

Repairs and Utilities largely confined itself to

information dissemination through circular letters on

such topics as mosquito control . Each month, J .L .

Vincenz of Repairs and Utilities submitted .a report on

insect and rodent control to the Surgeon Genera1 . 135

Repairs and Utilities' pest control activities focused

not just on pests affecting human health but on those

that harmed installation property . In 1945, Vincenz

provided Repairs and Utilities' perspective on the

damage caused by powder-post beetle attacks . Vincenz

described Repairs and Utilities' control strategy,

which relied upon the use of a solution of

pentachlorophenol . Repairs and Utilities employed this

approach based on practices developed by the Department

of Agriculture . He noted that application of the

chemical caused skin irritation to workers using the

chemical and recommended that applicators wear rubber

gloves and goggles . He sent his recommendations to the

Office of the Surgeon General for review . 136

Unusual evidence of early concern about the

environmental effects of pest control practices appears

in the November 1945 edition of Technical Manual 5-600 .

The section on "Airplane Spraying of DDT" states,

"Much still must be learned about the effect of DDT on

3 3
the balance of nature important to agriculture and

wildlife before general outdoor application of DDT can

be safely employed in the continental United States ."

The balance of the paragraph set forth procedures for

obtaining approval of such spraying . 137 However, such

concern about the potential harmful effects of toxic

chemicals rarely surfaced during the 1940s and

1950s . 138

The years following World War II saw the

development of new pesticides, better equipment, and

technical knowledge among the Corps of Engineers

entomologists . Ongoing entomology training courses and

updated technical manuals disseminated the growing body

of knowledge . The 1956 edition of Technical Manual 5-

632, Repairs and Utilities, Insect and Rodent Control ,

originally issued in October 1945, stated the

importance of field rodent control in preventing both

the erosion and the hazardous training conditions

caused by their burrowing . 139

On one occasion, the Entomology Section attracted

the unfavorable scrutiny of Congress . A soldier's

complaint of roaches and other insects reached his

congressman and led to a congressional inquiry into

unsanitary conditions at Fort Gordon, Georgia, in the

fall of 1957 . 140 The New Jersey recruit had been

horrified at the size of the cockroaches and the

abundance of insect life at Fort Gordon . The inquiry

determined that he was simply unfamiliar with the

effects of the southern climate on insects . No one

else at the base had complained, and the congressmen

concluded that Fort Gordon applied pesticides regularly

and effectively . 141
2 . Ibid .

1 . Mays interview .

Notes

3 . Merrill to Field Officers, Soil Conservation

Service (SCS) Letter #553, re : Cooperation with Army on

Erosion Control, 23 Dec . 1941, File 1, Bandel

collection .

4 . See draft memo on "Conference on Erosion Control at

Army Posts," 1 Dec . 1941, File 1, Bandel collection .

5 . Musser to Area Conservationists, 30 Dec . 1941, File

1, Bandel collection .

6 . "Due to the start of hostilities and the reorganization of the War Department, it has been difficult to

get organization procedure established ." Middleton to

Enlow, 17 Jan . 1942, File 1, Bandel collection .

7 . Musser to Area Conservationists, 30 Dec . 1941, File

1, Bandel collection .

8 . Kell to Seymour, re : Soil erosion control at Ft .

Wood, MO, 24 Dec . 1941, File 1, Bandel collection .

9 . Ibid .

10 . Mays interview .

11 . Morrish to Windom, re : Erosion control at Ft .

Knox, KY, 15 Dec . 1941, File 1, Bandel collection .

12 . Colman to Kell, re : Cooperation on erosion

control, 26 Jan . 1942, File 1, Bandel collection .

13 . See Ketcham's memo of 29 June 1943, re : "Personnel

and Organization of Army Installations for Erosion

Control and Grounds Maintenance Work," OCE General

Correspondence 1918-45, Box 775, Records of the Office

of the Chief of Engineers, Record Group 77, National

Archives, Washington, DC (hereafter cited as RG 77,

NA) .

14 . Ibid .
15 . For an example, see Roosa to utilities Officer,

re : Implementing SCS erosion control plans, 24 Jan .

1942, File 1, Bandel collection .

16 . Middleton to Enlow, re : Erosion control, 8 Jan .

1942, File 1, Bandel collection .

17 . Enlow to Cheek, re : Erosion control plans, 17 Jan .

1942, File 1, Bandel collection .

18 . Bennett to Regional Conservators, re : SCS

personnel detailed to War Dept ., 8 Apr . 1942, File 1,

Bandel collection .

19 . Morrish to Roth, 30 Oct . 1951, File 1, Bandel

collection .

20 . Enlow to Cheek, 4 June 1942, File 1, Bandel

collection .

21 . Kiltz interview . One former SCS employee, Ralph

H . Morrish, became chief land manager of the Repairs

and Utilities (R&U) Buildings and Grounds (B&G) Branch .

Morrish was instrumental in getting the branch started

between 1943 and 1945 . His successor, Walter Kell, was

one of the first SCS liaison representatives .

22 . Bandel interview .

23 . Middleton to Enlow, re : Erosion control, 10 Jan .

1942, File 1, Bandel collection .

24 . Kiltz interview .

25 . Ibid .

26 . Truax to Chief of Engineers, re : Dust control-at

airfields, 30 June 1943, OCE General Correspondence

1918-45, File 612, Box 775, RG77, NA .

27 . See File 618 .38, Box 782, OCE General Correspondence 1918-45, RG77, NA .

28 . Kiltz interview .

29 . Ibid .

30 . Vance W . Mays, "Evaluation of Vine Honeysuckle as

a Protective Cover for Earth-Covered Structures,"

presented at the 1959 annual meeting of the American

Society of Agronomy, File 2, Bandel collection .

31 . Rossell to Commanding General, Fifth Army, re :

Repair of Igloos, 18 Apr . 1947, File 2, Bandel collection .

36
32 . See File 2, Bandel collection, most of which is

devoted to discussion of igloos .

33 . Memo for Record on Meeting with Office, Chief of

Engineers representatives on Grounds Maintenance, 16 Nov . 1949, File 2, Bandel collection .

34 . Commanding General, Fourth Army to Commanding

Officer, Louisiana Ordnance Plant, re : Grounds

maintenance at ordnance installations, 8 Feb . 1950, File 2, Bandel collection .

35 . See File 2, Bandel collection .

36 . For a typical example, see HQ 5th Army to Chief of

Engineers, re : "Stabilization of Storage Pad Barricades," 9 Aug . 1955, File 2, Bandel collection .

37 . "Review of Criteria for Earth Cover on Igloos," 8

Dec . 1960, File 2, Bandel collection .

38 . Headquarters, Department of the Army, Chief of

Ordnance, re : "Earth Cover on Igloo Magazines," 28 July

1959, File 2, Bandel collection .

39 . Department of the Army, Guides and Procedures :

Repairs and Utilities , Technical Manual (TM) 5-600

(Washington, DC : November 1945), p . 66 .

40 . Ibid .

41 . Kell to Agronomists, 15 June 1949, File 1, Bandel

collection .

42 . Becton interview .

43 . Department of the Army, Repairs and Utilities :

Grounds , Army Regulation (AR) 420-74 (Washington, DC :

1958), in OCE Maintenance Management Branch, Policy

Section, Box 1, Accession No . 67-4785, RG77, Washington

National Records Center (WNRC), Suitland, MD . (Hereafter cited as Army Regulation 420-74, 1958 .)

44 . Ibid .

45 . Burton F . Kiltz, "Maintenance Planning for Army

Building Areas," presented at the Annual Meeting of

American Society of Agricultural Engineers, 21 June

1956, Vance Mays Papers, Office of History, Corps of

Engineers, Washington, DC . (Collection hereafter cited

as Mays papers .)
46 . HO 4th Army Engineer Letter #46, 28 Nov . 1949,

File 2, Bandel collection .

47 . Department of the Army memo 100-80-4, 27 Feb .

1948, cited in Engineer Letter #46 above, required

commanding officers at each Class I and II installation

to prepare such plans .

48 . Kiltz, "Maintenance Planning for Army Building

Areas," Mays papers .

49 . Kiltz interview .

50 . Becton interview .

51 . Kiltz interview .

52 . Ibid .

53 . Mays interview .

54 . Kiltz, "Maintenance Planning for Army Building

Areas," Mays papers .

55 . Kiltz interview .

56 . Mays interview .

57 . Becton, "Military Forestry History," p . 9 .

58 . Mays interview .

59 . Army Regulation 420-74, 1958 .

60 . Mays interview .

61 . Ibid .

62 . Alvin T .M . Lee, "Getting and Using Land in Time of

War," in Land : USDA Yearbook of Agriculture (Washington, DC : 1958), pp . 93-94 .

63 . Mays interview .

64 . 1) Lee, "Getting and Using Land in Time of War ."

2) Although planned by installation land managers, the

actual leases are administered by District Engineers

and the Real Estate Division, OCE, as is the actual

sale of timber . Becton interview .

65 . Burton F . Kiltz, "Progress of the Woodland

Management Program," presented at the 1964 Annual

Meeting of the American Society of Agronomy, November

1964, Wendell Becton Papers, Office of History, Corps

38
of Engineers, Washington, DC . (Collection hereafter

cited as Becton papers .)

66 . Ibid .

67 . 1) Wendell R . Becton, "Military Forestry History,"

p . 5, File 3, Bandel collection . 2) Correspondence,

Becton to authors, 2 Feb . 1988 .

68 . Ibid ., p . 6 .

69 . "Resume--DA Forest Management Program," no date,

File 3, Bandel collection .

70 . Forney to Watts, re : loan of foresters to Army, 28

June 1948, File 1, Bandel collection .

71 . Crawford to Chief, U .S . Forest Service, 6 Aug .

1947, File 1, Bandel collection .

72 . Ibid .

73 . Ibid .

74 . Forest Management Weekly Log--Week Ending 25 June

1948, File 1, Bandel collection .

75 . Ibid .

76 . Becton, "Military Forestry History," p . 6 . This

agency had coordinated military lumber procurement

contracts in the years following the war . See also

Becton to authors, 2 Feb . 1988 .

77 . Becton interview .

78 . Becton to authors, 2 Feb . 1988 .

79 . Becton, "Military Forestry History," p . 7 .

80 . Kiltz to author, 23 Mar . 1988 .

81 . Because of its work for the Army-Navy Lumber

Agency, the division had foresters, timber estimators,

and other technical help . See Becton to authors, 2

Feb . 1988 .

82 . Becton to authors, 2 Feb . 1988 .

83 . E .T . Hawes, "Report on Forest Management Activities & Possibilities at Fort Benning, GA," 1948, File

1, Bandel collection .

84 . Ibid .

39
85 . Ibid .

86 . Becton, "Military Forestry History," p . 8 .

87 . Becton interview .

88 . Ibid .

89 . Ibid .

90 . Report on role of R&U in land management, no date,

File 1, Bandel collection .

2 Feb .

102 . U .S . Department of Agriculture/Army Joint Policy

Statement on Forest Lands, approved 3 July 1951 by

Secretary of the Army Frank Pace, Jr ., File 1, Bandel

collection .

103 . Records of the R&U Division, B&G Branch, Land

Management Section, Reforestation Report Files, Box 11,

RG77, Accession No . 64A-2124, WNRC .

104 . Sturgis to Taylor, re : Cooperation with Forest

Service, 6 July 1955, File 1, Bandel collection .

105 . HQ 5th Army, "Forestry Management and Coordination with United States Forest Service," 10 June

1955, File 1, Bandel collection .

4 0

91 . Ibid .

92 . Kiltz interview .

93 . Becton interview .

94 . Ibid .

95 . Ibid .

96 . Kiltz interview .

97 . Becton interview .

98 . Kiltz interview .

99 . Ibid .

100 . Becton interview ; also Becton to authors,

1988 .

101 . Kiltz interview
106 . Department of Defense (DOD) Instruction 4150 .6, 7

June 1955, cited in Kiltz, "Progress of the Woodland Management Program," p . 5 .

107 . C .B . Webster, Report of special visit to ordnance

installations, 16 Dec . 1955, File 2, Bandel collection .

108 . Cyril B . Webster, "Managing Military Woodlands,"

presented to the Annual Meeting of American Society of Agricultural Engineers, 21 June 1956, Mays papers .

109 Ibid .

110 . Army Regulation 420-74, 1958 .

111 . Becton to authors, 2 Feb . 1988 .

112 . Becton interview .

113 . Ibid .

114 . Mays interview .

115 . G . Blair Joselyn, "Wildlife Management on

Military Installations--A Critique of Army Policy,"

Journal of Wildlife Management, 29, No . 1 (January 1965) : 216 .

116 . Department of the Army, Installations : Development and Conservation of Wildlife on Military Reservations , Army Regulation 210-480 (Washington, DC : 17

August 1950), OCE Maintenance Management Branch, Policy

Section, Box 1, RG77, Accession No . 67-4785, WNRC .

117 . E .J . Bedker, "National Security Management :

Renewable Natural Resources," 1979, p . 14, File 3,

Bandel collection .

118 . Joselyn, "Wildlife Management on Military

Installations," p . 215 .

119 . Lenore Fine and Jesse A . Remington, The Corps of

Engineers : Construction in the United States

(Washington, DC : Government Printing Office, 1972), p .

347 .

120 . Joselyn, "Wildlife Management on Military Installations," pp . 215-216 .

121 . Ibid .

122 . Ibid .

123 . Mays interview .

4 1
124 . Becton interview .

