PIPE SPRING Cultures at a Crossroads: An Administrative History

Monument Administration (continued)

Planning the Water System and Kaibab Paiute Cultural Building/Visitor Center

Gilbert knew the time had come when a joint area-management agreement needed to be established with the Kaibab Paiute Tribe. Two meetings were held in April 1971 to discuss the new water system and tribal development program. The first is believed to have been held the week of April 11; no description of this meeting has been located, however. The second meeting was held on April 26, 1971. Participants at this meeting included Bill Tom, Karl Gilbert, Bernard Tracy, several Bureau of Indian Affairs (BIA) representatives, an undisclosed number of Indians from other tribes, and Ed Huizingh and others representing the Economic Development Association (EDA), and U.S. Department of Commerce. [2120] The group narrowed down the Tribe's projected plans to a campground, visitor center, and a small commercial complex consisting of a camp store, sales outlet for arts and crafts, and possibly a service station. It was agreed that plans for a motel would be delayed until proof of need was established. The EDA contingent was pleased with the overall plan but said that EDA assistance could be based only on a projected job establishment program after construction of the complex was complete. They suggested a maximum grant of not more than $300,000. Gilbert proposed a water agreement that was well received at the meeting, he later reported. The EDA representatives indicated such an agreement would relieve the Indians of much responsibility and investment.

Although the meeting went well, Gilbert was still apprehensive. In reporting on the meeting to Kowski, he wrote, "I am still convinced that we should not drag our feet in working with this group of Indians. The over-all development plan is most important at this time; we must be able to talk in specifics rather than in generalities. We all are spinning our wheels until such time as we can pinpoint what is to be." [2121] His intuition was right on target. The Park Service's new well was completed on May 16, 1971. On June 28, 1971, Park Service officials learned from Merle Jake that the Tribe had scheduled three projects for fiscal year 1972: 1) a public campground and trailer park; a public museum (to be located just outside the monument's east boundary gate); and 3) three new residences. All would require water. Jake informed the Park Service that if it were unable to develop a joint water supply in time to meet the Tribe's needs, the Tribe would be required to develop their own water system from the new well. This threatened to eliminate the chance of a Park Service agreement with the Tribe at a later date. The Tribe, in effect, was planning to "go it alone" with its developments at this point, despite its earlier interest in Park Service participation in the process. Immediately, on June 28, 1971, monument and Zion officials submitted a construction proposal for the new water system to the regional office.

The Kaibab Paiute Tribe's plans to develop its own museum and water system may have resulted from what Gilbert later referred to as a temporary "breakdown in communications." Communications were restored in a meeting held on July 14, 1971, in the Tribe's office and headquarters. The meeting was attended by Landscape Architect Volney J. Westley (Southwest Region), Karl Gilbert, Bernard Tracy, Bill Tom, Merle Jake, Ferrell Secakuku (Indian Development District of Arizona), and representatives of an architectural firm retained by the Tribe to conduct a feasibility study and to prepare development plans, working drawings, estimates, and specifications for tribal developments. [2122] It was learned in the meeting that tribal officials misunderstood the water agreement drafted by Gilbert and thought the agreement limited their use of water from the new well to an amount equal to one-third share of Pipe Spring water (approximately 22,000 gallons per day), when in fact it allowed for them to use more water at cost of production. The misunderstanding was corrected.

The purpose of the July 14 meeting was to develop a realistic understanding about cooperative uses and construction of proposed facilities. Regional Director Kowski later reported on the meeting to Phoenix EDA representative Paul Luke, informing him that the Park Service and the Tribe recognized the importance of close cooperation in development planning. The Park Service proposed that a formal agreement be executed whereby it would construct and maintain a water system that would meet the needs of both agencies, with the Tribe permitted to derive its one-third interest in Pipe Spring from the new well at no charge. Additional water could be purchased by the Tribe at cost of production. In return, the Tribe would allow the Park Service to use its one-third share of spring water to maintain the historical landscape of the monument. A second agreement was to be executed for a proposed "visitor center complex" which, at that time, the Tribe proposed building with the Park Service leasing a portion of it for offices and a visitor center.

