JT a^AdU/f I

FEDERAL

PUBLICATION

Administrative History:

Organizational Structures of

the National Park Service

1917 to 1985

PUBLIC DOCUMENT!

DEPOSITORY ITEM

OEC * 1985

CLEN SON

UBFARY.
Digitized by the Internet Archive

in 2012 with funding from

LYRASIS Members and Sloan Foundation

http://www.archive.org/details/administrativehiOOolse
ADMINI STRATIVE HI STORY

:

ORGANIZATIONAL STRUCTURES OF

THE NATIONAL PARK SERVICE

1917 to 1985

by

Russ Olsen

Administrative History: Organizational Structure of the

National Park Service —1917 to 1985

PREFACE

The following review of the organizational structure of the

National Park Service from 1917 to 1985 looks at each Director's

organizations and attempts to relate them to the attributes and

thrusts of the eleven individuals who have been Director. It

was not meant to be a scholarly study by any means--I would

leave that to the historians. It was an outgrowth of an attempt

to update the Washington Office list of "key" officials over the

years for a publication that Harold Danz of the Rocky Mountain

Region was working on. The background material was not available

in one location, it was in many locations, not all of which were

within the National Park Service. Unfortunately, something of

this nature is never perfect. I would have preferred to have

names in all the blocks, but records and memories could not come

up with them. Perhaps as more see this document, it will elicit

additions. Like any other project of this nature it involved

many people. Terry Tesar, of the Administrative Services

Division, who did a great deal of the collection of materials;

Dave Nathanson and Tom DuRant , of Harpers Ferry Center, who

provided materials from the National Park Service history

collection; Ed Bearss and Barry Mackintosh, of the History

Division, who were supportive and put up with reviewing the

many drafts; retirees Howard Baker, George Palmer, and Herb

Kahler, who reviewed in depth; Harold Danz, who started it

all and who reviewed and commented; and the many others who

offered comments, advice and encouragement; Jerry Buckbinder

and Karl Esser, of the Administrative Services Division, who

arranged for final drafting and typesetting; my own staff for

putting up with me; and last but not least, Pat Moffat, my

secretary, who typed the manuscript. To each my thanks.

Russ Olsen

September 1985

Organizational Structure—National Park Service--1917 to 1985

There have been many books, pamphlets, and articles written

about the National Park Service over the years. All of them

have dealt with the policies, practices, philosophies, and

to some extent, the people as individuals who have influenced

the Service and the National Park System. There has, however,

not been anything that depicts the organizational structure,

its growth, and/or the influence that people within the

organization have had on the organization. What began as

an agreement to update a listing of Washington Office key

officials has expanded in an effort to put on paper the graphic

organization over the years that will add to the continuing

administrative history of the organization.

The Service has been called a "family organization." John

Carver, a former Assistant Secretary, condemned the "mystique"

of the Service. Both are evident when the organizational

structural history is looked at from its beginning to the

present. When reviewed along with literature such as The

National Park Service by William C. Everhart, Parks, Politics

and the People by Conrad L. Wirth, Family Tree of The National

Park System by Ronald F. Lee, The National Parks; Shaping

the System by Barry Mackintosh, Administrative History:

Expansion of the National Park Service in the 1930 's by Unrau

& Williss, and America's National Parks and Their Keepers , by

Ronald A. Foresta, it becomes very apparent that the organization and the people within it have had a profound influence

on each other over the years. The sense of family and the

mystique can be visually related to what has gone on over the

past 68 years. Individuals who were in the organization in

the early years continued through the 1940* s, 1950 *s and 1960 's,

R. M. Holmes, who was the Chief Clerk in 1925, was still the

Assistant Personnel Officer in 1938; Frank Kittredge, who

was Chief Engineer in 1928, was the first Regional Director
of Region IV (Western), was Superintendent of Yosemite in 1942

and again Chief Engineer through 1952; Harold Bryant, who

was Assistant Director, Research & Education in 1928, was

Superintendent of Grand Canyon in the 1940' s; Preston Patraw,

an early Superintendent at Bryce and Zion, was Finance Officer

in the 194 0's; Howard Baker, a landscape architect in the

early 1930 's, Chief of Planning and Design in Omaha, and Regional

Director in Omaha in the 1950 's, retired as Associate Director

in the late 1960's; Eivind Scoyen, Superintendent at several

areas from the 1920 's, retired as Associate Director in the

mid-1960 's, to mention a few. These people and many others

molded and shaped those that followed. Fathers begat sons

and daughters who have continued the "mystique" and furthered

the family image. As examples, Benjamin Hadley, Superintendent,

son Lawrence, Superintendent and Assistant Director; Daniel J.

Tobin, Superintendent and Regional Director r sons, one at

Yellowstone and Daniel Jr. (Jim), Superintendent, Deputy Regional

Director, Associate Director and Regional Director; John Cook,

Master Mechanic, son John Cook, Superintendent, grandson John

Cook, Superintendent, Associate Director, and Regional Director;

Gabriel Sovulewski, Park Supervisor, Yosemite, son-in-law Frank

Ewing, Trail Foreman, and

grandson Herbert Ewing,

District Ranger; Fred

Binnewies, Ranger, Superintendent, sons Robert and

William, Superintendents.

Many of the individuals

prominent in the early organization are still alive and

continue to have influence

on the Service as it exists

today. That factor was

emphasized to Director George B. Hartzog in the late 1960's

by former Director Horace Albright after one of his yearly

Horace Albright , Conrad Wirth, and

George Hartzog at the Grand Canyon

in the 1960's discussing improvement

through training at the dedication

of the Horace M. Albright Training

Center .
inspection trips to Yellowstone. Albright, and indeed all

retired employees, believe they retain the inalienable right

to suggest ways of improving the operations of the National

Park Service.

Although August 25, 1916, is recognized as the establishment date

of the the National Park Service, it was not until May 16, 1917,

with the appointment of Stephen T. Mather as Director, that a formal structure was established. From a simple beginning the

Service has evolved into what is now a highly complex organizational structure. Stephen Mather's "family" organization has

grown to an organization of interdependent groups having differing ways of accomplishing work, yet they are still interrelated

subsystems of the whole. There is, however, a decided difference

in the "family" of yesterday versus the "family" of today. The

evolution of National Park Service organizational structure has

been the result of both internal and external forces acting on

the organization and the people within the organization. Organizational change occurs in all organizations (work, home, church,

etc.). What one must consider is that specific actions to

initiate organizational change are taken by people, and complex

organizations being what they are, those at the head are the

primary change agents.

Basically, there are two kinds of organization, formal and

informal. The term formal, as it relates to organizational

structure, refers only to the fact that those responsible for

maintaining the existence of the organization can describe its

form in language and symbols such as charts and manuals. An

informal organization is that which is not documented or made

a part of some sort of continuing record. Such organizational

structure definition is not to be confused with how an organization accomplishes its work. The National Park Service has a

long history of organizations that work through people moving up,

down, or laterally, where "titles" and "report to's" mean little

as long as the mission of the Service is or was accomplished.
What is interesting when one looks at the National Park Service

organization charts over the years is:

With the exception of new program thrusts, program

additions or deletions, the organization has functioned

with substantially the same supervisory structure.

The formal structure, while exhibiting growth has

basically remained the same.

The organization was and is a social structure, although

in the past several years the social aspects of the

structure are far more apparent in the field and through

the Employees and Alumni Association, the 1916 Society,

and the National Park Service Wives Association.

There is a line of continuity that stretches back to

1917. People remained a part of the organization for

long periods of time.

° Organizations were developed around people.

On the average, there has been some sort of organizational

change every 22 months.