125 . Rough draft of chapters for Army Medical History

WWII, 1945, WWII Administrative Records ZI, Box 1257,

Entry 31(21), Records of the Office of the Surgeon

General (Army), Record Group 112, National Archives (hereafter cited as RG112, NA) .

126 . Ibid .

127 . Ibid . Also see handwritten draft, "The Army

Engineer Entomology Program," no date, File 3, Bandel

collection .

128 . "History of Engineer Entomology Services," no

date, File 3, Bandel collection .

129 . Handwritten draft, "Current status of Entomology

Services," no date, File 3, Bandel collection .

130 . "History of Engineer Entomology Services," no

date, File 3, Bandel collection .

131 . Handwritten draft, "Current Status of Entomology

Services," File 3, Bandel collection .

132 . TM5-600, November 1945, pp . 73-76 . Also see

Department of the Army, Repairs and Utilities : Insect

and Rodent Control , TM5-632 (Washington, DC :

Government Printing Office, February 1956), pp . 112-

121, for material on plant-attacking pests .

133 . Robinson to Chief of Engineers, re : "Funds for

mosquito control," 17 Aug . 1942, OCE General Correspondence 1918-45, Box 838, RG 77, NA .

134 . WWII Administrative Records ZI, entire contents

Boxes 1263 and 1262, Entry 31(21), RG112, NA .

135 . OCE General Correspondence 1918-45, Box 838,

RG77, NA .

136 . Vincenz to Reagan, "Recommendations for Use of

Pentachlorophenol-oil Solutions in Treating Seasoned

Lumber for Insect Control," 29 Oct . 1945, OCE General

Correspondence 1918-45, Box 838, RG 77, NA .

137 . TM5-600, November 1945, p . 75 .

138 . 1) Kiltz interview . 2) TM5-632, February 1956,

p . 30, presents a much weaker warning about DDT than

that in TM5-600 of November 1945 .

42
139 . TM5-632, February 1956, p . 132 .

140 . Brown to Chief of Engineers, re : Congressional

inquiry of alleged unsanitary conditions at Ft . Gordon,

25 Oct . 1957, O&M Administrative Files FY 58,

Entomology Section, Box 11, RG77, Accession No . 64A2124, WNRC .

141 . Ibid .
CHAPTER 2

The 1960s--Responding

to the Public's New Interest

in Natural Resources

Erosion Control

By the 1960s, problems with dust were largely

under control, but erosion persisted as a concern for

the Buildings and Grounds Branch . Tank training

maneuvers tore up the ground cover and caused erosion .

Land management personnel were responsible for ongoing

cleanup and revegetation of training areas . 1

In 1961, staff visits uncovered extensive erosion

damage of ammunition storage igloos . As a result of

this discovery, Buildings and Grounds suggested the use

of aggregate as an erosion control measure in arid

zones where vegetation could not be established . 2

Grounds Maintenance

During the 1960s, landscaping for its own sake

in importance . Maintaining installations in a

spartan simplicity, the guiding principle of

became unpopular with the public . The public

pressure the military to beautify its bases .

grew

state of

the past,

began to

One common source of pressure came from local garden

clubs that donated shrubs to the bases . At Buildings

and Grounds, chief agronomist Burton Kiltz received

calls from installation engineers asking what to do

about the arrival of truckloads of shrubs, as such an

influx was disruptive to the landscape development

plans . "Plant them and hope they die," was his

45
answer . 3 However unwilling, installations felt they

had to accept such donations because it was good public

relations .

Public pressure, coupled with the active interest

of the First Lady, Lady Bird Johnson, eventually led to

changes in DOD and Army policy . The 1966 version of

Army Regulation 420-74 was the first to include among

its objectives the requirement to "beautify the

appearance of installations and facilities through

appropriate landscaping ." 4 The regulation set forth

responsibilities for mowing lawns and for maintaining

playing fields, golf courses, parade grounds, and

cemeteries . It also specified that grounds maintenance

responsibilities on overseas installations should

conform to the prevailing practices of the host

	Army country . 5 policy further required that all new

construction projects must preserve natural features of

the site and include lawns and landscaping . 6

Poorly planned landscaping in the early years of

an installation led to problems later . Installations

often chose shrubs solely for their low price and fast

growth without regard to hardiness and planted them in

excessive numbers too close to buildings . Expensive

maintenance resulted, including removal of dead

plantings, transplanting, and radical pruning .?

Another type of problem arose during a major drought in

1966 . B&G land managers faced the unusual task of

developing irrigation systems for the dying grass of

cemeteries in the Northeast .$

Land Management

The 1960s saw the growing sophistication of the

land management concept and continued efforts to expand

and improve the professional land management staff

throughout the Army . During the early part of this

46
decade, management for "multiple use," "sustained

yield," and protection of natural resources became DOD

and Army policy in response to the enactment of public

laws . Although the Multiple Use, Sustained Yield Act

of 1960 applied to national forest management, the

Department of Defense also endorsed it . 9

The multiple use concept as cited in Army

Regulation 420-74 in 1961 involved "a coordinated

program of land management and improvement

applied on a multiple use basis to provide maximum

military use ; control vegetation to prevent destructive

fires ; stabilize soil to control erosion; protect

natural resources ; sustain productivity of croplands,

grasslands, and timberlands ; and encourage fish and

wildlife ." 10 Henceforth, land management had to

support not only military training, but such additional

uses as agriculture, timber production, and recreation .

Buildings and Grounds staff put much effort into

overhauling Army regulations and technical manuals to

reflect these changes .ll

Planning requirements expanded to include a

landscape ; land management, and woodland management

plan for each installation . Each army headquarters

reviewed and revised these plans . The Buildings and

Grounds Branch held ultimate authority for them .

Buildings and Grounds reviewed approximately one land

management plan per week during this period . It had to

heavily revise some of them because they were written

by unqualified people . With the chief agronomist

occupied in reviewing plans, the assistant agronomist

and the forester at Buildings and Grounds performed

installation inspections . They each averaged one

	Installations inspection per week . 12 also submitted

landscape development plans to Buildings and Grounds,

but the chief agronomist rarely had time for them . 13

As before, the need for more foresters and

47
agronomists remained pressing . Buildings and Grounds

lacked sufficient time and personnel to carry out field

visits to all the installations . A command consensus

on this problem proved difficult to reach . The staffs

at Buildings and Grounds and at the numbered army

headquarters each thought the other should be making

more field visits . 14

Overall, developments in

at Buildings and

reported successes or failures

Grounds ; Buildings and Grounds,

these experiences by making policy

During the late 1960s,

apparently attempted to

the supervision of the

However, the Land Management Section retained control

of forestry, arguing, "The Army holds land for military purposes and not to raise trees . We are not

trying to compete with the forest industry but are

using the military land effectively on a multiple use

basis . Forestry is just a part of land management ."17

the field mirrored events

installations promptly

to Buildings and

in turn, reflected

changes . 1 5

forestry personnel

separate forest management from

land management agronomists . 1 6

Grounds :

Agricultural Leas ing

Buildings and Grounds continued to actively

promote agricultural leasing during the 1960s . Installation commanders had to examine land "constantly" to

determine its availability for leasing . 18 In 1960, the

Army leased more than

agricultural use, with

three-quarters of the

collected approximately

leases . 19 In 1964, the Office of the Chief of

Engineers studied the possibility of installations

keeping the rental income to use for base maintenance,

but no sponsor volunteered to champion the cause and no

a million acres of land for

grazing comprising close to

acreage . The U .S . Treasury

one million dollars from these

48
change resulted, nor would it for another two

decades . 20

The Buildings and Grounds Branch recognized,

however, that the Army derived benefits from

agricultural leasing that went beyond the money

collected for rent . The lessees provided mowing, weed

and brush control, fence construction and repair,

correction of drainage problems, construction of fire

lanes, and control of field rodents at no cost to the

installations . An additional benefit was fire

prevention : land leased for grazing experienced a

reduction in the underbrush and grasses that could fuel

serious fires . Were the land not leased, an installation would have been required to deplete its limited

maintenance budget for these purposes . An indication

of the value of leasing comes from three installations

that in 1960 reported annual maintenance cost savings

per acre ranging from 53 cents to $6 .66 . 21

W .G . Ralph, an agronomist with the Buildings and

Grounds Branch, worried about the future of agricultural leasing because, "if the trend of reduced funds

available to installations for maintenance continues,

it appears that lessee maintenance participation will

become increasingly more important ." 22 He noted that

unless an installation commander could justify agricultural leasing in terms of dollars, the leasing would

cease and the installation would have to either pay for

the land's upkeep or allow it to become an unsightly

jungle . He suggested that the value of the post

engineer's time should be included in calculations of

the savings from agricultural leasing . 23 A 1967

calculation estimated that agricultural leasing netted,

above and beyond rental payments, approximately two

million dollars in services such as mowing, fence

repair, and fire prevention . 24

The growing importance of both conservation and

49
recreation in Army land use planning began to influence

leasing decisions . This is illustrated by provisions

in the 1966 edition of Army Regulation 420-74 that

required installation commanders to report on conservation measures to be taken by lessees . In addition,

wherever possible, leases had to provide for safe

public recreational use of the leased land . 25

Forest Management

Army regulations required forest

programs on Army installations that had a

100 acres of productive or potentially

woodlands . The stated objectives of forest management

included facilitation of the military mission, protecting woodlands from exploitation and depletion,

maximum production of forest products, development of

live reserves for mobilization, contribution of forest

products to the economy, watershed protection, and

erosion control . However, the military mission of

troop training remained the primary concern of woodland

management . The public relations benefits of selling

timber on a regular schedule made such sales an

important secondary goa1 . 26 Each dollar realized from

Army timber sales in fiscal year 1967 generated $25 of

economic activity for local logging, transport,

manufacturing industries . 27

The concept of multiple use as applied to forest

management required that each acre of woodland support

as many other uses as could coexist with military use,

including timber production and sale or improvement of

wildlife habitat . Forests were also to be managed for

a "sustained yield" of trees over time . Wendell

Becton, Third Army forester throughout the 1950s and

1960s, recalls that Army foresters practiced multiple

use management from the beginning of the forestry

50

management

minimum of

productive

and
program, long before it was known by that name . 28

As was true of leased agricultural land, the

benefits of management activities outweighed the costs .

Woodland was much cheaper to maintain than any other

type of cover . Unmanaged forests would have grown

thick, tangled, and - fire-prone to be useful

military training . 29

woodlands held priority

forest management activities would still have

necessary in the absence of military use .

attacking insects and diseases, and

required control regardless of the land's

The major costs associated with

management included planning, purchase of

preparation of land for reforestation,

equipment and supplies, construction and maintenance of

roads and trails, timber marking, and fire prevention

and control .31 Among the benefits were opening access

to wooded areas for troop training, firefighting,

timber harvesting, and base security patrolling ;

providing cover for training ; fire prevention ; insect

control ; watershed protection ; habitat improvement ;

economic activity for timber-related industries ; and

beautification . 32

The Army woodland management program also included

the development of scenic corridors along highways and

around cantonments, shorelines, and public recreation

areas . Pines planted along roads provided both snow

fences and winter cover for wildlife . 33

Timber Sales Proceeds Won

too

for

Although military use of

over all other uses, most

been

Fires, treesoil erosion

use . 30

Army forest

seedlings and

purchase of

The year 1961 saw the resolution of an important

conflict affecting the Army forestry program . Funds

for forestry operations had come from regular grounds

maintenance budgets . Revenues derived from timber

5 1
harvesting were exceeding costs . The question arose,

"Why not carry all forest management costs from

proceeds?" 34 The question became more urgent in the

late 1950s, when all types of military funding

declined .

In 1959, the commanders at Forts Benning and

Stewart, two of the Army's most productive timber

harvesting installations, forced the issue by with

holding forestry funds . The commanders publicized the

consequences of this act, informing both the Army and

the private sector that timber harvesting on their

bases would cease . 35 Their superior officer, General

Clark L . Ruffner, went to the Secretary of the Army to

propose special legislation to authorize using timber

harvesting revenues to cover costs . Ruffner's intercession failed .

Meanwhile, commercial loggers

supplies from Forts Benning and Stewart suffered .

complained to their

whom was Senator

powerful chairman

Russell "worked out a revolving fund so that part of

the money from sale of timber from military land went

back into management of the forests ." 36 Russell's plan

became Section 511, Public Law 601, 86th Congress, in

1961 . It stated that "appropriations of the Department of Defense available for operation and maintenance

may be reimbursed during the current fiscal year

. . . for all expenses of production of lumber or

timber products . . . from amounts received as proceeds

from the sale" of the timber . 37

Hailed by the timber industry as "one of the most

important steps ever taken for conservation in this

country," the law had dramatic impact upon Army

	Much forestry practices . 38 of the progress made in

forest management and timber production dates from the

who depended upon

They

congressmen, the most important of

Richard Russell of Georgia, the

of the Armed Forces Committee .