On July 30, 1971, Tribal Chairman Bill Tom sent a revised version of Gilbert's draft water agreement back to Gilbert for review and comment. It had not yet been discussed or approved of in Tribal Council, he informed Gilbert. [2123] Gilbert had a number of strong objections to the revised version, which he noted in his cover letter transmitting the draft agreement to Regional Director Kowski on August 9. [2124]

Another meeting was held on August 24, 1971, just one day after a heavy rainstorm and serious flooding at the monument (see "Floods" section). This purported "get-acquainted" meeting turned out to yield useful information and some decisions. Director Ben Riefel, Office of Indian Programs, accompanied Gilbert. Also attending were Bill Tom, Construction Superintendent McIntosh, and BIA Lands Operations Officer Al Purchase, Hopi Agency. Gilbert learned at this meeting that the revised version of the water agreement sent to him by Tom on July 30 had actually been written by Al Purchase. The proposed joint-use visitor center was also discussed. Before the Park Service ever began its cooperative efforts with the Tribe, the BIA had prepared plans for its own visitor center across the road from the tribal office building. Gilbert later wrote Kowski, "These plans continually raise their ugly head and will come alive if we don't assert continuing interest in plan input based on our projected requirements." [2125] As a result of this meeting, however, the Tribe reversed its plans to seek planning assistance from a commercial firm and asked for National Park Service assistance. The Tribe's most immediate project was construction of three residences, then scheduled to begin September 1, 1971. This created an urgent need to settle the water question.

In the midst of critical negotiations with the Kaibab Paiute Tribe, an administrative change took place in the Park Service. General Superintendent Gilbert was scheduled to leave the Southern Utah Group on September 18, 1971, to become superintendent of Curecanti National Recreation Area. In anticipation of his transfer, Gilbert advised Kowski in late August to assign a Kaibab Paiute liaison from the Southwest Regional Office. "Superintendent Tracy is a good man on the ground floor," he wrote, "but major dealings involving decisions and agreements should be handled at a higher level." [2126] Acting General Superintendent Bill R. Alford succeeded Gilbert as head of the Southern Utah Group on September 19, 1971.

By October 1971, the Tribe decided it wanted the Park Service to design the new joint-use building and to take part in choosing its site. Another meeting was held on October 19 for the purpose of considering on site a design concept for the visitor center developed by the Western Service Center's Office of Environmental Protection and Design. Deputy Regional Director Theodore R. Thompson, Volney Westley, and Bill Fields (all Southwest Region), Acting Superintendent Jim Schaack (SOUG), Tribal Chairman Bill Tom, and Superintendent Bernard Tracy attended the meeting, along with other monument staff. The group consensus was that the location proposed by the WSC office was undesirable and there were other suggestions for changes. Alternatives were suggested and subsequently sent to the WSC by Thompson who asked if the WSC could provide the architectural plans for the building. [2127]

In addition to the siting of the proposed visitor center, the group discussed the desirability of relocating existing Park Service housing outside the monument. A flood of August 23, 1971, had once again alerted the Park Service to the hazards of having residences located in a natural drainage channel (see "Floods" section). Flood protection would be extremely expensive, requiring a sophisticated drainage channel and riprap. Since the Park Service was already involved in the preparation of the Tribe's new subdivision plan northeast of tribal headquarters, why not move monument housing to that area and negotiate a lease agreement? This proposal in fact was included in the draft 1972 master plan for Pipe Spring National Monument and had been approved by Southwest Region officials. When the monument's administration was transferred to Midwest Region on November 15, 1971, however, the idea was quashed; officials there did not support the concept. A report by a Regional Engineer Donald M. McLane also convinced officials at Midwest Region it was unnecessary to remove the housing area. [2128] (The idea of relocating the residences would be revived again in the late 1970s.)