Since 1917, there have been periods of time where no formal

documentation exists. There are, for example, no official,

formally approved organization charts for 1917, 1918, 1920

through 1924, the mid-1940's, 1964, 1967, mid-1970, 1971, and

1982. A reason for this may be that prior to 1955, organizational approval was vested in the Director of the National Park

Service. After 1954, organizational approval was held at the

agency (Department of the Interior) level with the establishment

of a Departmental Manual (the National Park Service portion of

the Departmental Manual is Part 145). However, for the period

1916 to 1985 we were able to locate more than 55 examples of

formal and informal descriptions of organizations from which

it was possible to develop 38 organizational depictions. These

sources ranged from National Archives documents to telephone

directories.
As one looks at the organizational structure there have probably

been no more than eight major changes in how the Service was

organized to accomplish its mission. As examples, the following

might be considered as major:

° First organization in 1917 (for obvious reasons).

° Establishment of program Assistant Directors in the

1920's.

° Effect of Executive Order 6166 1 and the Civilian

Conservation Corps (CCC) program in the 1930' s.

° The establishment of Regional Offices in the late 1930' s.

° The establishment of centralized design and construction

offices in the 1950 's.

° The establishment of the Office of Archeology and

Historic Preservation in the 1960's.

The establishment of the Heritage Conservation and

Recreation Service in the 1970 *s.

The abolishment of the Heritage Conservation and

Recreation Service in the 1980' s.

Expressed as an opinion not substantiated by known fact, the

remainder of the changes were more process changes or changes

in flow as to who accomplished the business of the Service.

In assessing and describing the organization, an hypothesis

was drawn that an organization takes on the flavor of those

individuals at the head of the organization. For example,

Mather's interests revolved around the management of the parks,

which was one of the reasons that Franklin Lane appointed him.

His organizations were small central offices designed to meet

1 Executive Order 6166 transferred 2 National Parks,, 11 Military

Parks, 10 Battlefield sites, 10 National Monuments , 3 miscellaneous

memorials, and 11 National Cemeteries from the War Department to

the Office of National Parks, Buildings and Reservations of the

Department of the Interior.
necessary park needs. As there was a recognition of increased

need, his apparent thrusts were to put the needs close to the

parks.

In its beginnings (1917 through 1918), the Headquarters appears

to have been a small policy and oversight office for the national

parks and monuments, as well as a housekeeping function vested in

a Chief Clerk who was responsible for routine bureau activities

(personnel, mail and files, small purchases, and accounts). In

1919, Engineering and Landscape Engineering appeared as identifiable functions and were located in a series of offices on the

West Coast (see chart #2, page 35). Location of offices in the

west (in Los Angeles, California, in Portland, Oregon, in the

Underwood Building in San Francisco, California, and on the

Berkeley campus of the University of California) made sense, as

prior to 1933 the majority of the national parks and monuments

were west of the Mississippi River. If one traced the Design,

Planning, and Construction functions they would date from this

period. Although not showing up on an organizational chart

until he replaced Daniel Hull, Thomas C. Vint was on board in

the early 1920' s. His influence on planning and design was to

continue through the early 1960 's and still continues today.

Individuals who worked for Vint branched out over the years to

become regional directors and park superintendents and to occupy

other high level positions.

As the Service grew, by 1925 the importance of public relations

and administration as we think of them in 1985, was reflected

in the establishment of a function of Operations and Public

Relations (as one reflects, Mather was considered by many to be

a great salesman and many of his actions reflected this skill)

headed by an Assistant in Operations and Public Relations (see

(see chart #3, page 37). One should note that Administration,

as it is known today, was titled Operations and it was not until

1951 that it was to become specifically titled an administrative

10
Arthur E. Demarau in the 1930' s. From a historical viewpoint one of

the most influential , tireless

,

behind-the-scenes National Park

Service employees.

function. Arthur E. Demaray,

after starting as a draftsman

in 1917, was to become an

Assistant Director, Associate

Director, and Director in

the course of a 34-year career

with the National Park Service

What began as an investigative unit in 1925 and subsequently became Auditors of

Park Operators (concessions)

Accounts was what appears to

be the genesis of the current

Concessions Division. The

early functional statement

read: "Examine and audit the

books of the public utilities

which operate in the National

Parks and Monuments under franchises; obtain by independent

investigation full details concerning operations and financial

consideration of public operators; recommend changes in rates

or services." Comparing this to this current functional

statement there is little change except in language usage.

C. L. Gable was in effect "Mr. Concessions" from 1925 to 1946.

An education (natural history) unit or the beginnings of the

Service interpretive program was also established in a California

office on the University of California's Berkeley campus. By

1927 the Service had established its own legal function (see

chart #5, page 41) that was to continue until the mid-1950 's

when all legal functions were consolidated in the Department of

the Interior's Office of the Solicitor. In this 28-year period

the Service was to have only two legal officers, George A. Moskey

for 17 years and Jackson E. Price for 11 years. An interesting

point is that for many years, well into the 1950 's, the lawyers

actually did all contractual work for the Service. Today,

11
procurement is an accepted

part of the Administrative

function.

Jackson Price went on

to become an Assistant

Director and a Regional

Director before retiring

George A. Moskey, the first National

Park Service lawyer, 1927 to 1944.

in the late 1960's. This

can be construed as family

if one one is so disposed, as

functions moved out of the

Service or were dropped anyone

who wanted to stay with the

Service did so. In 1928 the

title of the Director's alterego position was changed from

from Assistant Director to

Associate Director; the title

did not change again until

1967 when it became Deputy

Director. Arno B. Cammerer held this position from 1919 until

he became Director in 1933. He then went on in 1940 to become

Regional Director, Region I, Richmond, Virginia (now Southeast

Region, Atlanta, Georgia). In 1928, there was organizational

recognition that forestry was important when Education and

Forestry became a combined organizational entity. When Education

Jackson E. Price, the second and last

lawyer on the Headquarters staff, was also an Assistant Director and Regional

Director before he retired.

12
and Forestry were combined the functional statement read:

"Supervises museum construction and installation of exhibits;

forestry projects and fire prevention; carries on survey of

wildlife." This unit, if tracked through the organization, (see

chart #39, page 109) was the beginning of the resource management,

museum and exhibit productions, and ranger activities functions

as they exist today in the Division of Visitor Services, Harpers

Ferry Center, the Division of Biological Resources and the

National Park Service portion of the Boise Interagency Fire

Center.

Director Albright's staff in the early 1930' s. Front row L to R:

Arno B. Cammerer , Associate Director; Director Albright; Arthur E.

Demaray, Assistant Director, Operations; Isabelle Story, Editor;

Back Row L to R: Conrad L. Wirth, Assistant Director, Lands; R. M.

Holmes, Chief Clerk; Harold C. Bryant, Assistant Director, Research S

Education; George A. Moskey, Assistant Director, Use, Law & Regulation.

By 1930 (see chart #7, page 45), the Headquarters office

had five well defined functional activities, four of which

were then or would come under Assistant Directors: Operations

13
(administrative functions), Legal, Research and Education, and

Land Planning. A Chief Clerk handled the "housekeeping" function

until 1931 when it was placed under Operations. A history

function (see chart #8, page 47) appears for the first time

under the Branch of Research and Education. By 1931 the

administration of Southwestern National Monuments was a firmly

entrenched management function. This may well have been the

recognition, as the Service grew, that Washington could not

directly administer every National Park Service area (see

chart #8, page 47).

Mather and Albright, although differing personalities, were of

like mind when it came to the national parks and the National

Park Service. Both were expansionists and believed in use of

the parks by people, which can be read into the organizational

structure--everything for the parks and a small Headquarters

office. Road building, museum construction, and interpretive

exhibits for the visitor show up functionally. Cammerer, a career employee, was also expansionist, but was also a product

of his times. He benefited from the Roosevelt Administration's

decision to use the parks in the execution of its social and

economic programs. His organizations reflect this growth and

his long association with the bureaucracy. Functions were

structured, management was orderly, and growth came to the

Headquarters office; decentralization occurred throughout

Cammerer * s directorship.