5 2
resolution of the funding uncertainty that existed

prior to 1961 . In comparison to the seven years

preceding the change, the next seven years saw the

number of woodland acres on Army installations increase

slightly from 1 .1 to 1 .5 million . Yet concurrently,

the gross income derived from these lands soared from

10 .5 million to 26 .7 million . 39 From the time of the

passage of Public Law 86-601, forestry operations on

military installations required no appropriated funds

during the 1960s . 40

Of a total of 70 Army installations with active

forest management programs, 12 operated at a profit in

1964, 18 were profitable by 1965, and 50 were expected

to turn a profit by 1975 . However, the Army forestry

program as a whole made a profit throughout the

1960s . 41

As a result, the scope of Army forest management

expanded greatly . In fiscal year 1967 Army installations planted a total of 9,742 acres of trees,

completed 20,672 acres of stand improvement, built

1,108 miles of fire lanes and access roads, maintained

another 6,753 miles of road, harvested trees from

129,000 acres, and conducted controlled burns on

197,000 acres . In addition, 89 million board feet and

205,000 cords of wood were sold . 42 Eighty percent of

the woodlands managed by the Army at this time had been

acquired as open or sparsely wooded land during World

War 11 .43

Organi zation, Planning, and Staffing

By its nature forest management responsibility

tended to be decentralized . The basic responsibility

resided at the installation level because of the unique

soil and climate conditions at each location . 44

Foresters at the installations usually worked from the

53
post engineer's office . Each army headquarters within

the Continental Army Command (CONARC) and the Army

Materiel Command also employed a forester . 45 The role

of the chief forester at the Buildings and Grounds

Branch remained that of providing technical assistance

and reviewing management plans for the installations .

The Army first required woodland management plans

for installations in 1954 . 46 By 1962, most installations with 100 acres or more of forest lands had put a

plan into effect, although a few bases had not yet

activated their plans or made the required revisions as

of late 1963 . 47 By late 1964, 65 installations had put

their woodland management plans into effect . These

plans were considerably more sophisticated than the

plans of the mid-1950s . 48

Each Army installation submitted woodland

management plans, which were essentially a series of

annual work plans, to the appropriate army head

quarters . The headquarters, in turn, provided copies

of these plans and their revisions to CONARC and

Buildings and Grounds . 49 The plans had to be revised

at approximately five-year intervals, although some

required annual revision . 50

Throughout the 1960s, inadequate staffing

be a widely recognized problem . A 1964

Service study of woodland management

the Second Army commander concluded that

level was "wholly inadequate

*

-51

and Grounds studied Army-wide

response to complaints about its

identified staffing as a primary

the forestry program reaching its full

Less than 60 percent of the needed

forestry manpower had been hired . In

1968, Buildings and Grounds again stated that forestry

staffing remained "at an austere level ." 52

continued to

U . S . Forest

requested by

the current staffing

In 1965, Buildings

forestry staffing in

adequacy . The study

obstacle to

potential .

professional

54
Army foresters saw only limited value in the use

of consultants or contractors to alleviate the shortage

of professional forestry personnel . The B&G forester

in 1963 asserted that experts borrowed from other

agencies were effective only when working on very

specific problems and that consultants had to work

closely with Army foresters to be satisfactory . 53 The

Third Army, which encompassed two-thirds of all managed

Army woodlands and had the longest experience in Army

woodland management, used contractors for tree

planting, spraying, and timber inventories, but

considered such tasks as firefighting, fire lane

construction, and timber marking to be unsuitable for

contracting .54

However, funds were frequently available for staff

training even when personnel funding was scarce . The

command level provided the training . For example, the

Sixth Army agronomist conducted training sessions for

installation land management personnel, and the Army

Ordnance Corps agronomist also offered natural

resources management workshops in cooperation with

several universities .-

Fire Prevention and Control

The prevention and control of fires caused by

training exercises remained a persistent concern of

forest management . Forest management programs spent 50

to 60 percent of their budgets on fire protection . 56

The Third Army, which had woodlands over 80 percent of

its area, reported an average of 900 fires a year by

the mid-1960s . 57

Weed and brush removal was an important fire

prevention activity . Technicians employed controlled

burning or herbicides to clear brush from woodlands .

Buildings and Grounds' former chief agronomist recalls

5 5
that the Army used herbicides liberally through the

mid-1960s . 58 The Third Army forester during that

period reports that although chemicals did not play a

big role, herbicides were sometimes a necessary

alternative when conditions were too dangerous for

prescribed burning . 59

Timber Production, Harvesting, and Sale

management

ratio . 60

mation on

armies .

burning

programs . By planting reforested areas with sufficient

space between the rows of trees, troops and vehicles

could maneuver during training . The open strips

between the rows could occasionally be leased for

agriculture, thus accomplishing weed control while

making money . 61

The harvesting and sale of timber, although

secondary to the use of woodlands for military

training, paid for all other forest management

activities . Army regulations authorized timber harvesting for three reasons : to create training areas,

maximum sustained productivity, and to

maintain the health of woodlands by removing sources of

disease or insect infestation . 62

An installation would make a declaration of

availability and send it to the B&G forester for

review . If he approved it, the Department of Defense

and other departments reviewed their need for the

timber . Only if they did not require the timber would

it be made available for disposal to the public sector .

District Engineers awarded and administered timber

to ensure

The Third Army conducted a profitable forest

program, yielding a 3 to 1 profit/cost

Buildings and Grounds disseminated infortheir experience and methods to the other

Third Army expertise in both controlled

and reforestation benefited other Army

5 6
Gordon . Other bases sometimes tried to use forestry

funds to build roads needed for troop training . The

lesson learned from the experience was that it was

"important to ride herd" on forestry monies to ensure

they were correctly spent . 64

Two different studies also found fault with the

administration of timber harvesting and sales . The

U .S . Forest Service believed that the Real Estate

Division, which administered sales, was too far removed

from the activity . They suggested that Real Estate

establish a close liaison with post foresters because

the foresters would be better able to develop local

timber markets . 65 A 1966 DOD audit found that

installations were not effectively controlling and

monitoring the amount of timber removed during

harvests . A lack of security measures during cutting

facilitated the theft of timber from the installations . 66

Foresters recognized the link between sound

forestry practices and the growth of wildlife

populations . The diverse cover created by forest

management activities was known to be attractive to a

wide variety of birds and animals . According to Eugene

Oren, the B&G forester during most of the 1960s, "It is

not by accident that the best hunting occurs on the

installations with the most active timber harvest

programs ." 67

5 7
Wildlife Management

The 1960s saw continuing public pressure on the

Army to open its lands to public recreation, especially

hunting and fishing . Public interest in wildlife

conservation also gained momentum during the decade .

In response to public demand, the passage of the Sikes

Act (Public Law 86-797) in September 1960 provided the

legal basis for wildlife conservation and public access

to recreation on military land . The Sikes Act, along

with its subsequent amendments, has remained a major

influence on Army natural resources management policy

until the present day . 68

The act intended "to promote effectual planning,

development, maintenance, and coordination of wildlife,

fish, and game conservation and rehabilitation in

	Itmilitary reservations ." 69 authorized public

recreational access to military land and the collection

of fees for this privilege . It also authorized the

formation of cooperative plans among the Department of

Defense, the Department of the Interior Fish and

Wildlife Service, and state fish and wildlife agencies .

The cooperative plans, in turn, specified how to

develop and manage fish and wildlife resources on

military installations . The cooperative plan required

an installation to provide a general inventory of fish

and wildlife resources . The plan also established a

research and development program and described the

extent of public participation in the harvest of fish

and game . 70

The 1962 Army Regulation 210-221, "Natural

Resources--Management and Harvesting of Fish and

Wildlife," reflected contemporary concerns in its

statement of policies and procedures . The regulation

decreed that all Army personnel "must support national

58
conservation policies and programs ." Henceforth, an

important function of command management should be an

"intelligent and sympathetic understanding of natural

resources and recreation problems ." 71

In accordance with the provisions of the Sikes

Act, Army Regulation 210-221 required installations to

provide as much public recreational access as possible

without impairing the military mission . Any limitations or denials of such access had to be justified

in writing . In addition, the 1962 regulation stated

that, where possible, outleased land on military

installations was to be made available for public

recreation . The regulation further required annual

reports to the Office of the Chief of Engineers on the

extent of public access provided at each installation .

The planning tool to accomplish the regulation's

intent was the cooperative plan . The Departments of

Defense and the Interior had developed a model

cooperative plan for use by installations . Those with

suitable wildlife areas used the model to develop their

own plans . Finally, installation commanders were to

appoint conservation committees to coordinate conservation efforts . The suggested composition of these

committees included land management and engineer

personnel . 72

The 1960 passage of the Sikes Act led to the

widespread opening of military areas to public

recreation by 1962 . 73 Although outdoor recreation

included camping, picnicking, boating, swimming, and a

activities, hunting and fishing

demand by both the public and

Military personnel and their

first priority on recreational

	Public use of military land . 74 access could also be

restricted by the lack of funds and personnel needed to

police an installation and ensure public safety . Some

host of other outdoor

were in the greatest

military personnel .

families received the

59
bases required elaborate military security precautions . 75

The fees collected for hunting and fishing

licenses supported installation wildlife management

activities . These fees were frequently insufficient,

so the 1968 amendment to the Sikes Act authorized the

use of appropriated funds commencing in fiscal year

1969 . However, installation commanders were reluctant

to use appropriated funds for wildlife management

because they had higher operational priorities . As a

result, Buildings and Grounds proposed increasing

license fees to provide a steadier source of funding . 76

In the opinion of one critic, who had served as

conservation and wildlife management officer at Fort

Riley, Kansas, from 1960 to 1962, "Of the three

military services, the Army has placed the least

command emphasis on wildlife management programs ." 77

Although some good programs existed (including those at

Camp A .P . Hill, Virginia, and Fort Gordon, Georgia) and

a 1962 Army regulation prescribed general policies and

procedures for wildlife management, "coordinated,

centralized direction from the Department of the Army

. . . did not follow, and successful implementation of

this regulation will no doubt be hindered ." 78 Lack of

regulatory emphasis on staffing and lack of sufficient

funding were additional hindrances to the development

of good wildlife management programs . 79

In addition to requiring annual management plans

and consultation with state and federal fish and game

experts, Army regulations specified which wildlife

management techniques should be used . The 1966 version

of Army Regulation 420-74 identified habitat improvement as the primary means of wildlife management .

Stocking of fish and wildlife or introduction of

nonnative species was to be avoided with few

exceptions, as was the wholesale destruction of

6 0
predator species . The regulation also called for

preservation of wetlands and endangered species,

although public law did not address endangered species

until 1973 . 80

Wildlife population control, planting feed crops,

and opening clearings for wildlife became land

management responsibilities of the post engineers .

They employed such forest management practices as

controlled burns and firebreak construction to provide

additional food and habitat for wildlife . They also

had to protect wildlife from fires, poachers, and

predators . 81 During the 1960s, forest management

personnel often doubled as wildlife managers or game

wardens . Only rarely did bases place sufficient

priority on wildlife to justify employing full-time

civilian wildlife managers . 82

State wildlife agencies provided installations

with plants, animals, and advice, while the installations, in turn, furnished excess animals for the

other areas . 83 Excessive deer

ongoing problem on many bases,

that could not allow public hunting

and

states to stock in

populations were an

especially those

for security reasons . Collisions

vehicles occurred frequently . 84

In fiscal year 1966, 100 major Army installations

had programs for developing

of these, 51 granted liberal

public use, 28 restricted public access because large

resident military populations used all available

capacity, and 21 restricted all recrebecause of conflict with military use . 85

110 installations operated fish and wildlife

management programs . 86

The passage of the National Environmental Policy

Act in 1969 marked the beginning of a new era of

consciousness . The act established

in the United States

recreational resources .

resources to

ational use

By 1969,

environmental

6 1

between deer
federal agency goals for enhancing and preserving

natural resources, created the Council on Environmental

ment . In fact, some of the

the act had already taken effect in the Army prior to

its passage . 88

Pest Control

aerial spraying ; and applying

saw the continued development of

6 2

basic policies mandated by

The Buildings and Grounds Branch's Insect and

Rodent Control Services became the Engineer Entomology

Services in 1961 in response to advice from the Armed

Forces Pest Control Board . 89 Army Regulation 420-76

formalized the change and described the duties of the

Engineer Entomology Services . They were "the supervision, execution, and evaluation of pest control

	This operations ." 90 involved conducting inspections

both to determine the need for control measures and to

assess the effectiveness of applied control measures .

The new regulation charged the entomology services with

disinfesting stored supplies, generally by fumigation ;

using wood preservatives ; applying pesticides as soil

poisons ; draining, ditching, and clearing and

controlling vegetation to prevent mosquito and fly

breeding ; controlling lawn pests ; controlling rodents

and predatory animals ; participating in the pest

control phases of woodland and wildlife management

programs ; supervising

pesticides .

The 1960s

Quality, and introduced the environmental impact

statement process . 87 The act's provisions and the

increased public awareness of environmental issues

influenced all future Army natural resources manageestablishing procedures in connection with 11

activities : controlling termites, wood borers, and

wood rots ; ratproofing and screening structures ;
numerous and diverse new pesticides . The Engineer

Entomology Services struggled to keep abreast of these

advances . H&G entomologists responded to what they

perceived as an urgent need for guidance on the use of

improved but more dangerous pesticides . The result was

Army Circular 420-3 issued in 1964 . It noted that new

pesticides and dispersal equipment "provide for

selection from a wider range of items for spraying,

dusting, application of fumigants, and use of poison

baits . This has necessitated the development of

improved methods and techniques for use by pest

controllers at installations ." 91 More powerful poisons

meant increased risk . Accordingly, the circular

stressed the need for greater vigilance and noted that

"the improper or careless use of these, pesticides and

equipment by untrained personnel may result in contamination of areas treated and the introduction of health

hazards ."g 2

Throughout the decade, the basic mission of pest

control remained "combatting disease, maintaining

morale and efficiency, and preventing property losses ."