During December 1971, Tracy met informally with Tribal Chairman Bill Tom to discuss the joint visitor center complex. The Tribe was anxious to start construction on March 1, 1972. On January 20, 1972, a meeting between the Park Service and the Tribal Council was held to study preliminary plans for the new Kaibab Paiute Cultural Building/Visitor Center (hereafter referred to as the visitor center). [2129] Bill Tom presided over the meeting. Representing the Park Service was Bernard Tracy, Jim Schaack, and Regional Architect A. Norman Harp. Also attending were representatives of the BIA and the Indian Development District of Arizona (IDDA). Harp presented a preliminary sketch to the Tribal Council for its consideration. The plan included a snack bar, public restrooms, arts and crafts area, as well as office and exhibit space for the Park Service. The Council voted unanimously to accept the plan. It was agreed at this meeting that the Southwest Region's Professional Support Division (rather than the Western Service Center) would prepare working drawings for the building, parking area, landscaping, and drainage. Harp promised the working drawings would be completed by February 20, 1972, less than one month away. The Council asked that the Southwest Regional Office also design its campground. Harp agreed to send preliminary plans for the campground by February 1. At this meeting the Tribal Council voted to raise the budget for the new building from $85,000 to $125,000. Tom stated the Tribe would construct the building with day labor, with subcontracts for electrical, plumbing, and mechanical work. The BIA agreed to provide supervision for the project. Norm Harp later recalled that the building design was never presented to the local Moccasin or Fredonia communities for review or comment. [2130]

Ferrell Secakuku applied to the Economic Development Administration for a portion of the funds required to construct the visitor center and tribal campground. [2131] Harp provided Secakuku with cost estimates for the visitor center and the campground in late January 1972. The grand total was $212,750: $157,750 for the visitor center, and $55,000 for the campground. [2132] Park Service space in the building had yet to be negotiated through the Government Services Administration (GSA). [2133] In July 1972, a formal request for space was sent to GSA for the Park Service to lease space in the planned building.

Construction of the new visitor center began during the summer of 1972. [2134] Local materials were used in much of the building's construction. Harp recalled years later that his design called for local stone, not only because it was readily available, but also because it would make the new building "look sort of like the old fort." [2135] The ventilators on its roof also were similar to those on the fort. Phil Huck (from the BIA's Indian Technical Assistance Center) supervised day-to-day construction activities. [2136] Bill Fields conducted a monthly inspection, representing the Park Service through its Indian Assistance Program. Fields later recalled that the Kaibab Paiute were hired mostly as laborers on the project. Not many Indians were hired for the project because they didn't have the construction skills needed, he reported. [2137] Dean Heaton (son of Leonard Heaton) was hired with EDA funds as construction foreman. Heaton set up a hiring office in Colorado City, which turned out to be the primary source of skilled workers used to build the visitor center. Of course, Regional Architect Norm Harp was also very involved in the project and made routine inspection visits to the construction site. Harp recalled that one of the men in Southwest Region's Division of Professional Services involved in producing the working drawings for the visitor center was Engineering Technician Edward ("Ed") Natay. [2138] Architectural services were provided by the Park Service without charge to the Tribe, as were the services of Bill Fields. According to Harp, the whole construction operation went very smoothly.

Harp and Fields visited the area on July 18-20, 1972. Harp made a progress inspection of the building, still under construction. Fields later reported,

The building is in excellent shape. They are almost to the windows with the rock work and were putting shakes on the roof while we were there. The workmanship is superior and I might add that in my personal opinion, because of the combination of design and workmanship, this building will be the most sound and one of the most beautiful to be utilized by the Park Service. [2139]

In a personal interview conducted in 1997, Fields recalled the urgency of the project, and why the Park Service didn't go through the normal channel of having the Western Office of Design and Construction in San Francisco design and produce architectural plans for the building:

The system did not lend itself to getting something done in a hurry. And I'm not saying it's right or wrong. You know, if they want to dilly dally about what a building looks like and get input and they're not in a hurry to have it. But we had $170,000 or whatever in the bank and ready for Bill Tom and Phil Huck and whoever else to write checks on, and we needed a building! You're not going to go through the review process [under those conditions]. And I think we did pretty good.... I said, 'Norm, this is what we want.' There's not a better architect in the Park Service than Norm Harp....That guy can do anything from an outhouse to a multistory building or penthouse. And he has the artistic ability.... He went out there, took some pictures, came in and started drawing that thing, and it couldn't be better. [2140]