As one looks at charts for 1933 and 1934 (see charts #10 & 11,

pages 51 & 53) it is apparent that functionally the Service was

becoming more specialized. The CCC functions, although not

specifically mentioned, were in a Recreational Land Planning unit

under Conrad L. Wirth who was subsequently to become Associate

Director and Director. Although not appearing on any formal

chart, the decentralization of the CCC program and the decentralization of the Planning and Design functions into Eastern and

Western Divisions with district offices (see chart #11, page 53)

14
may well have been the genesis

of the thinking to establish

Regional Offices. The late

1934 organization (see chart

#11, page 53) clearly reflects

Executive Order 6166 and the

Verne E. Chatelain , First National

Park Service Historian and Assistant

Director, Historic Sites & Buildings,

Thomas Vint in the Planning and

Desi gn Offi ce

.

needs of the organization to

accommodate its increased

functions or responsibilities.

History achieved Branch status

in 1935 with a supervising

Assistant Director (see

chart #12, page 55).

The organization formally approved in October 1938-'- (see

chart #15, page 61) did two things. It established a new

way of of managing by creating Regional Offices. Additionally,

for whatever reason--internal politics or external politics or

perhaps even a power struggle or, as suggested by George Palmer,

a major funding problem—all Assistant Director positions were

abolished. The Conrad Wirths, Hillory Tolsons, Ronald Lees,

etc, all became Supervisors of functions. It was not until

July of 1943 (see chart #17, page 65) that Hillory Tolson

would again become an Assistant Director in the Chicago office

-* In actuality the Regional Offices were set up in late 1937 but

not formally charted until 1938. S. Herbert Evison vividly recalls

that on June 1, 1936, an office was established in Richmond, Virginia

,

that was the "pattern office" for other Regional Offices established

in 1937.

15
The first Regional Directors from L to R: Frank Kittredge, Region IV,

San Francisco, California; Thomas Allen, Region II, Omaha, Nebraska;

Herbert Maier, Region III, Santa Fe , New Mexico; Carl Russell, Region I,

Richmond, Virginia.

where the Service Headquarters was moved to during World War II,

and it was not until 1949 (see chart #20, page 71) that an

additional Assistant Director position for Conrad Wirth was

again created. Newton Drury, although of the same era and

same school system (University of California, Berkeley) as

Horace Albright and Lawrence Merriam (Regional Director, Omaha,

Nebraska, and San Francisco, California), was restrained by his

stringent sense of bureaucratic propriety. Characterized as a "died in the wool purist," he espoused a caretaker role for the

National Park Service as well as minimal development. He did

not like the rough and tumble politics of Washington, which

did not do either him or the Service any good. His preservation

philosophy during the war years did serve the Service well as he

was able to keep the Army and Navy from running away with the

parks. Several historians view that even though Mr. Drury was

constrained by the war years his administration was a clear

shift of emphasis from that of Mather, Albright and Cammerer.

It perhaps initiated a reversal from which the Service has

never totally recovered as its functions became more diverse.

16
Newton B. Drury, the fourth National Park Service Director , being sworn

in August 20, 1940. L to R: Under Secretary Wirtz; Floyd Dotson , Chief

Clerk, Department of the Interior; Director Drury; Secretary Harold Ickes.

His handling of the Echo Park Dam controversy in Dinosaur

National Monument was divisive to the organization's external

support.

An interesting organization was that in the Chicago office during

the World War II years (see chart #17, page 65). Arthur Demaray

as Associate Director remained in Washington while Director Drury

and Assistant Director Tolson relocated to Chicago with the

Headquarters office. Mr. Demaray remained in Washington because

he was apparently the only experienced Congressional liaison

person who could defend the Service's funding requests. It would

appear that Mr. Tolson ran the day-to-day operations of the

Service during this period. Organizationally, Branches were

still the major entity with Divisions as a sub-unit , yet three

Divisions and the Chief Clerk (appearing again after a 5-year

lapse) reported to the Director's office. One would have to

make the assumption that Finance, Personnel, Safety, and the

Chief Clerk reported directly to Mr. Tolson who, by this time,

had complete control of the administrative process of the

17
organization while, at the

same time, having direct

influence over every other

aspect of the Service's

mission.

An interesting sidelight:

Regional Directors were

moving between Regions and

Washington Branches. A

cadre of long-term Regional

Directors was becoming

apparent with Thomas Allen,

Lawrence Merriam, and Minor

Tillotson. By 1946, Mr. Vint

had become "Mr*. D&C" with the

combination of his Branch

with the Branch of Engineering

into a new Branch of Development (see chart #18 page 67).

Concessions as a Division had emerged —looking at the timeframes

this may well have been the organizational response to visitors

again coming to the parks after the wartime hiatus. From a functional standpoint there were units for Planning & Design

(Development), Lands, Concessions, Natural History, and Forestry

which would eventually become Ranger Services.

Hillory A. Tolson.

It became clear in the 1948 organization that this structure

clearly delineated who did what at the Directorate level. The

Director (Mr. Drury) held to himself the Legal and Public

Relations functions; at the time these were the areas that were

important to Mr. Drury. The Associate Director was responsible

for Lands & Recreation Planning, Development (Design and

Construction), and Public Services. Assistant Director Tolson

was responsible for administration, and some of the functions

that would eventually become a part of today's operational

directorate functions. When Newton Drury left as Director,

18
Arthur Demaray was appointed Director; however, he had already

informed the Secretary of his intentions to retire by year's end

and the supposition can be made that the Directorship was a reward for long and faithful service to the organization.

Mr. Demaray was an extremely popular Assistant and Associate

Director, had an exceptional memory, was practical, and was

apparently outstanding in his appearances at legislative and

budget hearings. Ben Thompson, in a National Park Service

Courier article, extolled Arthur Demaray ' s role in the development of the Service and the National Park System. His knowledge

of the budget was such that he would testify before the appropriations committee from memory with his budget book unopened

on the table in front of him. It was quite clear that with the

appointment of Conrad Wirth as Associate Director he was the

heir apparent. The Demaray organization of May 1951 (see

chart #21, page 73) bears this out. It was in reality the

first Wirth organization. There was again a clear division of

duties. Hillory Tolson had all the administrative functions and

forestry, the Associate (Mr. Wirth) had Design and Construction,

Lands, and Concessions, his personal interests, and Ronald Lee

had the remainder. Many of Mr. Wirth' s key advisors were in

positions of influence. If you were to look closely at the

1933-34 CCC organization you would note that Mr. Wirth 's

"cabinet" consisted of largely the same people who were with

him there. When Mr. Wirth became Director in December of 1951

the Directorate was organized with the Director and three

Assistant Directors (see chart #22, page 75). Again, if one

relates the personality of a Director to the organization,

Mr. Wirth 's organizations reflected his background as a landscape

architect and a planner. Philosophically, Wirth was more akin

to the earlier Directors. He was a use-oriented Director.

Mission 66, promoting park improvement, access, and use, clearly

bears this out. It has been said that Mission 66 was in part

the completion of Mr. Wirth 's CCC program for the Service that

was interrupted by World War II. One hundred and fourteen

visitor centers were built, the in-Service training centers

19
"V

I

5V^

\

THIS IS A

MISSION 66 PROJECT

TO IMPROVE

YOUR NATIONAL PARKS

FOR DETAILS ASK YOUR PARK RANGER

CAUTION

ROAD UHDtR C0HSIRUU10H

HEX1 18 WILLS HMIOHM. PARK SITOL

A typical Mission 66 project in the Pacific Northwest.

The Stephen T. Mather Training Center, Harpers Ferry, West Virginia , and

the Horace M. Albright Training Center, Grand Canyon National Park, Arizona,

both Mission 66 projects.