As knowledge and technology expanded, Army pest control

expanded its scope to include protection of stored

food, forested areas, shade trees, and grassed areas

from loss or damage . At this time the Army could boast

that preventive measures had reduced the incidence of

pest-borne diseases to the "lowest point in military

history ." 93

In fiscal year 1967, the unit cost of pest control

was $5 .43 per 1,000 square feet of building area . This

represented a savings of 84 cents over the 1943

cost, attributable to improved supplies, methods, and

training . At this time, the Army employed 15 engineer

entomologists nationwide . 94 Also by the late 1960s,

the Army engineer entomology program conducted pest

control in 924,127,000 square feet of building area and

63
11,335,906 acres, excluding Southeast Asia, an area the

size of Massachusetts and New Hampshire combined . 95

A new concern in the late 1960s involved

preventive treatment of cargoes returning from

Southeast Asia, which posed the threat of introduced

infestations . The U .S . Department of Agriculture

advised the Army on treatment of the receiving areas

that had high potential for infestation . 96 Other new

concerns involved controlling pests in stored food and

responding to the growing public and official interest

in the Army's use of pesticides .

The available technology for control of insects in

food storage depots and in transit stood on the

threshold of a major expansion in 1969 . Until then,

the only insecticide considered safe for fogging was a

pyrethrum solution, but it lacked effectiveness .

However, the U .S . Department of Agriculture had just

introduced "a safe insecticide, dichlorovos, that will

provide excellent control ." Training in its use would

be required before it could be adopted by the Army .

Also at this time, fumigation of infested stored food

employed methyl bromide in vacuum fumigation chambers .

The food had to be hauled to the chambers for

treatment, and if an item required more than one

application, the residual bromide would exceed Food and

Drug Administration standards . The Department of

Agriculture then began recommending phostoxin, which

could be used right in the warehouse and was cheaper

and safer than the bromide . The use of phostoxin had

to be delayed several months as well, until "proper

instructions can be written and pest control operators

and depot storage personnel trained ." 97

The Armed Forces Pest Control Board, formed in

1957 to provide DOD-wide cooperation and coordination,

continued to operate through the 1960s . In addition,

the Federal Committee on Pest Control mandated

64
cooperation with outside agencies during this period .

This committee performed annual reviews of all federal

programs using pesticides . Proposed programs had to

specify in detail the pest to be controlled, pesticide

to be used, rate of application, strength of finished

spray, total acres or square feet to be treated, method

of application, storage, and safety precautions . 98

However, many GIs who worked in pest control resented

this outside supervision because they had grown up on

farms and used pesticides all their lives . 99

The introduction of new and better insecticides

would be an ongoing concern for Corps of Engineers

entomologists as they attempted to keep up with the

resulting training needs . Simultaneously, a major new

consideration entered the picture . Public awareness

about and concern for the environment were increasing :

"The current public and official increased interest in

pesticides is resulting in congressional and other

government agencies inquiry into Army use of

pesticides ." 100 Henceforth, pest management decisions

had to take public concerns into account .
Notes

1 . Telephone interview, author with Edward 0 .

Gangstad, Springfield, VA, 27 March 1988 . Hereafter

cited as Gangstad interview .

2 . Bourkland to Maintenance Management Branch,

"Revision of AR 420-74," 1 Mar . 1961, Box 1, RG77,

Accession No . 67-4785, WNRC .

3 . Kiltz interview .

4 . Department of the Army, Repairs and Utilities :

Natural Resources--Land, Forest, and Wildlife Manage

ment , Army Regulation 420-74 (Washington, DC :

Government Printing Office, June 1966), p .. 4 .

5 . Ibid ., p . 15 .

6 . Miller, "Army Natural Beauty Program," 11 Feb .

1966, File 3, Bandel collection .

7 . R .A . Schrack, "Land Use Policy, Planning, and

Management for DOD Installations," no date, File 3,

Bandel collection .

8 . Gangstad interview .

9 . Bedker, "National Security Management : Renewable

Natural Resources," File 3, Bandel collection .

10 . Department of the Army, Repairs and Utilities :

Grounds , Army Regulation 420-74 (Washington, DC :

November 1961), p . 1 ., Box 1, RG77, Accession No . 67-

4785, WNRC .

11 . B .F . Kiltz to authors, 23 Mar . 1988 .

12 . Gangstad interview .

13 . Kiltz interview .

14 . Becton interview .

15 . Kiltz interview .

16 . Mays interview .

6 6
17 . "Land Management Program," no date, File 3, Bandel

collection .

18 . Army Regulation 420-74, Nov . 1961, p . 3 ; Mar .

1964, p . 4 ; June 1966, p . 15 .

19 . W .G . Ralph, "Benefits and Savings Possible from

Agricultural Leasing Program," 1960, prepared for

presentation at American Society of Agronomy meeting,

Box 1, RG77, Accession No . 67-4785, WNRC .

20 . AMC Staff Study, "Reimbursement to O&M, Army Funds

and Operating Cost and Agricultural Outleasing," 4 Mar .

1964, Mays papers .

21 . Ralph, "Benefits and Savings Possible from

Agricultural Leasing Program ."

22 . Ibid .

23 . Ibid .

24 . "Land Management Program," no date, File 3, Bandel

collection .

25 . Army Regulation 420-74, June 1966, p. 15 .

26 . Department of the Army, Installations : General

Woodland Management , TM5-631 (Washington, DC :

Government Printing Office, April 1963), p . 4 .

27 . "CONARC Forest Management Program," no date, File

3, Bandel collection .

28 . Becton interview .

29 . "CONARC Forest Management Program ."

30 . Department of Agriculture, Forest Service,

"Effective Multiple Use Forest Management for Second

U .S . Army Woodlands" (Washington, DC : Government

Printing Office, 1964), Bandel collection .

31 . Department of Defense, "Report on DOD-wide Audit

of Reimbursable Expenses Incurred in the Preparation

for Sale of Scrap, Salvage, Surplus or Foreign Excess

Personal Property," Dec . 1966, Bandel collection .

32 . "CONARC Forest Management Program ."

33 . Miller, "Army Natural Beauty Program ."

34 . Becton, "Military Forestry History," p . 9 .

67
35 . Ibid ., p . 10 .

36 . Orr Kelly, "Trees : An Army Success Story," The

Evening Star, Washington, DC, 6 May 1969, sec . A, p . 4 .

37 . Kiltz, "Progress of the Woodland Management

Program," p . 3 .

38 . Kelly, "Trees : An Army Success Story," The Evening

Star, 6 May 1969, sec . A, p . 4 .

42 . "Land Management Program," no date, File 3, Bandel

collection .

43 . "Resume--DA Forest Management Program," no date,

File 3, Bandel collection .

44 . Y .H . Choi, "DOD Management of Natural Resources :

Last Frontier," no date, File 3, Bandel collection .

45 . Department of Defense, "Report on DOD-wide Audit

. . . ," 1966, p. 79, Bandel collection .

46 . Kiltz, "Progress of the Woodland Management

Program," Nov . 1964, Becton papers .

47 . 1) "Resume--DA Forest Management Program," no

date, File 3, Bandel collection . 2) E .A . Oren,

"Management of Wildlife and Related Natural Resources,"

Oct . 1963, File 3, Bandel collection .

48 . Kiltz, "Progress of the Woodland Management

Program," Nov . 1964, Becton papers .

49 . 1) E .A . Oren, "Department of the Army Forestry

Program," 19 Jan . 1966, File 3, Bandel collection . 2)

W .R . Becton, "Woodland Production Program," no date,

Item 1, Becton papers .

50 . Oren, "Management of Wildlife and Related Natural

Resources ."

51 . U .S . Forest Service, "Effective Multiple Use

Forest Management . . . ."

68

39 . Ibid .

40 . Wendell

Program,"

Becton, "The Third

Forest Farmer (April 1972) :

Army's

29-30 .

Forestry

41 . E .A . Oren, "Department of the Army Forestry

Program," presented to the DOD Real Property

Maintenance Conference, 19 Jan . 1966, File 3, Bandel

collection .
52 . "Resume--DA Forest Management Program," no date,

File 3, Bandel collection .

53 . Oren, "Management of Wildlife and Related Natural

Resources ."

54 . 1) "Resume--DA Forest Management Program," no

date, File 3, Bandel collection . 2) Becton, "Woodland

Production Program," no date, Item 1, Becton papers .

55 . Vance W . Mays to authors, 15 Feb . 1988, Mays

papers .

56 . Oren, "Department of the Army Forestry Program"

and "Management of Wildlfe and Related Natural

Resources ."

57 . W . R . Becton, "Woodland Production Program," no

date, Item 2, Becton papers .

58 . Kiltz interview .

59 . Becton interview .

60 . Becton, "Woodland Production Program," no date,

Item 2, Becton papers .

61 . Becton, "The Third Army's Forestry Program ."

62 . Army Regulation 420-74, Nov . 1961 and Mar . 1964 .

63 . 1) Department of Defense, "Report on DOD-wide

Audit . . . ," 1966, Bandel collection . 2) U .S . Forest

Service, "Effective Multiple Use Forest Management . . . ."

64 . Becton interview .

65 . U .S . Forest Service, "Effective Multiple Use

Forest Management . . . ."

66 . Department of Defense, "Report on DOD-wide Audit

. . . ," 1966, p . 80, Bandel collection .

67 . E .A . Oren, "Army Conservation Pays Off," Army

Digest (January 1970) : 31-33, File 3, Bandel collection .

68 . Bandel interview .

69 . Public Law 86-797, 86th Congress, in H .R . 2565, 15

September 1960 .

6 9
70 . U .S . Department of the Interior, Fish & Wildlife

Service, Circular letter on "Implementation of Public

Law 86-797--The Sikes Act," Exhibit 4, 9 Jan . 1961,

Mays papers .

71 . Department of the Army, Installations Natural

Resources--Management and Harvesting of Fish and Wildlife, Army Regulation 210-221 (Washington, DC : 24

July 1962), Box 1, RG77, Accession No . 67-4785, WNRC .

72 . Ibid .

73 . J .E . Brown, "Warriors and Wildlife : The Odd

Couple," National Wildlife 12, No . 2 (February/March 1974) : 25, File 3, Bandel collection .

74 . Oren, "Army Conservation Pays Off ."

75 . A .T . Port, Memo re : "Intermittent and Part Time

Use of Military Properties for Outdoor Recreation and

Natural Beauty Purposes," 23 Mar . 1967, File'4, Bandel

collection .

76 . 1) Bedker, "National Security Management :

Renewable Natural Resources," 1979 . 2) "Department of

the Army Land Management Program," no date . Both in

File 3, Bandel collection .

77 . Joselyn, "Wildlife Management on Military Installations," p . 217 .

78 . 1) Army Regulation 210-221, July 1962 . 2)

Joselyn, "Wildlife Management on Military Installations," p . 217 .

79 . Joselyn, "Wildlife Management on Military Installations," pp . 221-222 .

80 . Army Regulation 420-74, June 1966, pp . 13, 24 .

81 . Oren, "Management of Wildlife and Related Natural

Resources ."

82 . E .E . Lowry, Briefing for Mr . Fitt on Hunting and

Fishing, no date, File 4, Bandel collection .

83 . Ibid .

84 . Gangstad interview .

85 . Port, "Intermittent and Part Time Use of Military

Properties . . . ."

86 . Oren, "Army Conservation Pays Off ."

70
87 . Schrack, "Land Use Policy, Planning, and

Management . . . ."

88 . Gangstad interview .

89 . "Revision of AR 420-76, Repairs and Utilities,

'Engineer Entomology Services,"' 17 Apr . 1961, OCE

Maintenance Management Branch, Policy Section, Box 1,

RG77, Accession No . 66A-3180, WNRC .

90 . Department of the Army, Repairs and Utilities :

Engineer Entomology Services , Army Regulation 420-76

(Washington, DC : May 1961), Box 1, RG77, Accession

No . 66A-3180, WNRC .

91 . Department of the Army, Repairs and Utilities :

Entomology Services ,Circular 420-3 (Washington, DC :

August 1964), p . 1, Publication Background File, Box 1,

RG77, Accession No . 68-1920, WNRC .

92 . Ibid .

93 . Department of Defense, Military Entomology

Operational Handbook , TM5-632 (Washington, DC : Government Printing Office, June 1965) .

94 . Handwritten draft, "Current Status of Entomology

Services," no date, File 3, Bandel collection .

95 . Handwritten draft, "The Army Engineer Entomology

Program," no date, File 3, Bandel collection .

96 . "Continuity of the Entomology Program," no date,

File 3, Bandel collection .

97 . Ibid .

98 . Ibid .

99 . Gangstad interview .

100 . "Continuity of the Entomology Program," no date,

File 3, Bandel collection .
CHAPTER 3

Responding to the Public

Mandate for Environmental

Protection, 1970-1987

The View From Washington

The 1970s and 1980s saw changes in natural

resources staffing levels, the focus of B&G management

tasks, and the recognition given to natural resources

concerns by the Department of Defense .

Between 1975 and 1987, the commands lost natural

resources personnel and the installations gained them .

The B&G staff described 1987 command staffing levels as

"bare bones," but believed that installation staffing

was more important to getting the actual work done .

However, the loss of command personnel adversely

affected natural resources programs in several ways .

