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CHALLENGES at LAKE WINFIELD SCOTT RECREATION AREA By PRIVATE MANAGEMENT OF CULTURAL LANDSCAPES: CHALLENGES AT LAKE WINFIELD SCOTT RECREATION AREA by MARY C. SCALES ENGLISH (Under the Direction of Eric A. MacDonald) ABSTRACT Lake Winfield Scott Recreation Area was constructed by the Civilian Conservation Corps between 1935 and 1942. This thesis evaluates the developmental history, the importance of constructed features as they relate to the natural environment, and highlights the role of private management at this federally-owned recreation site. Analysis considers the potential costs and benefits of the private-public management model, known as a concession or special-use agreement, to determine the efficacy of such management when preserving and conserving cultural landscapes. Ultimately, the goal of this thesis is to provide a substantive analysis of cultural landscape management of sites like Lake Winfield Scott. Through the private-public concessionaire model of management, this cultural landscape has persisted for nearly 80 years. As the political climate surrounding public lands continues to shift, perhaps alterations to the management structure of public lands is in order. INDEX WORDS: Civilian Conservation Corps, New Deal, cultural landscape, privatization, Forest Service, recreation, concession-based management, historic preservation, conservation PRIVATE MANAGEMENT OF CULTURAL LANDSCAPES: CHALLENGES AT LAKE WINFIELD SCOTT RECREATION AREA by MARY C. SCALES ENGLISH BA, University of Georgia, 2015 A Thesis Submitted to the Graduate Faculty of The University of Georgia in Partial Fulfillment of the Requirements for the Degree MASTER OF HISTORIC PRESERVATION ATHENS, GEORGIA 2017 © 2017 Mary C. Scales English All Rights Reserved PRIVATE MANAGEMENT OF CULTURAL LANDSCAPES: CHALLENGES AT LAKE WINFIELD SCOTT RECREATION AREA by MARY C. SCALES ENGLISH Major Professor: Eric A. MacDonald Committee: Cari L. Goetcheus Rebecca E. Bruce-Vaughters Robert J. Speakman Electronic Version Approved: Suzanne Barbour Dean of the Graduate School The University of Georgia May 2017 DEDICATION To my family and friends, who are also family, words cannot express how appreciative I am that you have been on this journey. Whether we chatted about theory and social ramifications of the Great Depression, you all have influenced my thoughts and development throughout this process. There are two people who have supported me with unrelenting love and support. First, to the woman who taught me what it is to be a steward of the land, to appreciate nature, and to be a good human. Lucie, you have no idea how much you have taught me, but I’m glad to be teaching you something here and there these days. Second, and certainly not least, my dearest partner in crime. Kris, throughout this process, even if you didn’t have a clue as to what I was ranting about, you listened attentively and pushed me toward the finish line. Your support, despite my lack of showering most days during this process, cannot be discounted and will not be forgotten. I love you, and cannot wait for our next adventure. iv ACKNOWLEDGEMENTS A labor of love and surprises, this thesis is not complete without both. Funding for this project was made in part by the College of Environment and Design’s William Manning Knox Scholarship, as well as the Willson Center for the Humanities and Arts research grant. I am grateful to the Archivists located in Morrow, Georgia and College Park Maryland at the Georgia State Archives and the National Archives and Records Administration for their guidance and assistance in locating extensive documentation. To those who read earlier versions of chapters or presentations, I am forever indebted to you for your thoughtful responses and aiding in the development of this project. Shout-out to Donna Gabriel for somehow being the queen of wrangling cats in our program. Without you keeping us in line, we would surely flounder in deadlines. Seriously, as someone who struggles to maintain an organized schedule, your persistent emails and reminders are a life-saver. You are awesome! Lastly, to my committee members, Eric, Cari, Becky, and Jeff, your wisdom and guidance throughout this process has been invaluable. Thank you for seeing what I couldn’t recognize, and for a perspective that pushed this project further. Additional thanks to Eric for all your comments, the meetings, and extensive conversations that were necessary to develop this thesis. Looking back, it seems like you may have seen where I was going with a thought or concept before I even knew it was emerging. I’m thankful for the process, even when it felt rushed and incredibly tedious. You four have no idea how grateful I am for the opportunity to work with each of you, and for the influence you have on my work. v TABLE OF CONTENTS Page ACKNOWLEDGEMENTS .............................................................................................................v LIST OF TABLES ........................................................................................................................viii LIST OF FIGURES ........................................................................................................................ix CHAPTER 1 INTRODUCTION .........................................................................................................1 Historical Context ....................................................................................................1 Research Questions ..................................................................................................8 Methods and Sources ...............................................................................................9 Review of Secondary Literature ..............................................................................9 Synopsis .................................................................................................................13 2 LITERATURE REVIEW ............................................................................................21 Section One – Cultural Landscapes and the Literature that Supports Them .........22 Section Two – New Deal Recreational Landscapes in the National Forest ..........28 Section Three – Management of Cultural Landscapes in the National Forest ......36 3 NARRATIVE HISTORY ............................................................................................44 Developmental Periods ..........................................................................................48 4 CURRENT CONDITIONS .........................................................................................69 Environmental Context and Setting .......................................................................70 Cultural Context and Setting ..................................................................................71 vi Landscape Characteristics ......................................................................................70 5 ANALYSIS ..................................................................................................................96 Statement of Significance ......................................................................................97 Criteria Determination ...........................................................................................99 Landscape Characteristics and Integrity Assessment ..........................................103 6 MANAGEMENT EVALUATION ............................................................................110 Management Strategies ........................................................................................111 Regulatory Effects on Cultural Landscape Management ....................................113 Management Effectiveness ..................................................................................116 Conclusion ...........................................................................................................120 7 CONCLUSIONS AND RECOMMENDATIONS ....................................................121 Recommendations ................................................................................................121 BIBLIOGRAPHY ........................................................................................................................123 APPENDICES A Interview Questions ...................................................................................................129 vii LIST OF TABLES Page Table 5.1: Landscape characteristics to be evaluated for historic integrity .................................105 viii LIST OF FIGURES Page Figure 1.1: Location Map ................................................................................................................5 Figure 1.2: Stone retention wall showing terracing .........................................................................6 Figure 3.1: Privately Owned Period Plan ......................................................................................48 Figure 3.2: USFS Pre-development Period Plan............................................................................49 Figure 3.3: CCC/USFS Period Plan ...............................................................................................51 Figure 3.4: Original main parking lot (circa 1950) ........................................................................53 Figure 3.5: Original fee structure at main parking lot ...................................................................54 Figure 3.6: West elevation of CCC-era bathhouse ........................................................................55
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