(Mather and Albright) were built, and reservoir-based recreation

was developed. Where Drury had good relationships with the

conservation groups, Wirth had poor relationships and, unlike

20
Mather and Albright, as a career civil servant, he did not have

the business type associations for support of the Service as they

did. His advisors had similar backgrounds or were former CCC

staff from that period in his career for which he was recognized

as a capable administrator. As an aside, a certain amount of

influence was also exerted by Mr. Wirth's carpool of the late

1950 's and early 1960 *s, which consisted of Raymond Freeman

(who would be a Deputy Director under Hartzog), William Bahlman

(who was Mr. Wirth's organizational advisor), Edwin Kenner (who

was Chief of Maintenance), and Sidney Kennedy (who was a planner). Each of these individuals had positions of influence

in the organization. The Design & Construction function reported

directly to the Director —a clear indication of the relationship

between Vint and Wirth.

I

Lemuel A. (Lon) Garrison, Chief,

Branch of Conservation & Protection,

the field rangers' Washington Office

represen tative.

removal of the planning, design,

from the Regional Offices.

With the September 1954

organization (see chart #23,

page 77), Administration was

to become a cohesive unit and

Operations as a functional

entity formally began (the

Branch of Conservation and

Protection under Lemuel

Garrison was the field

rangers' Washington Office

representative). This organization also consolidated

Mr.Vint's influence over

Design & Construction with

the establishment of Field

Design offices and the

and construction activities

By 1956 and with the establishment of the Mission 66 program

of park renewal (a particular interest of the Director),

21
Mr. Wirth apparently felt he needed assistance in running the

organization and re-established the Associate Director's position

(see chart #24, page 79). He filled it with an experienced park

superintendent, Eivind T. Scoyen, who, although not appearing

on previous organization charts, had been a superintendent with

increasing responsibilities in park management since the 1920' s. Perhaps this was the beginning of a recognition that there was

a Washington Office bureaucracy and a field bureaucracy that

needed to be melded together. This dichotomy exists today and

each succeeding Director has struggled with an appropriate

balance. In this same organization a new regional office in

Philadelphia was established.

Although people moved in and out of Washington, there was a hard-core of continuity of Branch/Division chiefs with long

term varied Headquarters

experience (Thomas Vint,

Design & Construction; S.

Herbert Evison, Information

& State Cooperation; Charles

Richey, Lands; Donald Lee,

Lands & Concessions; Ronald

Lee, History & Operations;

Herbert Kahler, History;

Hillory Tolson, Administration

& Operations; Frank Ahern,

Safety; John Doerr, Natural History & Interpretation; and

Lawrence Cook, Forestry & Ranger Activities).

Ronald F. Lee S John Doerr, two long

term Washington Office employees.

The organizations of the late 1950 's and early 1960's were not

particularly distinctive (see charts #23 & #24, pages 77 & 79).

Maintenance appeared as an organizational entity as did formal

recognition of the ranger role with the establishment of a Division of Ranger Activities reporting directly to the Director

The 1957 organization (see chart #25 page 81) reflects the push

22
and pull between Washington and the Field as well as any organizational structure up to this point Administration was Administration, Design and Construction influence over the physical

and projected appearance of the parks was never stronger. The

Mission 66 staff through William Carnes had strong ties to

earlier Design and Construction relationships, his personal

relationship with Thomas Vint going back to the early 1930 's.

Interpretation under Ronald Lee (a historian) and Daniel Beard

(an interpreter of natural history, and first superintendent

of Everglades National Park) had a strong influence over the

historical and eastern parks. Recreation Resources Planning,

or the "planners of the future," were former staff in the CCC

program under Mr. Wirth. Apparently, the creation of the

Ranger Activities Division (see chart #25, page 81) reporting to

the Director was clear recognition that "the uniformed ranger

was entitled to a Washington Office voice." Lawrence Cook, as

Division Chief, sat on the Superintendent Selection Committee

of the period.

In the late 1950' s the Service made an attempt to create a sixth Regional Office in St. Louis, Missouri, even to the extent

of appointing a Regional Director, John S. McLaughlin. The

The "six" Regional Directors , L to R: Howard Baker, Region II, Quaha

,

Nebraska ; Elbert Cox, Region I, Richmond, Virginia; Lawrence Merriam,

Region IV, San Francisco , California; Minor Tillotson , Region III,

Santa Fe , New Mexico; John McLaughlin ; Daniel J. Tobin, Region V,

Philadelphia , Pennsylvania

.

23
Department, however, would not formally approve and in the words

of Howard Baker, "the idea died before it was born."

The December 1961 organization restructured to five Assistant

Directors: Administration; Conservation, Interpretation and Use

(Operations); Public Affairs; Resource Planning; and Design & Construction (see chart #26, page 83). One might note that for

all the years that Thomas Vint was a major force within the

Service it was not until one month before he retired in 1961 that

Design & Construction was upgraded to an Assistant Directorship

and was then subsequently filled by A. Clark Stratton, a manager,

not a Design and Planning professional.

There were personal relationship problems with this organization;

the Lands Division moved back under Operations rather than

Administration and Safety moved back under Administration rather

than Operations—both for conflict reasons. Additionally, the

Assistant Director, Public Affairs, was not particularly pleased

with what he supervised based on his perception of his skills

and talents. Resolution of this quasi-problem did not occur for

four years and the subsequent reorganization.

1964 saw the beginning of the Hartzog Directorate, organizationally and Systematically a period of change and expansion

(see charts #27-31, pages 85-93). In his nine years as Director

there were seven changes to the organization--the Associate

Directors' title changed to Deputy Director, there were Associate

Directors and Assistant Directors, there was a period of two

Deputy Directors and at one point in time there were three

Deputy Directors and everyone's title was "Director of." The

external history program was established. National Capital

Parks, headed by Russell Dickenson as General Superintendent,

reported to an Office of National Capital and Urban Affairs

headed by Theodor Swem in the Washington Office for a short

period of time. Personnel and Programming & Budget reported

directly to the Director. It was not until Mr. Hartzog was

24
replaced in December of 1972 that the organization returned

to a more staid traditional structure.

It would be wrong to say that the organizations under Director

Hartzog did not work--they did. However, they were a good

reflection of his management style and his use of people. As

one reviews the charts and tracks the people, it is evident

that the organizations were oriented around people who could

keep pace with the Director's mind and stamina. Mr. Hartzog'

s

organizations are a good example of titles that meant nothing

to the people. Take, for

example, Johannes Jensen

who came into the Service

(recruited by Hartzog) as

Chief of the Construction

Division, then Assistant

Director Design and Construction, then Associate Director,

Planning and Development, then

Associate Director, Professional Services, and finally,

as Assistant Director, Service

Center Operations (Denver);

yet through most of the

Hartzog years was a key

advisor to the Director.

Harthon "Spud" Bill was a sole Deputy Director, shared responsibility with one other Deputy Director, and before he retired

shared responsibility with two other Deputy Directors; yet

during the entire period he occupied the "traditional" number

two's office with direct access to the Director. Administration

fluctuated between an Office and an Associate Directorship and,

rather interestingly, at any given point in time there were no

more than two career National Park Service employees in positions

of responsibility within the administrative organization.

Hartzog went outside the organization for his administrative

Johannes E. N. Jensen.

25
types. The external historic preservation programs and the

scientific programs took on a "life" of their own. Law enforcement became a visible entity (see chart #31, page 93) headed

by professional U.S. Park Police officers, some of whom would

subsequently go on to become Chiefs of the Park Police, all

this in response to several riot or near riot incidents in the

early 1970's.

With the appointment of Ronald Walker, a non-park professional,

via the external political process as Director, the Service

returned to a well structured more formal organization (see

chart #33, page 97). There was an expansion of Regional

Offices from seven to nine based on the administration's

(President Richard M. Nixon's) philosophy of decentralizing

decision making to regional cities. During the Walker years

the Deputy Director (Russell Dickenson) ran the-day-to-day

operations of the Service and the organizational structure

tended to be a combination of highly structured "republicanized"

thinking coupled with National Park Service pragmatism.