There were fewer people available to make supervisory

visits, and installation personnel lacked the necessary

command authority to win the installation commander's

compliance . 1

The loss of command-level personnel spaces for

natural resources management was part of an ongoing

Army-wide and DOD-wide situation that intensified in

1980 . The Reagan administration, in the interest of

cutting government spending, promoted contracting as an

alternative to staffing . Thus, when a vacancy

occurred, it would be reevaluated and might be

eliminated or left vacant as a result . The same drive

to involve the private sector in government work gave

installation commanders more autonomy in allocating

resources . They did not always choose as natural

73
resources managers would have liked . 2

The lack of time and money for supervisory visits

to installations remained a problem . Command-level

personnel believed that B&G personnel should make more

field visits, while Buildings and Grounds wanted

command personnel to make the visits . 3 The conflict is

well illustrated by the comments of a former B&G

forester . He reported that time and money limitations

precluded his making as many visits as he believed

necessary and that the visits he did make were

extremely rushed . 4

Gradually, as installation programs became better

established, Buildings and Grounds spent less time

assisting installation and command personnel and more

time providing information to the Secretary of the

Army . Interaction with the secretariat, rare in 1975,

was routine by 1987 . 5 Also by 1987, Buildings and

Grounds staff spent increasing time responding to

congressional inquiries, requests for public access to

Army land by special interest groups, and letters from

the public about wildlife issues . 6

Another responsibility that captured an increasing

portion of B&G staff time was research and development .

In the late 1970s, Buildings and Grounds Branch

realized that military land management presented unique

problems that Department of Agriculture consultants

could not adequately address . Therefore, the branch

began to initiate, monitor, and disseminate research

and development projects in natural resources

management . An example is the Integrated Training Area

Management system, a computer-supported program for

controlling and evaluating the impact of training

activities on the land . An Army engineer research

laboratory developed the system in 1987 . At that time,

the chief agronomist spent close to 25 percent of his

effort on such research and development-related tasks

74
as introducing new developments to the installations

through reports and conferences . 7 The installations

also conducted research and development projects in

cooperation with other organizations . 8 An example is

the Fort Meade project that fostered parasites of the

cereal borer for use in other parts of Maryland .

The early 1980s saw greater DOD recognition of

natural resources management and more communication and

coordination among the armed services . The Department

of Defense began to mount an official response to the

environmental movement . In 1982, a DOD-level natural

resources position was created . In this new position,

Christina Ramsey activated the Department of Defense

Natural Resources Group to coordinate among the

services . DOD-wide natural resources management

improved as a result .

Despite the increased DOD-wide recognition and

coordination, natural resources management remained

secondary to the military mission . To a great extent,

the amount of work accomplished still depended on the

backing of individual installation commanders, who were

not uniformly receptive to the natural resources

program . 9 However, installation personnel observed

increasing receptivity among the commanders . 10 Given

the inconsistency of commander support, the relative

self-sufficiency provided by the reimbursement of

timber sales, agricultural leasing, and hunting fee

proceeds was doubly important to the natural resources

program . 11

Land Management

Multiple use land management remained the primary

concept of DOD natural resources policy throughout the

1970s and 1980s . Its new definition in the 1977

version of Army Regulation 420-74 reflected the

7 5
changing values of the era : "The integrated management

of all natural resources, each with the other, to

achieve the optimum use and enjoyment while maintaining

the environmental qualities, ecological relationships

and esthetic values in proper balance .' ,12

In the past, Army land supported the multiple uses

of military training, natural resources conservation,

timber and crop production, and outdoor recreation .

Multiple use land management responsibilities expanded,

along with public awareness, to include floodplain

management and protection of beaches, wetlands, and

endangered species . The establishment of wetlands was

important not only for habitat development, but for

water conservation and watershed management as well . 13

During the 1970s and 1980s, the total area managed

by the Army fluctuated between 11 and 12 million acres .

Approximately 1 .5 million acres comprised forests,

while improved grounds acreage hovered around

300,000 . 14 The number of natural resources professionals employed Army-wide expanded from 38 agronomists, 51 foresters, and 10 wildlife biologists in 1976

to 53 agronomists, 52 foresters, and 23 wildlife

biologists in 1983 . 15 However, this expansion had not

kept pace with the need perceived by Buildings and

Grounds .

Soil Erosion and Conservation

While soil conservation had long been recognized

as basic to all other natural resources conservation,

it was not until 1977 that the growing body of

knowledge about soil found expression in Army

regulations requiring land use planning to be based on

assessment of soil capabilities and limitations . 16

Although both soil capacity and the public mandate to

conserve natural resources imposed limits on the

7 6
military use of land, Buildings and Grounds sought to

inform installations that natural resources management

could also make training areas more durable and

diversified . 17 Diversified environments were useful

because they allowed units to train on different kinds

of terrain .

The need for military training land grew more

acute because modern weapons systems required as much

as ten times the land area as systems of the 1940s .

Heavier vehicles and longer-range weapons added to the

damage that mechanized infantry could do to soil and

vegetation . 18 Reestablishment of vegetation after

training exercises was an ongoing major task of

installation land managers .l 9 Training sites had to be

rotated to prevent the soil from losing its ability to

support any vegetation . 20

In the past, Army trainers regarded land for

tracked vehicle training ranges as an infinite

resource . Over time, they began to feel the pinch as

the amount of available land declined . Soil erosion

and compaction, externally imposed ecological restrictions, granting of easements, and cession of land to

other agencies were among the causes of training area

losses . In 1983, the Director of Training, Office of

the Deputy Chief of Staff for Operations and Plans,

explained, "Loss of training lands through poor

management is endemic ." 21 In addition to erosion,

excess growth of underbrush caused loss of training

areas . Only one base had a program to clear overgrown

training land in 1983 . 22

To address this problem, Buildings and Grounds

sponsored several research and development efforts by

the Construction Engineering Research Laboratory . They

resulted in the development of three computer-based

land management programs during 1987 . The Geographic

Resources Analysis Support System (GRASS) and the Land

7 7
Condition-Trend Analysis programs provided automated

support for land use decisions . GRASS displayed data

and maps of terrain features and analyzed suitability

for proposed uses . The Land Condition-Trend Analysis

system assessed data on changes in land condition that

result from multiple uses . The Integrated Training

Area Management (ITAM) program combined computer

analysis of land condition with soil stabilization and

revegetation techniques, coordination among trainers

and land managers, and an environmental conservation

awareness program for base personnel . In 1987, the

systems were being demonstrated at selected Army

installations . 23

The attractive appearance of Army bases remained a

primary concern of improved grounds maintenance . However, partially in the interest of economy, the

elaborate landscape plantings of the 1960s gave way to

a more natural look . Despite the introduction of

occupant self-help programs for grounds maintenance

around dwellings, grounds maintenance remained the most

expensive component of land management costs . 24

Improved grounds comprised 3 percent of total Army land

area and 75 percent of the maintenance budget . In an

attempt to cut these costs, installations put their

efforts into converting improved grounds to semiimproved or unimproved grounds that require less work

to maintain . The emphasis changed to natural landscaping and economical, low-maintenance plantings . 25

As concern about the appearance of military lands

increased, grounds maintenance requirements extended to

sodding or landscaping of spoil banks, borrow pits, and

Construction projects not only had to

include landscaping in the contract, but also had to

quarry areas .

Grounds Maintenance

7 8
analyze and preserve natural features of the site .

Projects had to provide safeguards against environmental damage, such as erosion, that might be caused by

construction activities . 26

Agricultural Leasing

During the late 1970s and early 1980s,

agricultural leasing involved approximately 850,000

acres on 60 Army installations . Leasing for crop

production occurred on some 160,000 of the acres, and

the balance featured grazing . 27 Leases required

adherence to the proper agricultural practices for

erosion control and enhancement of soil fertility and

productivity . 28 By this time, installations recognized

the value, above and beyond cash rental, of maintenance

work performed by lessees . Other benefits included

improved public relations with local farmers and

enhancement of -habitats and food sources for

wildlife . 29

Agricultural leasing continued to be promoted

Army-wide as an inexpensive means of managing natural

resources . A supplement to Army Regulation 420-74 also

cited the worldwide need for food and fiber production

as a rationale for encouraging agricultural leasing . 30

A surge in both the demand for and the rents

offered by agricultural leases in the late 1970s caused

Buildings and Grounds to investigate the possibility of

requiring a wider range of maintenance and conservation

tasks as part of its leases . 31 In 1983, military

installations finally won the authorization to use

agricultural-leasing proceeds for improvement of

agricultural land . A Navy-sponsored provision to this

effect, quietly tacked onto the DOD appropriations act,

passed through Congress in that year . 32 This provision

provided an even greater incentive for installations to

offer land for lease . 33

79
Forest Management

In 1976, Buildings and Grounds recognized Army

foresters' ecological achievements . 34 For example, in

response to public law mandate, forest management

objectives had expanded to include protection of the

environment, endangered species, and historical sites .

Also, cover for recreation supplemented the former

objective of providing cover for training . 35

The Army forest management program could take

credit for supporting the military mission, the

economy, and environmental programs, as well as supple

menting the operation and Maintenance budget by paying

for fire protection from timber sales proceeds . In

fiscal year 1977, the Army harvested close to 75

million board feet of lumber and 84,000 cords of

pulpwood . The improving quality of Army timber stands

indicated that the annual harvest would probably

continue to increase . 36

Partially as a result of the 1961 authorization to

retain timber sales proceeds, managed Army woodland

acreage grew from 1 million acres in 1955 to 1 .5

million acres in 1973 . 37 By 1982, the Army forest

management program comprised 1 .4 million acres on 61

installations employing a total of 52 professional

foresters and 42 forestry technicians . 38

One episode in the constant DOD-wide competition

for tight money and manpower was a 1975 challenge by

the Deputy Secretary of Defense to forestry staffing

levels . He called for Army forestry spaces to be

reduced to levels comparable to those of the other

armed services . Buildings and Grounds successfully

argued that fire control would suffer because forestry

personnel were on call 24 hours a day for fire control

on all installation grounds except improved grounds .

80
Forestry programs on smaller Army installations and

adjacent Air Force bases would also suffer from any

manpower cuts, because they frequently borrowed

personnel from larger Army installations . 39

Since its 1961 authorization to use timber sales

proceeds, the Army-wide forestry program has only once

required appropriated funds . That occurred in 1982 due

to the expense of the newly created state entitlement

program . The program developed from complaints by

state and local officials that Army installations

removed large blocks of land from local tax bases . To

compensate for this revenue loss, the entitlement

program required installations to share 25 percent of

net profits from timber sales with the host states, who

in turn passed the money on to the counties . The state

share rose to 40 percent in 1984 . The state entitlement program had the twofold effect of creating more

paperwork for the B&G forester while enhancing the

Army's popularity with the states and counties . 40 Due

to the Army's greater experience in natural resources

management, the B&G forester began serving as the

executive agent for all DOD forestry programs in 1982 .

This job involved handling the budgetary paperwork and

allocating extra Army funds to the other military

services' forestry programs . 41

Weather and climate, local timber demand,

protection of endangered species, military training

requirements, and metal contamination of trees all

continued to place external limits on Army forest

management activities . 42 The damage done to forest

vegetation by training exercises was a major concern of

forest managers . However, as one installation forester

pointed out, firing ranges did not have to be written

off . They could still produce forest products through

management practices that work around the training

schedules . 43

8 1
As wildlife conservation grew more important in

the public eye, foresters became better versed in

wildlife management . 44 They were well aware of the

ways in which forestry practices could improve wildlife

feed and habitats . The Sikes Act amendment of 1986

recognized the link between forest and wildlife

management . The amendment allowed timber sales

proceeds that remain after all forestry expenses have

been met to be placed in a special fund for use on

other natural resources such as wildlife . 45

Wildlife Conservation and Outdoor Recreation

Only a few years after the National Environmental

Policy Act (NEPA) took effect, Congress passed the

Endangered Species Act of 1973 .

federal agencies from conducting

would harm an endangered species .

military had to inventory the species and habitats on

their lands and protect endangered species and critical

habitats . 46 Installations also had to protect species

that resembled endangered species to

potential for misidentification . 47

As in previous years, Army manuals and regulations

strictly limited introduction or reintroduction of

species . Pursuant to the National Environmental Policy

Act, such activities also required an environmental

impact assessment . 48 Wildlife management evolved

emphasize preservation as well as harvesting .

Army wildlife managers continued to rely on

technical assistance from state and federal wildlife

agencies . Installations without resident wildlife

expertise particularly required assistance in

identifying endangered species . Another concern

requiring interagency cooperation was the potential for

disturbing habitats just off of installation property

8 2

The act prohibited

any activity that

Under the act, the

forestall the

to
by such practices as overflights of critical nesting

areas . 49 Communication among the natural resources

disciplines, the federal agencies, and the levels of

Army command regarding wildlife issues improved

significantly . Both installations and major commands

had been compelled by law and public opinion to be more

receptive to the views of wildlife managers . 50

Although money and personnel remained scarce and

the commitment of installation commanders to wildlife

management remained inconsistent, the Army wildlife

management program continued to grow . Overall, the

program achieved greater use of Army land for both

wildlife management and recreation without an adverse

impact on the military mission . 51

Public concern about endangered wildlife also

continued to grow after the passage of the Endangered

Species Act . By the early 1980s, wildlife had become a

particularly emotional public issue . This had a major

Army-wide impact resulting in a higher status for

wildlife management programs and more wildlife

personnel at the installations . Consequently, by 1987

wildlife specialists were as numerous as foresters . 52

Buildings and Grounds frequently received letters

from the public on wildlife issues . For example, in

1987 letters from a group of school children asked that

an endangered wolf species be introduced to an installation in the Southwest . Buildings and Grounds

provided guidance about the potential impacts of

fulfilling such requests to the Secretary of the Army .

