Bryce Canyon Historic Resource Study

REGIONAL ROAD DEVELOPMENT (1923-25)

In 1922 two principal highways traversed the scenic region of southwestern Utah—both on a rough north-south axis. The "Arrowhead Trail," or Salt Lake City-Los Angeles Highway, entered from the north at Parowan, intersected Cedar City, and St. George via Anderson's Ranch. The distance from Parowan to St. George then was approximately 75 miles. An earlier but less important highway originated at Marysvale, and snaked southward some 70 miles to Hatch via Junction and Panguitch. Ten miles south of Hatch the road forked. Its more heavily traveled eastern branch ran approximately 50 miles through Alton and on to Kanab. The western branch intersected Glendale, Orderville, and Mt. Carmel then continued on to Kanab.

Bryce Canyon was practically equidistant from Marysvale and Cedar City. However, the road eastward from Cedar City to the Marysvale-Kanab highway junction had not yet been completed. In January 1922 a critical 8 mile gap existed just east of Cedar Breaks. There was an alternate 85-mile route between Cedar City and Bryce Canyon. It led from Cedar City north to Parowan, then ran northeast to junction with the Marysvale- Kanab highway at Orton Ranch, between Junction and Panguitch. This road was in reasonably good shape, but was impractical for the purpose of tying Bryce Canyon into a tourist loop with Zion and Cedar Breaks. At the time, Zion and Bryce were essentially inaccessible to one another. The only road which connected the Arrowhead Trail to the Marysvale-Kanab highway led from Laverkin, southeast of Anderson's Ranch to Fredonia, Arizona, 7 miles south of Kanab. This 63 mile stretch was regarded as the worst road in the entire region.

The Union Pacific knew that in order to make practical a tourist loop between Cedar City, Zion, Bryce, Cedar Breaks, and eventually the North Kin it would have to approach the improvement of the regional road system in a systematic way. Omaha had made clear its intention to refrain from direct investment in roads, [161] so the railroad could only work behind the scenes to galvanize the State of Utah, National Park Service, and Forest Service into action.

In October 1923, Union Pacific's first priority was to immediately get behind the State's proposed improvements for: (1) the Arrowhead Trail between Cedar City and Anderson's Ranch, and (2) the road eastward, between Anderson's and the south entrance to Zion via Rockville. [162] A first-rate road from Cedar City to Zion was in Omaha's estimation, essential for the establishment of a tourist circuit. The railroad had secured Salt Lake's backing to construct a road eastward from Rockville to Mt. Carmel, Once Mt. Carmel was linked to Rockville and Zion, the next logical step required an improved road from Mt. Carmel north, to junction with the eastbound Cedar City road at Divide. Later, attention to the road south from Mt. Carmel to Kanab would prevent the tortuous 50-mile stretch south from Hatch to Kanab. With an eye to the future development of the North Rim, the Union Pacific also intended to push for the construction of a road south from Rockville to Short Creek, near the Arizona State line.

Early in 1923, the State Road Commission had less than $200,000 at it; disposal. Even these funds were set aside as a revolving deposit to meet emergency situations. The 1921 State bond issues of $1,000,000 promised to be of some assistance. However, most of this money had already been spent. [163] Where, then, was support to cone from for an accelerated road program?

The basis for a solution rested with the provisions of the 1921 Federal Highway Act. It stipulated that the Federal Government would subsidize highway construction in individual States to the extent of 7 percent of the total mileage in each State. In 1923 total road mileage within Utah was approximately 24,000. Thus, some 1,600 miles of road could be made eligible for the "7 Percent Plan." According to the provisions of the Highway Act, Utah would receive 74 percent of all construction costs for the 1,600 miles designated. The State was required to foot the 26 percent balance, and pay for all engineering costs prior to actual construction. All plans, specifications and estimates were subject to the approval of the U. S. Bureau of Public Roads. To conform to federal specifications, roads had to be at least 18 feet wide, with a 3 foot shoulder on each side. The road had to be surfaced with gravel or a suitable paving material, such as cement. No grade could exceed a maximum of 6 percent. Bridges, culverts, and the like had to conform to a similar set of specifications. [164]

In October 1923 authorities of Utah's Road Commission applied to the Federal Government for approval of the following roads to be included in the 7 Percent Plan:

From Cedar City south to Anderson's Ranch, thence to Rockville and Zion National Park and eastward to Mt. Carmel, thence south to Kanab and on to the Arizona state line; also the new highway from Rockville south, crossing the new bridge to be built this winter [i.e. 1923] over the Virgin River, a distance of approximately 25 miles, to the Arizona state line. [165]

Dr. L. I. Hewes, Regional Director of the Office of Public Roads in San Francisco, approved this application, and the necessary papers were forwarded to Washington, D. C. [166] In January 1924, the Union Pacific learned the toads applied for had been approved by the Secretary of Agriculture and would be included in the Federal Aid System. Their estimated cost, based on Federal standards, was approximately $1,000,000. Neither Federal nor State funds were then available, so construction would proceed as the necessary appropriations were released. In March 1924, a $220,000 appropriation, voted by the Governor's Committee to the State Road Commission, reinforced the Union Pacific's optimism. This money was specifically earmarked for the Cedar City-Zion road, and Randall Jones thought it would complete the toad south from Cedar City as far as Laverkin. [167]

By April 1924 the road from Cedar City to Kanarra, a distance of 12.2 miles, had been contracted and work was in progress. No construction funds were available for the 4.5 miles from Kanarra to the Iron-Washington County line, but this stretch was regarded in good enough condition to stand up to all-weather driving. The 11 miles from the Iron-Washington County line to the foot of Black Ridge was financed and bids would soon be advertised. From this point for the next 7 miles to Anderson's Ranch the road was complete. The 7-1/2 miles from Anderson's to Laverkin were financed and bids would be advertised as soon as plans and specifications had been prepared. No money was available for the 24 mile stretch from Laverkin to Zion's southern boundary. [168] A Union Pacific survey conducted in January 1922 rated the road from Springdale to Wylie Camp in Zion as "60 percent." [169] There is no indication that in April 1924 either of the proposed roads running east and south from Rockville had as yet been started. Obviously, much needed to be done in Zion's vicinity.