Gary Everhardt ' s organization of May 1976 once again moved the

budget process from administration to reporting directly to the

Director; Training became a separate division; the Advisory

Council for Historic Preservation became an independent agency;

and there was a clear distinction between in-house history and

archeology and the external historical and archeological programs

(see chart #34, page 99). The emphasis or prominence of Alaska

became apparent with the establishment of an Assistant to the

Director, Alaska. The use of "Assistants to" over the years

emphasized a program's importance for a period of time; i.e.,

Arthur Demaray as an "Assistant to" which then became a functional area, William Briggle as an "Assistant to" for the

Centennial Celebration which then disappeared, and also an

"Assistant to" for Alaska which would in December of 1980

become a Regional Director. Both Everhardt ' s and Whalen's

26
organizations could be characterized by large numbers of

Offices reporting to the Director.

The major organizational change under Whalen was created by the

establishment of a separate Heritage Conservation and Recreation

Service which combined the National Park Service's external

Historic Preservation programs with Interior's Bureau of Outdoor

Recreation. The Bureau of Outdoor Recreation (BOR) in its

establishment in the early 1960's had also been an off -shoot of

the Service. The new bureau was to be short-lived, however, and

all of its functions were returned to the Service and are

reflected in the organization of June 1981.

Of all the Directors, Everhardt and Whalen could probably be best

described as becoming more technology-oriented. Where Everhardt

came from a strong engineering and maintenance background Whalen

came from an educational counseling background (his first

National Park Service job was as a guidance counselor in the Job

Corps program). He (Whalen) was a use-oriented Director with an

emphasis on urban-type social programs. Both were young men

without a well established external or internal political base

from which to draw upon, both tinkered little with the organization, and both dealt with selected individuals of like mind for

advice (Everhardt had William Briggle; Whalen had Richard Curry).

Walker, Everhardt, and Whalen were Directors of short term

compared to their predecessors. There were many single interest

external influences on the rise; thus, the politics of being

Director left little time for developing organizations that "set

a course" or that expressed to a large degree the individuality

or personality of a Director.

When Mr. Dickenson became Director it was his prediliction to

stabilize the Service. As a former Deputy Director, Regional

Director, and Washington Office employee he was interested in

conciliation and compromise with a strong emphasis on decentralzed management and operations. His organizations were based

27
on a single Deputy Director, then two Deputy Directors (one a non-park professional and also a political appointee) and

finally a single Deputy (the non-park professional). His

organization was strongly influenced by economics and saw

consolidation of like functions under fewer management levels

(see charts #37 & #38, pages 105 & 107).

In May 1985, William Penn Mott became the twelfth Director of

the National Park Service. Although a professional park manager

Mr. Mott ' s career was not with the Service. Although it is too

soon to make judgments or predictions, there is some indication

there will be a blurring of the classifications preservation or

use-oriented. There is some indication that he will be useoriented in the urban or population density areas and preservation oriented as it relates to the traditional or one-of-a-kind

ecosystem parks.

It is somewhat apparent that Director Mott will take a high

profile approach to the Directorship. The energy and enthusiasm

shown to date might well be construed as a kinship with Mather,

Albright, and Hartzog. The press appears to feel that he

(Mr. Mott) may be willing to confront whatever problems the

system might have and be willing to make unpopular decisions.

His imprint on the organization is, however, yet to be seen.

The process of developing an organizational structure has become

over the last 15 years a cumbersome process. A formal organizational change takes a minimum of three months, some have taken a year or more and some are never formally approved. Several

organizations that actually functioned fall into this category

(charts #30 & #31, pages 91 & 93).

Organizations are not necessarily developed solely for program

needs. One should realize that many times organizations are

developed around personalities and personal relationships. For

example, where the establishment of the Associate Director

28
position in the October 1956 organization can be viewed as an

organizational need related to Director Wirth's implementation

of Mission 66, the creation of an organization with three Deputy

Directors in 1971 does not have a programmatic basis. The

differences between the two organizations are clear examples of

organizational/personal need as perceived by the Director of the

moment. Due to style and background one appears as an organizational need, the other a personality based need. This is not

to say that one or the other organization is not good, but

rather to point out that those at the head are the change

agents and that organizations are developed around program

needs and/or personalities, that organizations do reflect the

background, personality, and style of the Director and that

Directors establish organizations which in their minds are the

best ways to accomplish the business of the Service.

The final two charts (#39 & #40, pages 109 & 117) trace the

organizational development of the administrative function

from its Chief Clerk roots in 1919, and the Ranger, Naturalist,

and Historian park related functions from their 1925 base

in the Education (Natural History) Branch under Ansel Hall.

Perhaps these two depictions show more about the growth of

the Service from a simple organization to a complex organization

of interdependent, interrelated subsystems of the whole than

any of the organizational charts.

These charts attempt to follow two segments of the organization

from their inception during the early years. Administration

which dates back to the first Chief Clerk and Resource Management

& Interpretation which dates to the Education Branch established

in 1925. If one actually follows the "time line" one can see

more about what has philosophically happened within the organization. Such a review may lend credence to the statement "everything changes, yet nothing is changed." If one follows from

1925 it is possible to watch the ebb and flow of the organization

as forestry (ranger activities) and history spin off, go their

29
own way for a period of time, history and natural history combine

for another period of time, and see in 1985 that ranger activities and interpretation are combined in Visitor Services, and

history and museums are separate under their own Associate

Director. The Administrative chart shows total organizational

growth in terms of support services needed--from a Chief Clerk

who did everything to today's organization where the major

functions have become highly technical specialities from budget

formulation to budget execution, procurement to property management to personnel management, et. al.

30
31
CHART 1

In the early years of the Service there were no formal organization charts developed. There were personnel listings from which

it was possible to develop functional organizational layouts.

This first chart depicts more how the six people in the organization related one to the other than it does to any headquarters

function. As one begins to look at the organizational growth

from 1917 to 1985, it might be well to consider the first and

the last for a moment. The legislation that established the

Service, approved on August 25, 1916 (39 Stat 535), authorized

a Director to be paid at $4,500 per year, an Assistant Director

to be paid $2,500 per year, a Chief Clerk to be paid $2,000 per

year, a draftsman to be paid $1,800 per year, a messenger to be

paid $600 per year, and additionally authorized other staff in

Washington, DC at a cost not to exceed $8,100 per year. Total

salary cost of the Washington Office by simple addition could

not exceed $19,500. The first organization had six people.

Compare in your mind these six people to 1985' s approximately

825, and the $19,500 (expanded to allow for current inflation,

this would be $270,000) to 1985's $29,568,000. As of August 25,

1916, 14 National Parks, 21 National Monuments, Hot Springs

Reservation, and Casa Grande ruins were to be administered by

the Service. One National Park and one Monument were added in

1917. Just this brief comparison will give one an indication

of growth.

32
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33
CHART 2

This chart shows the creation of two new functions; Engineering

and Landscape Engineering as field entities. Engineering was

located in Portland, Oregon, where it remained until 1926, and

Landscape Engineering which was apparently first located in

Yosemite National Park, and then moved to Los Angeles, California,

in 1923. The number of areas administered had increased to 44

by the end of 1919.

An early photograph of Isabelle Story,

the first Information Officer of the

National Park Service. She retired in

1956.

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35
CHART 3

The chart shows the establishment of two new functions; an

investigative function in the Washington Office with an Assistant

Chief. This was an audit unit/function for the franchised public

utilities (concessions) and an education (natural history)

function that was the progenitor of the ranger, naturalist, and

park system related history functions of 1985. The landscape

architectural function was still in Los Angeles, California, the

education function was on the University of California campus

in Berkeley, California, and the engineering function was by

this time in Yellowstone National Park. There also was an

Assistant iri Operations and Public Relations function established

in the Washington Office. Mr. Demaray filled this position, and

one is able to see his growth in the developing organization.

There were 54 diverse areas in the system by the 'end of 1925.