The Secretary had the authority to make the final

decision on such issues and could overrule the

installation commanders . 53 The 1982 version of Army

Technical Manual 5-633, Fish and Wildlife management,

devoted an entire chapter to public relations and cited

the avoidance of congressional inquiries as one of the

justifications for maintaining good public relations . 54

83
As of 1987, wildlife experts recognized that

military installations had become the final refuges of

many endangered species . Had the military not held the

land, much of it would have been developed and many

habitats destroyed as a result . 55

In 1982, 115 endangered species were under

protection at 33 installations in the continental

United States, Hawaii, and Panama . 56 Wildlife programs

existed on 95 installations, which managed a total of

nine million acres for wildlife . About five million of

these acres on 71 installations were open to the public

or to guests of base employees . Another 9 installations allowed recreation for DOD personnel only . The

entire Army employed a total of 23 wildlife professionals and 31 technicians . 57

The Sikes Act of 1960 and its amendments

authorized cooperative interagency management of fish

and wildlife on military land, collection of fees for

recreational use, and the funding of public

recreational facilities with fee collections and

appropriated funds . Fees collected for hunting,

fishing, and other outdoor recreation were used by

installations for their wildlife management and outdoor

recreation programs . However, during the early 1980s,

the General Accounting Office, consulting wildlife

experts, and Buildings and Grounds agreed that the fees

charged by many installations were unrealistically low .

Of 95 installations, only 39 charged any fees at all in

1984 . 58 Buildings and Grounds had repeatedly

recommended that installations charge higher hunting

and fishing fees, as well as institute admission fees

for other recreation, so that the wildlife and

recreation programs could become more self-sufficient .

Installation commanders had other priorities and thus

were reluctant to use any of the authorized

appropriated funds for wildlife and recreation . This

84
caused wildlife programs to remain dependent on fee

collections . 59 In fiscal year 1979, however, Congress

directed the military to expend the appropriated funds

of $1 .5 million a year . 60

Access to recreation on Army land offered the

advantages of improved public relations, heightened

employee morale, and reduced pressure on adjacent

nonmilitary recreation areas . Regulations evolved to

require installations to develop outdoor recreation

plans . Technical Manual 5-635 provided criteria for

developing different types of recreational facilities .

Concern about the growing popularity of off-road

vehicles and the environmental damage they can cause

led to a 1972 executive order, which permitted such

vehicles on Army land only if strictly planned and

controlled to prevent adverse impacts on the environment and on other recreation . 61

Preservation of Historic Sites

The Army's first serious efforts to implement the

National Historic Preservation Act of 1966 followed a

1971 executive order . Executive Order 11593 mandated

the preservation, restoration, and maintenance of

historic sites on federally owned land . In 1974, the

Department of the Army directed the Buildings and

Grounds Branch, Office of the Chief of Engineers, to

implement the order . 62 In 1977, the branch hired its

first historic preservation expert, whose efforts led

to wider recognition that construction projects,

training activities, or even such natural resources

activities as clearing land can destroy archaeological

or historical sites . 63 In 1981 and 1982, Army

technical manuals dealing with land management, outdoor

recreation, and forest management all discussed the

identification and protection of archaeological sites .

8 5
Pest Control

The continued trend of increasing public scrutiny

and limitation of Army pesticide use in many cases has

caused friction between the installations and adjacent

landowners . Environmental Protection Agency regulations had frequently barred the military from using

pesticides that were still permitted to private

landowners . This led to a situation where landowners

complained that pests thrived on Army land, reinfested

private land, and thus harmed their crops . 64

Even before external limits governed pesticide

use, Army foresters tended to avoid it . Whether

controlling weeds or insects, foresters preferred such

alternatives as burning for weed control or selective

thinning for control of tree-attacking insects . 65

In 1970, the Army issued its first technical

manual on herbicide use . Technical Manual 5-629,

prepared by a B&G agronomist, stated, "With the

present concern over the impact of pesticides on the

environment, it is most important that herbicide

selection and application be managed by professional

personnel ." 66 In 1971, Army Regulation 420-76 was the

first edition of the regulation to reflect environmental concerns . The 1978 version was the first to

require an environmental impact statement for aerial'

spraying . 67 The 1980 version of Army Regulation 420-76

introduced Integrated Pest Management, which utilized a

combination of chemical and nonchemical pest control

techniques in an attempt to reduce chemical pesticide

use . 68
1 . Bandel interview .

Ibid .

3 . Becton interview .

4 . Andrews interview .

5 . Bandel interview .

Notes

6 . 1) Andrews interview . 2) Bandel interview .

Bandel interview .

8 . Department of Defense, "Proceedings of the Fourth

DOD Real Property Maintenance Conference," Jan . 1974,

pp . 67-74, Bandel collection.

9 . Bandel interview .

10 . . Warren interview .

11 . Mays interview .

12 . Department of the Army, Facilities Engineering :

Natural Resources--Land, Forest, and Wildlife Management, Army Regulation 420-74 (Washington, DC : Government Printing Office, 1977), p . 3 .

13 . Bedker, "National Security Management : Renewable

Natural Resources," 1979, File 3, Bandel collection .

14 . See various sources in File 3, Bandel collection .

15 . 1) Department of the Army Annual Historical

Summary FY1976, Corps of Engineers Historical Division,

Washington, DC . 2) Bandel to Ramsey, "Update of

Wildlife Management Programs," 24 Feb . 1983, File 3,

Bandel collection .

16 . Army Regulation 420-74, 1977 .

17 . "Making Natural Resources Work for You," no date,

File 3, Bandel collection .

87
18 . L .R . Jahn et al ., "An Evaluation of U .S . Army

Natural Resources Management Programs on Selected

Military Installations and Civil Works Projects," Oct .

1984, Bandel collection .

19 . Andrews interview .

20 . "Making Natural Resources Work for You ."

21 . Brig . Gen . John M . Kirk, "Training Land Management," 10 Aug . 1983, in "Secretary of the Army Briefing

on Natural Resources," Oct . 1983, Bandel collection .

22 . Ibid .

23 . 1) Bandel interview . 2) Fact Sheets, File 3,

Bandel collection .

24 . Bedker, "National Security Management . . . ."

25 . Schrack, "Land Use Policy, Planning, and Management . . . ."

26 . "Talking Paper--The Army Corps of Engineers' Role

in Conservation," 13 Dec . 1971, File 3, Bandel collection .

27 . 1) Bedker, "National Security Management . . . "

2) "Secretary of the Army Briefing on Natural

Resources," Oct . 1983, Bandel collection .

28 . Bedker, "National Security Management . . . ."

29 . "Making Natural Resources Work for You ."

30 . Department of the Army, Facilities Engineering :

Natural Resources--Land, Forest and Wildlife Management, Pamphlet PAM 420-7 (Washington, DC : Government

Printing Office, 1977) .

31 . "Department of the Army Land Management Program,"

no date, File 3, Bandel collection .

32 . Bandel interview .

33 . "Secretary of the Army Briefing on Natural

Resources," Oct . 1983, Bandel collection .

34 . "Information Furnished DA Supporting TRADOC

Forestry Programs," no date, Becton papers .

35 . Department of the Army, Natural Resources : Forest

Management , TM5-631 (Washington, DC : Government

Printing Office, 1981) .

88
36 . "Army Forest Management Program," no date, File 3,

Bandel collection .

37 . "FY73,Base Data--Land Utilization and Management,"

File 3, Bandel collection .

38 . Bandel to Ramsey, 24 Feb . 1983, File 3, Bandel

collection .

39 . "Information Furnished DA Supporting TRADOC

Forestry Programs," no date, Becton papers .

40 . 1) Bandel interview . 2) "Making Natural Resources

Work for You ."

41 . Bandel interview .

42 . "Secretary of the Army Briefing on Natural

Resources," Oct . 1983, Bandel collection .

43 . "Woodland Management in the Small Arms Area, Fort

Gordon, GA," no date, Becton papers .

44 . Andrews interview .

45 . Bandel interview .

46 . Bedker, "National Security Management .

47 . "Department of the Army Land Management Program,"

no date .

48 . Ibid .

49 . Department of Defense, "Proceedings of the Fourth

DOD Real Property Maintenance Conference," 1974, Bandel

collection .

50 . Warren interview .

51 . Mays interview .

52 . Bandel interview .

53 . Ibid .

54 . Department of the Army, Natural Resources : Fish

and Wildlife Management , TM5-633 (Washington, DC :

Government Printing Office, 1982) .

55 . "Making Natural Resources Work for You ."

8 9
59 . "Department of the Army Land Management Program ."

60 . Bedker, "National Security Management . . . ."

61 . Ibid .

62 . "Development of Criteria and Guidance for Historic

Preservation to Implement Executive Order 11593,

'Protection and Enhancement of the Cultural Environment,"' 28 Jan . 1974, File 3, Bandel collection .

63 . Bandel interview .

64 . Mays interview .

65 . Becton interview .

66 . Department of the Army, Herbicide Manual for NonCropland Weeds , TM5-629 (Washington, DC : Government

Printing Office, 1970) .

67 . Department of the Army, Facilities Engineering :

Pest Control Services , Army Regulation 420-76

(Washington, DC : Government Printing Office, 1971 and

1978) .

68 . Department of the Army, Facilities Engineering :

Pest Management Program, Army Regulation 420-76

(Washington, DC : Government Printing Office, 1980) .

56 . Jahn, "An Evaluation of U .S . Army Natural

Resources Management Programs . . . ."

57 . Bandel to Ramsey, 24 Feb . 1983, File 3, Bandel

collection .

58 . Jahn, "An Evaluation of U .S . Army Natural

Resources Management Programs . . . ."
CHAPTER 4

Natural Resources

Management in Action

Fort Meade, Maryland--October 1987

William Harmeyer, a wildlife biologist, had served

as natural resources specialist and chief of the

Natural Resources Office at Fort Meade since 1975 . He

defined his mission as the sound stewardship of

renewable natural resources . Fort Meade encompasses

approximately 13,500 acres, of which more than 5,000

were managed forest and 11,000 were managed for

wildlife .

The Natural Resources Office reported to the

Environmental and Energy Control Office (ECO) at Fort

Meade . This organizational structure reflected the

nationwide trend of increasing environmental consciousness . Natural Resources managed forestry, timber

sales, wildlife, and hunting programs . Also reporting

to the Environmental and Energy Control Office was the

fort's Buildings and Grounds Office, which was headed

by an agronomist and dealt with landscaping .

Until the late 1970s, Fort Meade did not place

natural resources management high on its list of

funding priorities . Sporadic natural resources proj

ects relied on the military training program for labor .

For example, a habitat would be created by a training

exercise that happened to involve clearing land . Only

when military exercises damaged the environment to the

point that it interfered with the ability to keep

training did natural resources management gain official

recognition .

9 1
Repeated use of favored training sites had caused

loss of ground cover and serious soil compaction . Once

ground cover was lost, the nutrients leached out of the

topsoil, making it extremely difficult to reestablish a

cover crop . To prevent the recurrence of such situations, in 1987 Harmeyer introduced a simple one-page

"Natural Resources Impact Evaluation Worksheet" as a

planning tool for land use . Accompanying this

worksheet was a land use key that ranked specific land

areas according to their condition . "Critical"

referred to areas in danger of sustaining irreparable

damage or to areas with archaeological sites .

"Sensitive" might refer to an overused bivouac site .

At the time it was introduced, the worksheet was viewed

as sufficient to current needs .

Harmeyer's office was attempting to integrate

natural resources management with military use of the

land. One way of accomplishing this goal involved

planting hedgerows around military use areas . This

served the double purpose of creating edge habitat and

marking off different types of training environments .

Fort Meade was selling timber to an active local

post and pole market . They had not always had the

resources to conduct timber sales, so they used to let

the public come in to remove forest litter from

thinning operations, exchanging free wood for free

labor . By 1987, they had gained the ability to

estimate the volume of wood available from thinning and

arrange for its sale .

Harmeyer strove for variety in replanting forest

areas, allowing natural regeneration in some areas

while planting selected commercial species in others .

He adopted this approach because it integrated forest

management with habitat management, creating diverse

habitats and diverse training areas while enhancing the

trees' disease resistance .

9 2
public pressure from environmental groups . Harmeyer

attributed this to two factors : Fort Meade's

relatively longstanding concern with environmental

issues and the antispraying orientation of the pest

control program . For example, the primary approach for

controlling gypsy moths was to thin out the most

susceptible tree species . Harmeyer also attributed the

base's large bluebird population to the limited use of

pesticides .

A cooperative program between Fort Meade and the

University of Maryland had assisted the state in

developing a natural means of pest control . Fort Meade

planted wheat as a fall cover crop and did not harvest

it . The wheat fields thus supported several varieties

of parasites that afflict the cereal borer . The state

collected these parasites for release in western

Maryland to control cereal borers .

Harmeyer observed several trends that affected

natural resources management . He saw integrated

management as an idea whose time had come . In the

past, forestry and agronomy specialists had competed

for scarce funds and worked at cross purposes . By

1987, they cooperated in evaluating land use plans for

their effect on the total environment . Harmeyer also

observed that it had become easier to get the attention

of the decisionmakers and to acquire command support .

Commands were better informed and had come to recognize

the value of natural resources management .

9 3
Aberdeen Proving Ground (APG), Maryl and--October 1987

Aberdeen encompasses close to 80,000 acres . More

than 5,000 acres were managed as forest land, and over

29,000 acres were covered by the wildlife management

program .

