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Mountaineers and Rangers United States Department of Agriculture Mountaineers Forest Service and Washington, D.C. FS-380 Rangers A History of Federal Forest Management in the Southern Appalachians 1900-81 Shelley Smith Mastran and Nan Lowerre Manager and Researcher, and Researcher Maximus, Inc., McLean, Va. April 1983 Foreword In 1978 the former Head of the Forest Service's History The source of each print is given in the description beneath Section, David A. Clary, conceived the idea of doing a history each photograph, where it appears in the text. The designation of the impact of Federal natural resource management on the "NA:95G" means it is an official Forest Service photograph, peoples of the Southern Appalachians. The contract was and the negative is held in the National Archives collection; awarded July 25 that year under competitive bidding to the number following is the number of that photo. The Maximus, Inc., in McLean, Va. designation "Forest Service photo" means the negative with We believe this study to be an important addition to the the number following is still retained by the Forest Service in literature on the Forest Service and the Southern Washington, DC. Appalachians. It is only the second scholarly publication to Sources of data for this study, including tables, are fully take a regional approach to Forest Service history, and it is the provided in the reference notes following each chapter and in first to explicitly examine how Forest Service programs have the 11 lists in the Bibliography. The authors wish to thank affected local populations. We hope that it will stimulate other personnel of the National Archives, Washington, DC;' the individuals, both in and outside the Forest Service, to write Washington National Records Center, Suitland, Md.; the similarly significant histories. Lands and the Recreation Staffs of the Forest Service in Photographs and maps, mostly from official Forest Service Washington, DC, and Atlanta, Ga.; the various National sources, have been included to illustrate points covered in the Forests in the Appalachians; the Southeast Regional Office text. Readers may order those from the National Archives and the Supervisor of Great Smoky Mountains National Park, collection by number from the Still Pictures Branch, National Park Service; and the Appalachian Regional Audiovisual Archives Division, National Archives, General Commission, as well as the many other persons interviewed Services Administration (GSA), Washington, DC 20408. Ask personally and by telephone, for their cooperation and special for GSA From 6797 with the latest valid price list; prices assistance which added greatly to the completeness of this change each year on October 1. An advance payment made report. out to the Cashier, National Archives, GSA, must accompany each order. Requests for prints of photographs still held by the Dennis M. Roth, Head Forest Service, other photos, and for map photos should be History Section sent to the History Section, Forest Service, U.S. Department of Forest Service Agriculture, P.O. Box 2417, Washington, DC 20013; notification of the appropriate charge will be made, and the advance payment made out to Forest Service, USDA, must then be sent to us. ii Contents Page A Summary v Introduction xi Chapter I. Conservation Movement Comes to the Southern Mountains .1 Chapter II. National Forests Organized in Southern Appalachians 23 Chapter III. The Depression and the New Deal 43 Chapter IV. The Civilian Conservation Corps 71 Chapter V. Great Smoky Mountains National Park and the Blue Ridge Parkway 83 Chapter VI. World War II Through the Fifties: From FDR to JFK 95 Chapter VII. Federal Development of the Southern Appalachians, 1960-81 123 Chapter VIII. Recreational Development of the Southern Appalachians, 1960-81 150 Bibliography 180 List of Tables Page Table 1. —Number and Percentage of Farms by Size in Four Typical Southern Appalachian Counties, 1900 xiii Table 2. —The 11 Original National Forest Purchase Units in the Southern Appalachians 23 Table 3. — Civilian Conservation Corps: Numbers of Residents and Nonresidents Enrolled in Camps in Each of Five Southern Appalachian States; Residents of These States Enrolled in Other Regions, 1934, 1937, 1941 74 Table 4. —Twelve Southern Appalachian Counties Selected for Comparison and Detailed Analysis: Percentage of Land in National Forests 102 Table 5. — Population Changes in 12 Selected Southern Appalachian Counties. 1940-60 102 Table 6. —Number of Farms and Total Farm Acreage in 12 Selected Southern Appalachian Counties, 1940-59 103 Table 7. — Changes in Number of Manufacturing Establishments and Employees in 12 Selected Southern Appalachian Counties. 1939-58 104 Table 8. —Number of Retail Establishments in 12 Selected Southern Appalachian Counties, 1939-58 104 Table 9. — Four Poverty Indicators in the Appalachian Mountain Sections of Five Southern States, circa 1960 124 Table 10. — Five Poverty Indicators in 12 Selected Southern Appalachian Counties, circa 1960 125 Table 11. — Allocations of Funds to National Forests in the Southern Appalachians under the Accelerated Public Works Program, 1962-64 126 Table 12. — Civilian Conservation Centers in National Forests of the Southern Appalachians, 1980 and 1982 127 Table 13. — Southern Appalachian Counties Receiving Most Appalachian Regional Commission Funds, 1966-80 133 Table 14. — Total and Per Capita Funds Allotted by Appalachian Regional Commission to 12 Selected Southern Appalachian Counties. 