36
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CHART 4

The chart is basically the same as Chart number 3, however, the

investigator (audit) unit was deleted for an unknown reason. It

did, however, appear again in 1927 retitled as Auditors, Park

Operators Accounts (Field).

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39
CHART 5

A legal function was charted for the first time with George

Moskey as the law officer. The engineering and landscape

engineering functions moved to San Francisco, California

towards the end of 1927. The Southwestern Monuments group

was established (charted), with Frank M. (Boss) Pinkley as

Superintendent. As an aside, anyone who gets the chance

should read, " Boss" Pinkley 's Ruminations , a compendium of

his monthly reports last published in 1959. One would have

to draw the conclusion that the Washington Office realized

that it could not directly manage all of the growing number

of areas. An Assistant Director (Field) is established. The

Superintendent of Yellowstone, Horace Albright, is assigned

this collateral duty. This is another indication that Director

Mather and Assistant Director Cammerer could not personally

handle all matters outside of Washington in what was by this

time a ten year old still growing organization.

Casa Grande National Monument and Frank M. (Boss) Pinkley, Superintendent

,

Southwestern Monuments (circa 1930).

40
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41 CHART 5
CHART 6

The alter-ego position was retitled Associate Director.

Functional branches were established with Assistants to the

Director for Operations, Law, and Lands. Washington B. Lewis,

Superintendent of Yosemite, fills the Lands position. A field

headquarters shows up on this chart. From all that can be pieced

together this was not an actual organization but a hypothetical

one to show a separation of the Washington headquarters functions

from those functions in the field. Howard Baker recollects that

each "Field" function was autonomous and each was in a separate

building in the San Francisco, California, Bay area. Forestry

was recognized as a function with the creation of an Education

and Forestry Branch under Ansel Hall, who was the Chief Forester.

John Coffman was hired as the Fire Control expert. He was to

remain with the headquarters office until 1951.

The Education & Forestry staff in Berkeley , California.

Front row L to R: Mr. Yeager , Carl Russell , Ansel Hall, Mr. Harwell

Back row L to R: Mr. Brakman , John Coffman, Mr. Bean and Mr. McKee.

42
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A branch of Research and Education is established in the

Washington Office under Harold C. Bryant. Assistant Director

positions are established.

Harold C. Bryant, Assistant Director, Research & Education

44
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45 CHART 7
CHART 8

A History division under Research and Education was established

Education and Forestry is absorbed into the Branch of Research

and Education but still maintains an office on the West Coast.

The Chief Clerk functions are moved under the Branch of Operations. Conrad Wirth takes over the Lands functions from

Washington Lewis.

An early picture, prior to establishment of Morristown Historical Park, with

Director Albright and Chief Historian Verne Chatelain. L to R: Nelson Butera

,

City Clerk, Morristown, New Jersey; Director Albright; Judge Edward Mills;

Lloyd W. Smith, donor of Jockey Hollow; Clyde Potts, Mayor of Morristown,

New Jersey; Grey Higbre, President, Morristown Chamber of Commerce; Verne

Chatelain, Chief Historian; Tom Dolan

.

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CHART 9

There are functional name changes. Some of the land functions

were assigned to the legal staff which was titled Branch of

Lands and Use. Mr. Wirth ' s function was retitled Branch of

Planning. Colonial National Monument, an eastern area shows

up on the chart.

48
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CHART 9
CHART 10

The Assistant Director Operations function begins to look more

and more like the Administrative arm of the Service and becomes

responsible for the concessions function (Park Operators

Accounts), the budget function (Control Division) and all of the

Chief Clerks functions. The Field Education Division was

physically moved to Washington. The Landscape Architecture

Division is decentralized to Districts. The names Langley, Sager,

Wosky and Baker show up for the first time; these same names will

appear on many subsequent charts. Mr. Wirth's planning function

was retitled Lands but it still retained the planning function as

is evidenced by the subordinate units. Horace Albright was

replaced by Arno Cammerer, Arthur Demaray becomes Associate

Director, and Hillory Tolson becomes the Assistant Director,

Operations. It was during this period that Executive Order 6166

was signed and the official name of the organization became

"Office of National Parks, Buildings and Reservations," the

official name did not again become National Park Service until

March 10, 1934.

Merle Sager, Landscape Architect,

District 5. He retired as Chief

Landscape Architect.

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51 CHART 10 <
CHART 11

This organization reflects Executive Order 6166 with the

establishment of an Assistant Director, Buildings Management,

for the Washington, DC functions absorbed. At this point in

time, the National Park Service had those functions that in 1985

are clearly associated with the Public Buildings Service of the

General Services Administration (GSA). The Branch of Landscape

Architecture became the Branch of Plans and Design and had an

Eastern and Western Division reflecting the increase of Eastern

parks. National Capital Parks appears on this chart for the

first time as a result of the Executive Order. The Lands

Branch was again retitled as Recreational Land Planning. This

was the unit that would oversee the Civilian Conservation Corps

program. The beginnings of cooperative relationships with the

States also is charted.

Tom Vint' s staff on the roof of the Interior Building in the mid-1930' s. Tom Vint is third from the left in the front row. Howard Baker is behind

Mr. Vint' s right shoulder. Dudley Bayliss is in the same row as Mr. Baker

directly to his right. William Carnes is standing first from the left in

the second row.

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CHART 1 
CHART 12

The major change in this chart is the creation of a separate

Assistant Directorship for the History function.

Conrad Wirth and the State Parks Division , January 26, 1936.

hatless in the first row.

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55 CHART 12

0"
CHART 13

This chart primarily shows the addition of a museum function

under the Research and Education Assistant Directorate.

One of the first museums in the National Park Service at Mesa Verde National

Park.

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57 CHART 13
CHART 14

What is interesting to note on this chart and several previous

charts is that the hypothetical Field organization continually

appears on the charts yet Mr. Vint and Mr. Coffman were physically

located in Washington, D.C., while the Branch of Engineering was

still in San Francisco, California. Apparently "head" counts as

to employee location were just as important in this period as

they are in 1985.

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CHART 15

This chart primarily reflects the establishment of Regional

Offices —this chart, like several others, is "after the fact

documentation" of what has occurred. Regional Offices were

established in the later part of 1937 but apparently not

formally documented on a chart until August of 1938. With the

establishment of Regional Offices, the Branch of Engineering

moved to Washington and the Chief Engineer, Frank Kittredge,

became the first Regional Director in Region IV, San Francisco,

California. A Safety Division as a functional entity first

appears and the U.S. Travel Bureau shows up as a National Park

Service function. During this period, Arno B. Cammerer stepped

down as Director and became the Regional Director in Richmond.

Newton Drury became the fourth Director of the National Park

Service. Note that there were no Assistant Directors in this

organization.

60
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There is basically no change in the functional organization of

the Service. As drawn, the Office of General Counsel is a "staff" organization with no "line" authority.

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63 CHART 16
CHART 17

A bare bones organizational chart which perhaps reflects the

austerity of the war years when in effect the entire Service was

in a caretaker status. The headquarters office was physically

located in the Merchandise Mart, 222 North Bank Drive, Chicago,

Illinois

.

To Baha'i House of Worship. Chicago Academy of Science, Chicago Historical Society, Elks Nat'l Mem

& Hdqrs Lincoln Park, Northwestern University. Ripley's Believe It or Not Musei. DOWNTOWN

CHICAGO

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65 CHART 17
CHART 18

This chart points out the consolidation of Mr. Vint ' s influence

with the combination of engineering, landscape architecture,

et. al. f into one Branch of Development, the establishment of

Concessions as a functional entity in its own right, and an

Office of Information reporting directly to the Director. The

one anomaly in the record is the Safety Division with Edwin C.

Kenner as Chief. Although Kenner worked briefly in Safety

after his discharge from the military, he was primarily an

architectural engineer involved in maintenance type activities

and would in the mid-1950' s be the first Chief of Maintenance.