Cornelius Powells, management agronomist since

1975 for the installation's Buildings and Grounds

Office, administered the forestry, land use management,

and grounds maintenance programs at Aberdeen . His

duties included landscape design and review and

contract administration . Another task performed under

his office was the spreading of sewage sludge on

agricultural land . Aberdeen's Buildings and Grounds

Office conducted forest management according to a

forestry plan that a contractor had formulated .

Aberdeen's grounds maintenance contract was one of

the largest in the Department of Defense . The Armywide commercial activities program, which required the

use of contractors whenever possible, had imparted some

uncertainty to Aberdeen's future grounds maintenance

work . The grounds maintenance work was performed by

government employees, but they were facing the prospect

of competing for the work in future years .

Jim Pottie had been fish and wildlife biologist,

and then environmental protection specialist/biologist

for Aberdeen's Environmental Management Office since

1980 . He administered the wildlife and endangered

species programs and led the Natural Resources team .

The original wildlife program had emphasized planting

food for wildlife and administering hunting . The

Buildings and Grounds Office had handled the planting

work because they already had the heavy equipment and

operators . The growth of the environmental movement

caused this work to be shifted to an environmental

9 4
office in the early 1980s . In addition, the wildlife

program shifted its emphasis to environmental

management .

The passage of the National Environmental Policy

Act increased the documentation requirements, causing

Aberdeen's wildlife biologist to spend more of his time

on paperwork with less time remaining for field work .

The act also changed the emphasis of wildlife

management from consumption to a combination of

consumption and preservation . However, demand for

hunting privileges continued to grow .

Aberdeen Proving Ground had excellent food plots,

but in the past an out-of-control deer population had

severely depleted the plots . The deer population had

been actively fostered until about 1944 and had grown

too large since then . The wildlife program attempted

to manage and control the herd, because the

alternatives, starvation or slaughter, would have been

unacceptable to the public . Aberdeen's hunting program

combined a longer season with the requirement to kill

at least one doe before killing a buck . Deer hunting

permits were available to Aberdeen's active-duty

military and civilian personnel, its military and

civilian retirees, and their escorted guests .

The Department of the Army required that hunters

on Army land take annual hunter safety courses . Pottie

argued that every year is too frequent, and that the

requirement would discourage hunters from coming to

Aberdeen . The Army modified the requirement in

response to input from the proving ground and the

command level .

Noting that Aberdeen encompassed good Chesapeake

Bay wildfowl habitat, Maryland requested the Office of

the Chief of Engineers to allow the state to establish

and manage duck hunting blinds at the proving ground .

The OCE management agronomist asked Pottie to report on

95
the potential impact of such a program . Pottie was

concerned that public access would enable foreign

agents to infiltrate as hunters and monitor ordnance

tests . A compromise resulted in Aberdeen Proving

Ground controlling the issuance of duck hunting permits

and restricting them to days when no testing is

scheduled . The proving ground bought up the permits

and issued them by lottery to current or past

installation personnel who had security clearances .

In recognition of each installation's unique

conditions, natural resources professionals at the

installations gained increased autonomy . As an

example, Pottie worked with the Environmental

Protection Agency to set up a model wetlands program at

Aberdeen, which was then approved at the OCE level .

Similarly, the proving ground formulated most of its

hunting and endangered species programs and then passed

the plans up the chain of command for approval .

National Guard Bureau, - Edgewood, Maryland--October 1987

The OCE Buildings and Grounds Branch oversaw

natural resources management on Army-owned National

Guard land, which comprised about 20 percent of total

National Guard land . Jamie Rappaport had served since

1982 as the first natural /cultural resources program

manager for the National Guard's Environmental

Resources Branch . The National Guard's natural

resources management program trailed that of the Army

by several decades ; the Environmental Resources Branch

had not even been created until 1980 .

The National Guard program included land

management, forestry, timber sales, archaeology and

historic preservation, and pest control for the 54

National Guard sites nationwide . Like the Army 30

years ago, the biggest problem was the lack of trained

9 6
natural resources personnel to implement policy at the

installations . Although National Guard installations

were facing the same public environmental pressures

that affected all of the Department of Defense, they

were less prepared to respond because the program was

so new .

Rappaport actively sought technical assistance

from the Buildings and Grounds Branch and benefited

from their experience . The branch had been

particularly helpful in obtaining program funding,

involving the National Guard in natural resources

management activities at the DOD level, and providing

information about new computer applications .

In 1987, the National Guard was researching the

effects of long-term intensive training on the land and

soil . The study used the Land Condition-Trend Analysis

computer program developed by the Corps of Engineers .

Rappaport planned to make the program available to the

state National Guards . She anticipated a trend toward

increasing computerization because land use decisions

often have to be made quickly .

V Corps Area, West Germany--August 1988

Martin Elyn, a landscape architect and a Belgian

national, had served as a civilian employee of

Corps Directorate of Engineering and Housing

since 1977, which marked the beginning of V

natural resources and land management efforts .

management agronomist, he headed the

Section of the Roads and Grounds Branch

Facilities Support Division .

Natural resources management for

communities and six training areas of

fell under the supervision of the

Engineering and Housing, which in turn

97

the V

(DEH)

Corps

As a

Land Management

of the

the ten military

the V Corps area

Directorate of

reported to U .S .
Army, Europe (USAREUR) . USAREUR then reported to the

Buildings and Grounds Branch at the Corps of Engineers

in Washington, DC .

The U .S . Army after World War II had no formal

natural resources management organization in Europe .

Management practices began and ended with mowing,

raking, and snow and ice control . Only in 1976 did the

Army begin to see the necessity of long-range planning .

One of Elyn's early tasks at the V Corps Directorate of

Engineering and Housing was to draw up natural

resources management plans . This exercise revealed the

lack of trained people to implement the plans, but, as

elsewhere in the Army, approval for additional

personnel spaces was not forthcoming .

In the mid-1980s, the Army decided to return to

regular duty the soldiers detailed to grounds

maintenance . This action created 400 new positions for

groundskeepers . The Directorate of Engineering and

Housing's planning paid off ; the plan specified skills

and job descriptions, allowing the directorate to

immediately request the management personnel they

needed . From this time, the natural resources

management program experienced dramatic growth .

The natural resources management program in

Germany had to contend with conditions and limitations

not present in the United States . First, some segments

of German society objected to the U .S . Army presence

and most of its actions . Thus, the Directorate of

Engineering and Housing had to be sensitive to the

Army's image in all of its actions . Second, the United

States leased rather than owned the limited amount of

land it used and had no means of acquiring more land

for military use . Although under the North Atlantic

Treaty Organization Status of Forces Agreement the Army

could overrule German land use laws in theory, in

practice, they have adhered to such laws as a courtesy

98
to an ally .

Accordingly, under German law, for each acre of

forest cut on a U .S . facility, one acre had to be

reforested, in the immediate vicinity when practicable .

The Army has selected for reforestation areas where no

future construction will occur or areas that will not

interfere with the military mission, such as the

perimeters of bases . Some military security personnel,

however, have objected to perimeter reforestation,

arguing that it makes their job more difficult . As in

the United States, it has been difficult to convince

military commanders to release land for reforestation,

because they have viewed it as losing control over the

land . In fact, reforested acreage has remained under

Army control, while the German government has paid for

forest planting and management . From fiscal year 1984

to fiscal year 1986, the V Corps cut 27 hectares (67

acres) and reforested 58 hectares (143 acres) .

Also under German law, the Army had to seek

permission to cut trees for construction, and projects

had been delayed as a result . In addition, the state

of Hessen had asked for cash compensation for any land

the U .S . Army has paved over .

It was not possible, as it was in the United

States, for an installation to conduct wood sales and

sell hunting/fishing licenses to earn money . The

German forest manager controlled hunting permits, and

his stringent training requirements assured that only

qualified hunters had access to the land . Hikers also

had free access to trails through training areas, as

live ammunition was not used in all areas .

U .S . forces in Europe authorized such activities

as crop production and grazing on their land . The

leasing arrangement, however, was between the farmer

and the German government . The V Corps area permitted

grazing on several airfields .

9 9
Elyn identified education as a large component of

his job . He has had to sell the value of natural

resources planning to both the U .S . Army and local

officials . Because of the Army's two-year rotation

policy, he has had to repeat himself when new personnel

arrive . Because of both the rotation policy and the

perceived advantage in dealing with European nationals,

the Army has tended to employ Europeans as civilian

land managers overseas .

Friedberg- Training Area, West Germany

In the early 1950s, the U .S . Army started

conducting tracked vehicle training exercises on a

small portion of the 10,000-acre Friedberg site . The

steep, hilly site was clearcut for the exercises .

During training, vehicles sought cover

borders of the clearing . They ran

which destroyed the trees and gradually expanded the

cleared area to 200 acres . Close to 90 percent runoff

occurred from this site, causing 12 foot deep gullies .

On several occasions, runoff down the gullies blocked a

local road . Cleanup after one such incident cost the

Army almost 200,000 Deutschmarks (about 1 .8

Deutschmarks per $1 .00 or $111,111) . On the opposite

side of the mountain, sediment runoff occluded a

private trout pond .

A German architect-engineer

building catch basins . This was rejected because it

didn't address the cause of the problem . The second

proposal was to build check dams and plant vegetation

on the bare sites . Temporary fences were built around

the new vegetation . At first some soldiers would

occasionally ignore the fences and knock them down .

Efforts focused on convincing the Army that it was in

their interest to restore the site because units were

100

along the

over tree roots,

initially proposed
losing too much time during maneuvers extricating

bogged vehicles . Typically, a wrecker had to accompany

all maneuvers to pull out bogged vehicles . In

addition, vegetation could provide concealment for more

realistic maneuvers . Finally, it would save money by

eliminating local cleanup costs .

For an expenditure of 950,000 Deutschmarks

($527,778) over the three years from 1984 to 1987, 60

small log weir barriers were built to serve as check

dams . Trees that were cut down had to be replaced by

planting an equal number : 10 percent were replanted on

site and the balance elsewhere . The ditch was reshaped

and replanted . Elyn anticipated that the rehabilitation of the area would prove to be a sound investment

for erosion control, improved training conditions, and

public relations .

According to Elyn, the training operations

conducted on the 200-acre cleared area at Friedberg

would have taken place on a 28,000-acre site if they

were conducted in the United States . Thus, platoon

leaders fresh from the States could find it difficult

to confine their activities to such a small area .

Since the training areas in Germany were relatively few

and small, training exercises could not be rotated

through other sites while exhausted sites were being

renewed .

The U .S . training areas have faced one problem

that those in Germany do not share : forest fires . The

rainy climate reduces the threat to relatively minor

proportions .

Ammunition Storage Site Koeppern South, Pre-stock

Point 3J

Koeppern South was one of six sites where

munitions were pre-positioned in V Corps . This site
featured a pilot program to demonstrate the value of

reforestation at ammunition sites . In 1977, maintenance of ammunition storage sites presented a costly

problem because of the steep slopes of the earthcovered magazines . The Directorate of Engineering and

Housing proposed reforestation because it would provide

such advantages as erosion control, reduced maintenance

costs, and passive air defense . in addition,

ammunition storage sites provided an area that was not

to future construction and could thus be

in exchange for tree-cutting operations

Opponents argued that tree roots would

the bunkers, trees would ruin the lightning

system, and forests would cause a fire

1978, USAREUR approved the

pilot reforestation program .

Normally, at federally owned German sites, federal

funds were available to pay for the planting, labor,

and maintenance of forested areas . Koeppern was not

federally owned but instead owned by local communities .

The significance

first bill came

Engineers . As

tenance ceased .

over, creating

problems .

subj act

reforested

elsewhere .

break down

protection

hazard . Nonetheless, in

of this was not realized until the

due and was sent to the Corps of

a result, forest planting and mainConsequently, grasses and broom took

a fire hazard and future maintenance

Platen Gardens Housing Area, Frankfurt, West Germany

American family housing areas normally have not

been intensively landscaped, in sharp contrast to

adjacent German areas that feature dense landscaping .

Since fiscal year 1982, the Directorate of Engineering

and Housing had participated with the state of

Rheinland-Pfalz in a joint German-American landscaping

program for Army family housing areas . In fiscal year

102
1984, the directorate proposed a similar program to the

state of Hessen, and the first plantings were completed

in 1987 . The program's advantages included integration

of American housing areas into the surrounding

communities and improvement of morale among the

occupants . U .S . Army installations are generally

located in urban areas with high visibility .

The German-American landscaping program matched

funds and manpower to plant trees and shrubs in

selected, highly visible areas so the planting would

also benefit local Germans . At Platen Gardens, a

border area across from a German housing area and

adjacent to the autobahn was landscaped . However, as

Elyn noted during a 1988 visit, poor follow-up

maintenance had detracted from the result . Furthermore, one still had a basically unobstructed line of

sight from one end of the American housing area to the

other, in contrast to the lush appearance of the

adjacent German apartment complex .
Natural resources managers on military installations perform a continuous balancing act . On the one

hand, they must accomplish their goals within an

organization whose primary purpose is not natural

resources management . On the other hand, the public

eye focuses intently on the millions of highly visible

acres controlled by the military . Increasingly, the

public demands that conservation of the natural

resources on military lands be given a higher priority .

Other federal agencies charged with stewardship of

natural resources as their prime objective do not face

the same challenges as military natural resources

managers . Military land is by definition subject to

soil and vegetation . Natural

by training activities must be

and renewed so that the land can

military uses .

Army Corps of Engineers first

assumed responsibility for construction on Army

installations during World War II, they only reluc

tantly assumed the accompanying task of maintaining all

of the surrounding installation land . Assisted by

experts borrowed from the Soil Conservation Service,

the first Army land managers developed techniques for

controlling the erosion caused by widespread construction .