1980 133 Table 15. — Changes in Four Poverty Indicators for Appalachian Mountain Sections of Five Southern States, 1960-76 134 Table 16. — Changes in Four Poverty Indicators for 12 Selected Southern Appalachian Counties. 1960-74 135 Table 17. — Changes in Net Migration for 12 Selected Southern Appalachian Counties, 1960-70 and 1970-75 135 Table 18. —Total Lands Acquired With Land and Water Conservation Act Funds in National Forests of the Southern Appalachians, 1966-80 140 Table 19. —Payments Made From the 25 Percent and In-Lieu Funds of Five of the 12 Selected Southern Appalachian Counties, 1975-80 146 Table 20. — Protection Status of the Appalachian National Scenic Trail in the Southern Appalachians, October 1981 158 Table 21. — Eating and Drinking Places in 12 Selected Southern Appalachian Counties: Number and Percentage of Total Retail Sales, 1972 Data Compared to Data for 1954 and 1967 .... 162 Table 22. —New Areas Designated in Southern Appalachians by the Eastern Wilderness Act of 1975 . 167 A Summary Tracing the history of the impact of Federal land acquisition Chief of the Forest Service, had fathered America's first and land management on the peoples of the Southern experiment in practical, conservative forestry at Biltmore, near Appalachians has not been a simple or direct exercise. The Asheville, N.C., was an instrumental advocate of Federal land task was difficult, largely because the people most affected acquisition in the Southern mountains. The movement for a have been almost silent. Reflecting the inexpressiveness of their National Park in the Southern Appalachian Great Smoky culture, they have rarely written their reactions. 1 Indeed, as Mountains, which had developed during the 1890's and grew Ronald Eller affirms, "no satisfactory history of the [Southern into a broad movement for forest reserves in the East, provided Appalachian] region has ever been written." 2 Perhaps the best further momentum for the establishment of National Forests in work on the Southern mountaineer, John C. Campbell's 1921 the region. The Weeks Act implied that Federal ownership was classic The Southern Highlander and His Homeland is not by the best — perhaps the only—way to restore the cutover and a native; he was educated in the Northeast and came from burned Southern Appalachian slopes and to preserve the Indiana to observe and educate the mountaineer. In spite of its mountain region for future generations to enjoy and use. thoroughness and sensitivity, the book conveys an outsider's By the time Federal land agents arrived in the Southern perspective. Similarly, the foregoing narrative of Federal land Appalachians, the region had already been discovered by activity is told mainly through the remarks and writings of the outside investors, timber and coal barons, missionaries, local- Federal agents who came to the Southern Appalachians to color writers, and scientists, and had been defined as being purchase and manage the land, or by other outside analysts unique and distinct from the rest of the United States. and observers, plus supporting data. The reactions of the Exploitation of its natural resources, especially coal and mountaineer to massive Federal landowership and changing timber, was well along. In 1900, the area was characterized by land uses have necessarily been largely inferred. an economy of self-sufficient small farms settled in the Federal land acquisition in the Southern Appalachians mountain river bottoms and hollows, isolated from each other began shortly after the Weeks Act, authorizing the purchase of by steep, parallel ridges. The culture of the region appeared forest land by the Federal Government from other owners for strange to outsiders: sometimes quaint, sometimes frightening. the establishment of National Forests, was passed by Congress It was strongly Scotch-Irish in ethnic background, and in March 1911. The Weeks Act represented an extension of reminiscent of pioneer America. The absence of large towns, Federal land management policies. In the western United the lack of formal schooling, the homogeneous population, the States, nearly all National Forests had been reserved from the widespread distillation of corn liquor, the fierce independence, public domain, the lands held by the Federal Government for and the apparent lawlessness that prevailed were a few disposal under the land laws. In the East, however, there was indicators of the region's "otherness." 5 Furthermore, the little remaining public domain by the time of the 1891 act. All mountaineer seemed oblivious to the riches amidst which he but a few have been created by Federal purchase of lands that had settled: coal and timber, both in high demand by the had been held for generations in private ownership.
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