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CHART 19

The Travel Division moves out of the Service. The influence of

Mr. Tolson clearly stands out. The administrative functions

and the park related operational functions are under his purview

Note that National Capital Parks reported to the Associate

Director. Mr. Demaray had a personal interest in the National

Capital area which may have prompted this organizational

alignment

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69 CHART 19
CHART 20

A good example of well defined functional responsibilities.

There are two new Assistant Directors, Hillory Tolson and

Conrad Wirth. Concessions was still a separate function but

was titled Public Services Division.

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71
CHART 21

This one Demaray organization reflects the Associate Director's

(Wirth's) thinking. The legal function reported to the Director

rather than to an Assistant Director. The Forestry Division was

still reporting to the "Administrative" Assistant Director.

The Demaray organization of 1951. Seated L to R: Conrad L. Wirth, Associate

Director; Director Demaray; Hillory A. Tolson , Assistant Director. Standing

L to R: Thomas J. Allen, Regional Director, Region I, Richmond, Virginia;

Minor Tillotson, Regional Director, Region III, Santa Fe, New Mexico;

Howard W. Baker, Regional Director, Region II, Quaha , Nebraska; Lawrence C.

Merriam, Regional Director, Region IV, San Francisco, California; Ronald F.

Lee, Assistant Director.

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CHART 22

This was Mr. Wirth's first organization and there was the

development of an Operations Directorate, an Administrative

Directorate, and an Interpretive & Research Directorate. The

placement of the Design and Construction function reporting

directly to the Director is of interest. If one recalls some

of the previous charts one might consider how the Information

function has been up and down in the organization over the

years

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75 CHART 22
CHART 2 3

Forestry as a function disappears and in its place there is a Branch of Conservation and Protection recognizing the uniformed

ranger. It was during this period that organizational approval

changed from the Bureau to the Department. Hawaii National Park

reported directly to the Director for a period of 3 months due to

a problem or problems that required the Director's intervention.

It was in this period that Mr. Vint consolidated his influence

over design, construction and planning with the establishment

of two design offices, one in San Francisco, California, and the

other in Philadelphia, Pennsylvania, effectively removing the

functions from the Regional Offices.

The "Chiefs" in late 1956. Seated L to R: E. Scogen , Associate Director;

Lawrence Merriam, Regional Director , Region IV, San Francisco , California;

Director Wirth; T. Allen, Assistant Director, Operations; Hillorg Tolson,

Assistant Director , Administration ; Tom Vint, Chief, Design & Construction.

Standing L to R: Howard Baker, Regional Director , Region II, Omaha, Nebraska

;

Elbert Cox, Regional Director, Region I, Richmond, Virginia; Hugh Miller,

Regional Director, Region III, Santa Fe, New Mexico; Daniel J. Tobin; Ronald F.

Lee, Assistant Director , Interpretation; Ben Thompson, Chief, Cooperative

Activities; Sanford (Red) Hill, Chief, Western Office of Design & Construction;

Edward Zimmer, Chief, Eastern Office of Design & Construction.

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CHART 23

77
CHART 2 4

With the charting of the Mission 66 program, an Associate

Director position once again appeared. A new Regional Office,

the fifth, was established in Philadelphia, Pennsylvania.

Daniel J. Tobin , first Regional

Director , Region V, Philadelphia,

Pennsylvania. Mr. Tobin is

presenting an award to Howard H.

Chapman, who would become Regional

Director, Western Region in the

1970' s. Al Edmunds, Cooperative

Activities Regional Chief is

standing on Mr. Chapman's right.

78
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79 CHART 24

a.

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CHART 25

A Division of Ranger Activities was established reporting

directly to the Director. Maintenance as a separate function

appeared for the first time. There was, during this period, an

abortive attempt to create a sixth Regional Office in St. Louis,

Missouri

.

A signed staff photograph taken March 19, 1960, including the Regional

Directors and the Chiefs of the Design Offices.

Regional Directors Conference, October 31, 1961, in Shenandoah National

Park. Individual identification is on page 136.

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81 CHART 25
CHART 26

This chart points up the creation of five functional Assistant

Directors, the creation of an International Affairs function,

and a Policy Analysis function. The sixth region became a reality by making National Capital Parks a region.

The staff prior to July 1963, six months before Director Wirth's tenure as Director ended. Individual identification is on page 136.

The staff on January 21, 1964, as George Hartzog began his tenure as Director,

Individual identification is on page 136.

82
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83 CHART 26
CHART 27

The Service's role in the Job Corp Conservation Center program

was charted. Six Assistant Directorate functions were established by shuffling responsibilities. A third Service Center

was created in Washington, D.C., however, the Service Centers

reported directly to the Director. This was the first of

Hartzog's organizations.

Howard Baker and George Hartzog

on the roof of the Interior

Building after the informal

organizational change that made

Mr. Baker an Associate Director.

The picture was taken just prior

to Mr. Baker's retirement.

84
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85 CHART 27
CHART 28

There was a Deputy Director, three Office Chiefs, two Associate

Directors with five Assistant Directors reporting to them, and

one Assistant Director (Administration) reporting to the

Director. The National Capital Service Center was combined with

the Eastern Service Center and there was a dual reporting relationship between the Assistant Directors, Design and Construction

and Cooperative Activities with the two remaining centers.

86
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CHART 29

Note that the two Service Centers were combined into a Denver

Service Center which was located in the Villa Rosa Shopping

Center, Denver, Colorado. There was also a reshuffling of

functions reporting to the Associate Directors as compared

to earlier organizations.

Regional Director Frank F. Kowski

and his secretary, Berta Ulibari.

Mr. Kowski had a long and varied

career with the Service. Much of

his career was spent in training

future employees. He was the first

Supervisor of the Albright Training

Center and was responsible for its

construction and its curriculum.
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CHART 30

An Office of National Capital and Urban Affairs was established

which included National Capital Parks. Offices reporting to the

Director were again reshuf f led--there were two Deputy Directors

and one Associate Director. The first organizational recognition

of urban programs appears. Harpers Ferry Center is established.

The Harpers Ferry Center, Harpers

Ferry, West Virginia . William C.

Everhart was the Chief.

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CHART 30
CHART 31

A different configuration of offices reporting directly to the

Director which also included the budget function. There were

three Deputy Directors. The Pacific Northwest Regional Office

was established. Note the number of functional entities titled

Offices reporting to the Director and the Deputy Directors.

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93 CHART 31
CHART 32

Mr. Hartzog's last organization with one Deputy Director and

and four Associate Directors.

94
95 CHART 32
CHART 33

Mr. Walker's only organization with four Associate Directors and

also showing the creation of additional regional offices.

Director Walker and his staff. Front row L to R : Howard H. Chapman,

Regional Director, Western Region, San Francisco, California; Manus J.

(Jack) Fish, Director, National Capital Parks; Jerry Wagers, Regional

Director, North Atlantic Region, Boston, Massachusetts; Frank F. Kowski

,

Regional Director, Southwest Region, Santa Fe , New Mexico; Joseph C.

Rumhurg, Jr.; David D. Thompson, Jr., Regional Director, Southeast Region,

Atlanta, Georgia; Ernest A. Connally, Associate Director, Professional

Services; Richard C. Curry, Associate Director, Legislation; Back row

L to R: Douglass Blaser , Assistant to the Director; Theodore Sudia , Chief

Scientist; Lynn H. Thompson, Regional Director, Rocky Mountain Region;

John E. Cook, Associate Director, Park System Management; Russell E.

Dickenson, Deputy Director; J. Leonard Norwood, Associate Director,

Administration; Merril D. (Dave) Beal , Regional Director, Midwest Region,

Omaha, Nebraska; Chester L. Brooks, Regional Director, Mid-Atlantic Region,

Philadelphia, Pennsylvania; John Rutter , Regional Director, Pacific

Northwest Region, Seattle, Washington.

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97 CHART 33
CHART 34

Mr. Everhardt's only organization with three Associate Directors

and seven offices reporting directly to the Director. The

Advisory Council on Historic Preservation became an independent

agency in this period.