But there were still hurdles ahead. By mid-August 1972, the visitor center was nearing completion. No word had been received from GSA regarding the Park Service's request to lease space in the building. Upon inquiry, the Park Service was told it would take another six to eight weeks for the GSA to contact the Tribe and make arrangements for a lease. Tracy was uneasy at the delay, for a possible change on the political horizon threatened the Park Service's existing amicable relationship with the Tribe. On August 18, Tracy wrote Regional Director J. Leonard Volz,

I have just been alerted to a possible change in the local Paiute Tribal Council. Their election is to be held this fall and the aspirant to the Chairmanship is an activist with definite anti-white leanings. Should he be elected we could be in a completely new ball game as far as our relations with the Tribe are concerned. I suggest an agreement for the rental of the Visitor Center be negotiated at the earliest possible date. [2141]

Tribal elections were scheduled for October. The Park Service asked GSA officials to expedite the leasing process. On September 7, 1972, a meeting was held with GSA Building Manager Richard C. Hathaway, Superintendent Tracy, and Zion's new Superintendent Robert C. ("Bob") Heyder. Hathaway informed Heyder and Tracy, who wanted a long lease, that any lease in excess of five years required an Act of Congress. As it turned out, Bill Tom was re-elected tribal chairman. A lease with the Tribe was not executed until March 29, 1973, when Tom signed a five-year lease on 1,831 usable square feet of office space for $12,636 per year. [2142] The lease included an option to renew for five additional years at a rate to be negotiated. In addition to giving monument staff greater control over visitor use, the new facility allowed them to provide an orientation to visitors prior to their entry to the site. It also provided much-needed office and storage space, improving the monument's overall operations.

124. Program to dedicate new Kaibab Paiute Tribal Cultural Building/Visitor Center, May 26, 1973.
Speaker is Regional Director J. Leonard Volz, Midwest Regional Office
(Pipe Spring National Monument).

125. View of visitor center and crowd gathered
for its dedication, May 26, 1973
(Pipe Spring National Monument).

126. Visitor center ribbon-cutting ceremony, May 26, 1973.
Officials, from left to right: Regional Director J. Leonard Volz, Tribal Chairman Bill Tom, Superintendent Bob Heyder
(Photograph by William M. Herr, courtesy Zion National Park, neg. 4457).

127. Kaibab Paiute dancers at visitor center dedication, May 26, 1973
(Photograph by A. Norman Harp, Pipe Spring National Monument).

128. Superintendent Bernard Tracy stands behind new visitor center, May 26, 1973
(Photograph by William M. Herr, courtesy Zion National Park, neg. 4433).

The new visitor center was dedicated on May 26, 1973. A grand celebration was held for the completion of the building and the Park Service's near-completion of the new water system. The 50th anniversary of the monument's establishment was also celebrated. [2143] Regional Director Volz was Master of Ceremonies that day, with over 400 people attending the event. Ceremonies began with Moccasin's Boy Scout Explorer Troop 2368 presenting the colors, followed by the Fredonia High School Band playing the national anthem. The invocation was given by Elder A. Theodore Tuttle, First Council of the Seventy (LDS Church) after which Tracy formally welcomed guests. Remarks were made by Arizona Governor Jack Williams, Utah's Executive Director Gordon E. Harmston (Department of Natural Resources), and former Custodian Leonard Heaton. Tribal member Dan Bulletts offered a benediction in Paiute. Although not listed on the program, a group of Kaibab Paiute came in costume to the dedication and danced, encouraging visitors to join in. Both tribal members and local white residents provided food for the event. The official photographer on the day of the building's dedication was William M. ("Bill") Herr, then working for Zion National Park. [2144] Herr would be named superintendent of Pipe Spring National Monument in 1979.

Other groups that helped with the planning and/or execution of the dedication program included the Kaibab Ward Relief Society Ladies and the Zion Natural History Association, along with Park Service staff from the Midwest Regional Office and Zion National Park. The printed program stated that Pipe Spring was not only a monument to "the intrepid Mormon pioneers," but was "symbolic of the union of many cultures and their need to maintain harmonious relationships with the world about them." [2145] Soon, other park units who had relations with Indians were seeking to learn how Pipe Spring had accomplished its joint projects with the Tribe, with the monument providing an impressive model for others to follow. [2146] The new building was indeed a remarkable achievement, but cooperation between the Park Service and the Tribe would by no means end with the building's dedication.