In April 1924 the road from Cedar City to Bryce via Cedar Breaks was classified as a Forest Highway, with the exception of an 18 mile stretch from the Kane-Garfield County line north to Panguitch. [170] Forest Highways were not constructed nearly as well as 7 percent roads. Their main deficiency was an inability to stand up to heavy traffic, especially during inclement weather. By June 1924 approximately 20 miles of road from Cedar City to Midway—within 4 miles of Cedar Breaks—was in good shape by Forest Service standards. [171] Only 4 miles of road east of Cedar Breaks had not yet been completed. Even so, this section was under contract to a reputable firm, and its completion during June 1924 seemed assured. Forest Highway improvements from Divide north for 5 miles to the Kane-Garfield line began late in May 1924. Additional funds were shortly expected for Forest Highway improvements from Divide, 20 miles south to Glendale. No funds were available to improve a fair road from the Kane-Garfield line to Bryce Canyon Junction. Most of the 18 miles between Bryce Junction and Bryce Canyon were in excellent shape; however, a 6 mile stretch east of Red Canyon needed resurfacing. [172]

Financing the Cedar City-Cedar Breaks road for a distance of 23 miles proved a complex affair. It was estimated that $35,000 to $40,000 would be needed to widen the existing trail, surface it with a suitable material, and provide proper drainage. [173] Neither Federal nor State funds were available for this purpose, and the Union Pacific had, as a matter of principle, made clear its aversion to directly invest in roads. Fortunately for Omaha, the Forest Service was interested enough to subscribe 20,000. [174] At about the same time—September 1923—State Senator Lunt agreed to raise a bond issue of $5,000 in Cedar City. [175] However, only in February 1924, when the Commissioners of Iron County voted an appropriation of $10,000, was the project really made possible. [176]

By the spring of 1925 Omaha likely evaluated regional road development as uneven but promising. On the negative side, roads in and around Zion were only fair. The State project to extend a road from Rockville east to the Marysvale-Kanab highway had been flatly abandoned. Progress on the road from Rockville south to Short Creek was tangible, but roads in northwestern Arizona were only poor to fair. The Cedar City-Bryce Canyon connection via Cedar Breaks had received plenty of attention, but Union Pacific officials had no idea how well this critical road would stand up to heavy traffic.

Against these deficiencies long-term prospects appeared good. In November 1924 George FT. Dern became Governor of Utah, but was only one of a few candidates representing his party to be elected. This situation implied that Dern would make no significant changes in the State Road Commission Governor Mabey had put together. In his 1925 inaugural address, Dern defined his position on roads, emphasizing that the exploitation of Utah's scenic attractions depended upon the steady improvements of approach roads leading to them. Dern not only wanted to continue Mabey's expansionist road program, but stressed the need to institute a systematic State road maintenance plan. During the 1925 session, Utah's legislature responded to Dern's position on roads by increasing the State's gasoline tax from 2-1/2 cents to 3-1/2 cents per gallon. This measure almost immediately generated funds to reimburse citizens in Iron and Washington Counties who had advanced money to improve local roads. [177] Increased State aid, coupled with the steady flow of Federal funds into the 7 Percent Plan, foretold well for southwestern Utah's road system. The possibility of someday including the North Rim in Union Pacific's tourist circuit also received a boost in the fall of 1923, when the Governor of Arizona promised Utah Senator Lunt and Randall Jones that he would work strenuously to include the road south of Short Creek to Fredonia in Arizona's 7 Percent Plan. [178]

Zion-Mt. Carmel Road (1927-30)

The fascinating story of Zion-Mt. Carmel Road properly belongs in a general history of Zion National Park. It is, however, well worth noting its singular importance to the development of Bryce Canyon. The extension of a road from Rockville east to the Marysvale-Kanab highway was never pursued by the State with enthusiasm. In 1927 a more attractive and challenging proposal envisioned the construction of a tunnel through the 10,000 foot range which bisects Zion on a north-south axis. A road from the tunnel's eastern end to Mt. Carmel could then be built to connect the two main north-south highways in southwestern Utah.

On July 4, 1930, after 3 years of arduous work brilliantly channeled by engineering excellence, the Zion-Mt. Cannel tunnel was dedicated. Its 5,600 feet had been blasted through solid rock, using engineering techniques never before attempted. [179] Inclusive of the tunnel, approximately 8-1/2 miles of road within the park were linked to a 16-1/2 mile section, running from the park's eastern boundary to Mt. Carmel. Road costs within Zion amounted to $1,440,000 with $503,000 spent to construct the tunnel alone. All of this money was taken from National Park Service appropriations. The 16-1/2 mile section from Zion to Mt. Cannel cost $456,000 of which the Federal Government paid $358,000 and the State paid the rest. [180]

Completion of the Zion-14t. Carmel Road reduced the distance between Zion and Bryce from 149 to 88 miles. Traveling time from Zion to the North Rim was dramatically shaved by a third. For the first time, Zion, Bryce, Cedar Breaks, and the North Rim were effectively tied together. The Union Pacific obviously stood to gain from this situation, but had it not been for the perseverance of its agents, there would have been little chance for an accelerated road program during the 1920s. Construction of the Zion-Mt. Camel Road had one other significant result: the very creation of Bryce Canyon National Park in September 1928. (See section under NATIONAL PARK STATUS.)