After the war, a handful of farsighted Corps of

Engineers foresters and agronomists promoted the

economic benefits of going beyond maintenance and

uses that damage

resources depleted

managed, protected,

continue to support

When the U .S

CHAPTER 5

Conclusion

105
damage control . They pioneered land use planning on

Army installations . Installations leased unused land

to neighboring farmers and reaped the benefits of both

income and free maintenance . Forest management evolved

from control of fires set by training exercises to

development of commercial timber production . The

resulting economic benefits allowed natural resources

managers to carry on their work despite the low

priority given them in the military budget .

Although economics spurred the growth of natural

resources management, _ evolving public policies

influenced its direction . During the 1960s, the

multiple use and sustained yield concepts developed for

management became Army policy . Army

support multiple uses and to promote

At the same time the public demanded

hunting and other

The success at

led to new concerns

in the 1970s and 1980s . Conservationists recognized

that many endangered species took refuge on military

installations and that they needed protection .

Consequently, public law increasingly governed the

details of Army land use and management .

Throughout these decades, heavier vehicles and

longer-range weapons increased the strain that training

put on the environment . However, the budget for

natural resources management remained limited . Charged

with protecting and conserving natural resources

according to rigorous public requirements, the Corps of

Engineers strove to meet the challenge . The success

they achieved came from keeping abreast of new

technology, building a staff of qualified natural

resources management professionals, and fostering

greater cooperation among the natural resources

disciplines and the branches of the military .

national forest

lands began to

forest growth .

and received greater access to

recreational uses of Army land .

creating viable ecological niches

10 6
The Corps of Engineers' 46 years of experience

managing natural resources on Army installations has

demonstrated what is required to succeed under

challenging circumstances . Given limited money and

manpower, a host of legal requirements, and the

pressure of public opinion, the Army's natural

resources managers have met the twin demands of

maintaining land to support military uses while

conserving natural resources .
Appendix A

CHARTS

A-1 . Organization of Construction Division, OQMG, 17 October

1941

A-2 . Organization of Construction Division, OCE, April 1942

A-3 . Organization Chart, Repairs & Utilities Branch,

Construction Division, O .C .E .
Contracts and

Claims Branch

Chart A-1-- Organization of Construction Division, OQMG,

17 October 1941

Source: Fine and Remington, p. 473

Engineering

Branch

Construction

Division,

OQMG

Operations

Branch

r

Real Estate

BranchU
Source: Fine and Remington, p. 494

Chart A-2--Organization of Construction Division, OCE, April 1

CONsTRUcnON DIVISMOCE.

EXBCUTTYRGFF'KZ

PORT RSUPPLY DBP'OISSECEIM

MATERIALS REQURMRSBCUI

SAFETY ACCIDBNT PREY SBCn

CONSTRUCTION CONTRACT BOARD]

LABOR RELATIONS BRANCH

ENGINEERINGBRANCH OPERATIOWBRAIKK REAL ESTATE BRANCH 

WAGE

STATISTICS

SECTION

CONSULTANTS

RNERAND HARBORSBCIM CONDEMNATION SECTION 

GENERALENGINEERINGSECTION FLUOD CONTBOLSOCIp1I LEGALANDDISPOSAL SECTION 

LABORSECTIONAREA A1

LABORSECTIONAREA s2

PLANTSECTION

AIRCORPSPR(UECISSBCtnI ADMINISTRATNBSBCTION 

LABORSECTION

~

AIRPORTS SECTION FORTIFTCATIOTESHCTM LEASINGANDCLAWSHC740N 

CONTRACTORSANDPERSONNEL

SECTION

TROOP, PORT &STORAGE

FACILITIES SECT1ON F

GROUNDTROOPsEmm F

PURCHASE SECTION 

FORTIFICATIONS SECTION

MUNITIONS PLAInSADe'O'E

SECTION

PLANNING ANDAPPRAISALSECTION 

RIVER3HARBOR FLOOD

CONTROLSECTION

BUDGET
Management Section

SPEUG

Budget & Statistics

Unit

Liaison Unit

Procedures Unit

General Service Unit

Chart A-3-- Organization Chart

Repairs & Utilities Branch

Construction Division, O.C.E.

Repairs & Utilities Branch

SPEKU

Executive Officer

Utilities Section

SPEUF

Contracts & Electric

Unit

Fuel & Heating Unit

Refrigeration &

Ventilation Unit

Maintenance & Repair 

Section 

SPEUM IF 

Buildings & Structures

Unit

Roads, Runways &

Railroads Unit

Grounds & Grassing

Unit

Waste & Disposal Unit

Requ

Source: Box 749, OCE General Correspondence 1918-45, RG77, National Archives 
Bibliographical Note

Oral history interviews played the leading role in

assembling this narrative . The personal files and recollections of John Andrews, Wendell R . Becton, Edward O .

Gangstad, Burton F . Kiltz, and Vance W . Mays, former Corps

of Engineers employees, were invaluable sources . Their

files include office correspondence, Army publications, and

papers covering the period from the 1940s to the 1970s .

Notes and tape recordings of interviews are on deposit at

the Corps of Engineers' Office of History, along with

photocopies of selected file materials .

Andrews spent 20 years as an Army forester in the field

before serving at the Office of the Chief of Engineers'

Buildings and Grounds Branch from 1978-1984 . Becton, a

forester with the Army since 1942, served both overseas

during World War II and as chief forester for the Third Army

from 1950-1973 . Gangstad served as assistant agronomist at

Buildings and Grounds from 1966-1969 . Kiltz, an agronomist

with Soil Conservation Service, Army, and Air Force

experience--and particular expertise in dust control--served

as chief of the Land Management Section at Buildings and

Grounds from 1951-1965 . Mays, an expert in agronomy, soil

conservation, and forestry with several decades of Army

experience, was chief of the Land Management Section from

1972-1977 and assistant to the chief from 1970-1972 .

The current staff of the Buildings and Grounds Branch

provided access to their files, which included both

publications and historical items for the entire period

covered by this history . Donald Bandel, management

agronomist since 1977, and Donald Cole, forester since 1985,

were interviewed .
Visits were made to Fort Meade and Aberdeen Proving

Ground in Maryland and to three U .S . Army sites in West

Germany to learn about current practices in natural

resources management at individual installations . Martin

Elyn, management agronomist for the V Corps Directorate of

Engineering and Housing since 1977 ; William Harmeyer, chief

of the Natural Resources Office at Fort Meade since 1975 ;

Jim Pottie, environmental protection specialist at Aberdeen

Proving Ground since 1980 ; Cornelius Powells, management

agronomist at Aberdeen since 1975 ; and Jamie Rappaport,

natural /cultural resources program manager for the National

Guard Bureau since 1982, provided the interviews and base

tours . Tom Warren, environmental resources officer at Fort

Carson, Colorado, provided information by telephone .

All of the former and current natural resources

personnel assisted the authors in identifying the impacts of

societal trends on Army policies and actions .

Department of the Army publications such as technical

manuals, regulations, pamphlets, bulletins, and directives

were available in Washington through the Buildings and

Grounds Branch, the National Archives, and the HQ, USACE,

Library, and through the Military History Institute at

Carlisle, Pennsylvania . Some of the publications date back

to the 1940s . As well as covering both overall policy and

procedural details on such topics as how to apply

pesticides, these documents provided insight into the

changing issues and concerns of each period .

At the National Archives Washington National Records

Center (WNRC) at Suitland, Maryland, material from the

Records of the Office of the Surgeon General, Record Group

112, provided information on wartime insect and rodent

control performed by the Corps of Engineers under Medical

Corps supervision . In Record Group 77, office of the Chief

of Engineers General Correspondence 1918-1945, items found

in decimal files 612, 618 .34, 618 .36, 618 .38, and 725

provided source material for this history .
Department of the Army Annual Historical Summaries for

fiscal years 1974-1985, on file at the Corps of Engineers

Office of History, provided an assortment of facts about the

natural resources program .

The Form 135s (which identify the contents of records

and the date they were transferred to WNRC, Suitland) were

consulted at the office of the Chief of Engineers records

manager . Eight boxes of Buildings and Grounds Branch office

files, dated 1954-1961, that had been retired to WNRC were

identified . Of these, four boxes yielded useful material

and four were not found and believed to have been destroyed .

The destroyed files were accession numbers 57-374, box 225 ;

58A-1075, box 313 ; 60A-1169, box 319 ; and 63-1553, box 18 .

These boxes reportedly contained land management and

woodland management plans by installation, reforestation

reports, and general administrative files for the 1950s .

The main office of the Wisconsin-based American Society

of Agronomy (ASA), in which B&G staff members have participated, was contacted to determine whether papers

relating to military land management were available . An ASA

staffer, Richard Dinaur, stated that they were not . A few

papers written by Army employees for presentation at ASA

events had been saved by former employees and were made

available for this history . Proceedings of Soil Science

Society of America seminars held during the 1950s and 1960s

were perused at the Library of Congress and not found to be

relevant .

On the recommendation of a former employee, selected

U .S . Department of Agriculture Yearbooks for 1948 through

1965 were examined . The only useful material was found in

the 1958 yearbook, which contained an article on wartime

military land management .

Annual reports of the Repairs and Utilities Division

during 1951-1986 were seen at the Chief of Engineers Library

but contained only fiscal data .

A handful of promising titles listed in The U .S . Army
Corps of Engineers and Environmental Issues in the Twentieth

Century : A Bibliography were investigated, but they did not

directly bear upon the topic .

The following selected bibliography lists the sources

that directly contributed to this history .

Published Sources

Becton, Wendell R . "The Third Army's Forestry Program ."

Forest Farmer (April 1972) : 29-30 .

Brown, J . E . "Warriors and Wildlife : The Odd Couple ."

National Wildlife , 12, No . 2 (February/March 1974) : 22-27 .

Joselyn, G . Blair . "Wildlife Management on Military Installations--A Critique of Army Policy ."

Management , 29 (January 1965) : 215-223 .

Kelly, Orr . "Trees : An Army Success Story ."

Star , Washington, DC, 6 May 1969, sec . A, p . 4 .

Oren, Eugene A . "Army Conservation Pays Off ." Army Digest

(January 1970) : 31-33 .

Government Publications

Journal of Wildlife

The Evening

Department of Agriculture, Forest Service . Effective

Multiple Use Forest Management for Second U .S . Army

Woodlands . Washington, DC : Government Printing Office,

1964 .

Department of the Army . Facilities Engineering : Natural

Resources--Land, Forest, and Wildli fe Management . Army

Regulation 420-74 . Washington, DC : Government Printing

Office, 1977 .
Department of the Army . Facilities Engineering : Natural

Resources--Land, Forest, and Wildlife Management . Pamphlet

420-7 . Washington, DC : Government Printing Office, 1977 .

Department of the Army . Facilities Engineering : Pest

Control Services . Army Regulation 420-76 . Washington, DC :

Government Printing Office, 1971 and 1978 .

Department of the Army . Facilities Engineering : Pest

Management Program . Army Regulation 420-76 . Washington,

DC : Government Printing Office, 1980 .

Department of the Army . Guides and Procedures : Repairs and

Utilities . Technical Manual 5-600 . Washington, DC : November 1945 .

Department of the Army . Herbicide- Manual for Non-Cropland

Weeds . Technical Manual 5-629 . Washington, DC : Government Printing Office, 1970 .

Department of the Army . Installations : Development and

Conservation of Wildlife on Military Reservations . Army

Regulation 210-480 . Washington, DC : Government Printing

Office, August 1950 .

Department of the Army . Installations :_ General Woodland

Management . Technical Manual 5-631 . Washington, DC : Government Printing Office, April 1963 .

Department of the Army . Installations : Natural Resources--

Management and Harvesting of Fish and Wildlife . Army

Regulation 210-221 . Washington, DC : Government Printing

Office, July 1962 .

Department of the Army . Natural Resources : Fish and

Wildlife Management . Technical Manual 5-633 . Washington,
DC : Government Printing Office, 1982 .

Department of the Army . Natural Resources : . Forest

Management . Technical Manual 5-631 . Washington, DC : Government Printing Office, 1981 .

Department of the Army . Repairs and Utilities : Engineer

Entomology Services . Army Regulation 420-76 . Washington,

DC : Government Printing Office, May 1961 .

Department of the Army . Repairs and Utilities : Entomology

Services . Circular 420-3 . Washington, DC : Government

Printing Office, August 1964 .

Department of the Army . Repairs and Utilities : Grounds .

Army Regulation 420-74 . Washington, DC : Government

Printing Office, 1958, November 1961, and March 1964 .

Department of the Army . Repairs and Utilities : Insect and

Rodent Control . Technical Manual 5-632 . Washington, DC :

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of the Office of the Quartermaster General, Correspondence

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of the Office of the Surgeon General (Army), WWII Administrative Records ZI .

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Andrews, John . Vienna, VA . By telephone . 6 April 1988 .

Bandel, Donald . Washington, DC . 23 March 1988 .

Becton, Wendell R . Gainesville, GA . 15 January 1988 .

Cole, Donald . Washington, DC . 23 March 1988 .

Gangstad, Edward 0 . Springfield, VA . By telephone . 27

March 1988 .

Kiltz, Burton F . Arlington, VA . 22 January 1988 .

Mays, Vance W . Glenwood, MD . 29 October 1987 .

Warren, Tom . Fort Carson, CO . By telephone . 7 April 1988 .

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