Merrill D. (Dave) Beall,

Regional Director, Midwest

Region. A long time Naturalist, Deputy Regional Director

and Regional Director. His

last assignment was as Superintendent, Great Smoky

Mountains National Park.

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CHART 34
CHART 35

Mr. Whalen's only organization which continued the large number

of offices reporting to the Director. There are three functional

Associate Directors, one of which was a reconstituted Administrative Directorate. Alaska appears as a Regional Office.

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CHART 36

An organization which reflects the return of the Heritage

Conservation and Recreation Service functions to the National

Park Service and adds two Associate Directors to accommodate

the transfer.

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CHART 36
CHART 37

An organization which reflects two Deputy Directors, the former

Heritage Conservation and Recreation Service functions, and a

split of the Associate Director Administration functions into

into two Assistant Directorships.

Daniel J. (Jim) Tobin , Jr.,

Regional Director , Pacific

Northwest Region . A third

generation National Park

Service employee with a varied career as a Superintendent, Deputy Regional

Director, Associate

Director, Management and

Operations , and Regional

Director.

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CHART 38

This organization currently in effect reflecting one Deputy

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external) under one Associate Director for Cultural Resources.

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CHART 39

This chart is a graphic representation of the naturalist, ranger

and historian functions from their beginnings in 1925 on the

University of California, Berkeley Campus. The intertwining of

these functions over the years can be related to both personalities, needs of the moment, and available people and dollars.

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114
NATURALISTS, RANGERS & HISTORIANS

KAHLER

115
CHART 4

This chart is a graphic representation of the growth of the

function from literally a one person shop to the highly technical,

highly specialized function that administration has become. It

also shows those areas of administration that Directors felt

were personally important to them. The continuity is also

interesting. Hillory Tolson was responsible for the function

more than 25 years from 1933 until he retired, with the exception

of a short period when he was the Regional Director in Santa Fe,

New Mexico.

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SENIOR ADMINISTRATIVE OFFICERS

OF THE NATIONAL PARK SERVICE

1917 TO 1985

POWERS GRIFFITH

SALISBURY

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NORWOOD MONTGOMERY

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DIRECTORS OF THE NATIONAL PARK SERVICE

1917-1985

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132
THE NATIONAL PARK SERVICE'S

NUMBER "TWO" 1917 TO 1985

FLYNN

FREEMAN STRATTON

HARTZOG

BILL

133
SENIOR OPERATIONS OFFICERS

OF THE NATIONAL PARK SERVICE

1951 TO 1985

COOK HUMMEL

FREEMAN

134
EPILOGUE

With this type of publication an epilogue is not called for, nor

is it a literary necessity; however, a concluding remark or two

does seem appropriate. For those of us who have spent most of

our adult lives with the organization it is a living, breathing

way of life in which people play an important part. The ebb and

flow of the organization is and has been directly related to the

Directors and the people in positions of influence. Although

what you have seen on the preceeding 134 pages does bear this

out, it is only a start toward placing people in perspective to

the organization. As the document developed, a number of additional items or points became apparent. A great deal of the

documentation available was "after the fact," leading to a conclusion that Directors tried organizations and if they were

found to work they were formally established. Organizational

recordkeeping over the years has been somewhat lax or disjointed

at best, which would lead one to the conclusion that as an organization we have relied on the "old hands" to be the keepers of the

institutional or organizational memory. Photographs of people

are difficult to come by, and identification of people in group

photographs is almost a lost art. Harpers Ferry Center and its

Springfield, Virginia, office do an outstanding job in finding

pictures. What would help them or any other Service photograph

repository is clear definition of time, place, or person(s)

identification of every item sent to them.

This work should be viewed as a start, not a finished product.

Hopefully, readers can add names, thoughts and photographs that

will add to what is already here. If anyone can add to the

material, I am sure future historians would be pleased.

Russ Olsen

135
PHOTO CAPTIONS (pages 80 & 82)

Regional Directors Conference, October 31, 1961, in Shenandoah National Park.

Standing L to R: H. Baker, Regional Director, Region II; L. Merriam, Regional

Director, Region IV; J. E. Price, Assistant Director; T. J. Allen, Regional

Director, Region III; Sanford Hill, Chief, Western Office of Design & Construction; H. G. Smith, Chief, Branch of Programs; W. G. Carnes , Chief, Mission 66

Staff; Mrs. Belva I. Brandon, Personal Assistant to the Director; W. S. Bahlman

,

Chief, Branch of Property & Records Management; H. A. Tolson, Assistant Director;

Philip F. King, Assistant to the Director; R. F. Lee, Regional Director, Region V;

E. T. Scoyen, Associate Director; E. Cox, Regional Director, Region I; C. L. Wirth,

Director; D. B. Beard, Assistant Director; Lawrence F. Cook, Chief, Division of

Ranger Activities; A. C. Stratton, Assistant Director; William Haussmann , Chief,

National Capital Office of Design & Construction; Robert Hall, Chief, Eastern

Office of Design & Construction; Sutton Jett, Regional Director , Region VI.

Ben Thompson, Assistant Director, was not present when picture was taken.

The staff prior to July 1963, six months before Director Wirth' s tenure as Director ended. Seated at table L to R: E. Cox, Regional Director , Region I,

Howard Stricklin , Chairman , Long Range Requirements Task Force; R. Lee, Regional

Director, Region V; H. A. Tolson, Assistant Director, Administration; A. C.

Stratton, Assistant Director, Design & Construction; Director Wirth; G. B.

Hartzog, Associate Director; T. J. Allen, Regional Director, Region III;

L. C. Merriam, Regional Director, Region IV; Sanford (Red) Hill, Chief,

Western Office of Design S Construction; H. W. Baker, Regional Director,

Region II. Rear standing and seated L to R: W. Bahlman, Chief, Management

Analysis; D. B. Beard, Assistant Director, Public Affairs; B. Thompson,

Assistant Director, Resource Planning; ; R. Coates , Chief, Public

Policy Analysis; R. Hall, Chief, Eastern Office of Design & Construction;

J. E. Price, Assistant Director , Conservation, Interpretation & Use; Harthon L.

(Spud) Bill; Glen Hendrix, Myron Sutton, G. Palmer, B. Everhart, all of the Long

Range Requirements Task Force; T. Sutton Jett, Regional Director, Region VI;

F. Kowski , Supervisor, Albright Training Center; Russell Grater, Supervisor,

Mather Training Center; Robert Sharp, Long Range Requirements Task Force;

C. P. Montgomery, Chief, Budget & Finance; Bob Andrews, National Capital Office

of Design & Construction.

The staff on January 21, 1964, as George Hartzog began his tenure as Director.

Seated L to R: ; A. C. Stratton, Associate Director; Director

Hartzog; T. Allen; L. F. Cook, Chief, Ranger Services. Standing second row

L to R: T. Swem; W. Bahlman, Chief, Management Analysis; Robert Andrews,

National Capital Office of Design & Construction; B. Thompson, Assistant

Director, Resource Planning; Harold G. Smith, Chief, Office of Program

Coordination; Sanford (Red) Hill, Western Office of Design & Construction;

F. Harrison, Chief, Office of Legislation; E. Cox, Regional Director, Region I;

D. B. Beard, Regional Director, Region III; R. F. Lee, Regional Director,

Region V; C. P. Montgomery, Assistant Director, Administration. Standing rear

L to R: J. E. Price, Assistant Director, Conservation, Interpretation & Use;

Lemuel A. (Lon) Garrison; T. Sutton Jett, Regional Director, Region VI;

E. A. Hummel, Regional Director, Region IV; R. F. Lovegren; Johannes E. N.

Jensen, Assistant Director, Design & Construction; R. G. Hall, Chief, Eastern

Office of Design & Construction; H. W. Baker, Regional Director, Region II.

136
3 1604 004 718 823

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