[Secretary of the Interior 1952 Annual Report for the Fiscal Year Ended June 30]
[From the U.S. Government Publishing Office, www.gpo.gov]
353.3
ANNUAL
I.
Secretary of the Intenor
OSCAR L. CHAPMAN
1952
ANNUAL
REPORT
OF THE
Secretary
of the Interior
FISCAL YEAR ENDED JUNE 30
UNITED STATES DEPARTMENT OF THE INTERIOR
Oscar L. Chapman, Secretary
cm, “S SLI As
UNITED STATES GOVERNMENT PRINTING OFFICE, WASHINGTON, D. C.
For sale by the Superintendent of Documents, U. S. Government Printing Office, Washington 25, D. C. - Price $1.25
THE SECRETARY OF THE INTERIOR WASHINGTON
My Dear Mr. President :
I am transmitting herewith the reports of the agencies of the Department of the Interior for the 1952 fiscal year.
These reports constitute the record of accomplishment of a Department which is responsible for the conservation and full development of a great part of the natural wealth of the people of the United States, and which has a very important part to play in the neverending struggle to make our democracy broader, stronger and more enduring.
These accomplishments cover a number of very broad fields. They range all the way from the Reclamation programs which harness our rivers, create low cost electric power and bring' arid land under the plow, to the work by which our territories and island possessions are brought closer, to full membership in the great community of self-governing Americans. They include the research and experimental work which will enable industry to make better use of some of our great natural assets, and they also include the steps taken to protect our heritage of range land and timber, of metals and fuels, of fish and of wildlife. They tel] of the progress made in providing recreational facilities and cultural values for all the people through our National Park system. They also describe the painstaking work that is being done to bring our Indian population up from poverty and despair to self-reliant citizenship.
These reports tell a great story, and they speak for themselves. I believe every American can take pride in this record and can draw from it a new admiration for the vigorous democracy which continues to carry on with these unfinished tasks.
Sincerely yours,
The President The "White House W ashington, D. G.
Secretary of the Interior.
■
■
■
■
■
CONTENTS
Page
LETTER OF TRANSMITTAL................................... Ill
BUREAU OF RECLAMATION..................................... 1
DIVISION OF WATER AND POWER............................ 139
BONNEVILLE POWER ADMINISTRATION......................... 143
SOUTHWESTERN POWER ADMINISTRATION....................... 173
SOUTHEASTERN POWER ADMINISTRATION....................... 179
DIVISION OF MINERALS AND FUELS.......................... 183
BUREAU OF MINES......................................... 187
GEOLOGICAL SURVEY....................................... 219
OIL AND GAS DIVISION.................................... 259
DIVISION OF LAND UTILIZATION............................ 263
BUREAU OF LAND MANAGEMENT............................... 269
FISH AND WILDLIFE SERVICE............................... 311
NATIONAL PARK SERVICE................................... 351
BUREAU OF INDIAN AFFAIRS................................ 389
OFFICE OF THE SOLICITOR................................. 425
OFFICE OF TERRITORIES................................... 433
DIVISION OF GEOGRAPHY................................... 455
DIVISION OF INTERNATIONAL ACTIVITIES.................... 457
OFFICE OF THE ADMINISTRATIVE ASSISTANT SECRETARY ... 463
PETROLEUM ADMINISTRATION FOR DEFENSE.................... 475
DEFENSE SOLID FUELS ADMINISTRATION..................... 481
DEFENSE ELECTRIC POWER ADMINISTRATION ........ 485
DEFENSE FISHERIES ADMINISTRATION....................... 489
DEFENSE MINERALS EXPLORATION ADMINISTRATION............ 491
INDEX................................................... 495
BUREAU OF RECLAMATION
Michael W. Straus, Commissioner
DESIGN AND CONSTRUCTION
On June 17, 1952, the Bureau of Reclamation celebrated its Golden Jubilee—:50 years of engineering accomplishment in the conservation, development, and utilization of the precious water and land resources of the West. A notable contribution to this half-century of progress was made in the fiscal year 1952 construction record.
An investment of about 212 million dollars was translated into useful works on Reclamation projects during the year. Although material shortages, staffing restrictions, and other limiting factors imposed difficulties in the design and construction workload, more than 640 construction, material, equipment, and supply contracts were awarded for the fiscal year period. The contracts represented an aggregate of more than 123 million dollars. Contracts for construction comprised 112 million dollars of this amount, or about 91 percent. For the year the Bureau had a 271-million-dollar construction program under way. Construction contracts in force at the end of the year totaled about 274 million dollars.
Reclamation construction during the year not only gave impetus to formal inauguration of water service to hundreds of thousands of acres of irrigable land, but it also made notable additions to the country’s power supply. A block of 241,700 kilowatts of hydroelectric energy was added to the Bureau’s generating capacity. Extension of the power system embracing hundreds of miles of new electrical transmission lines proceeded at an increasingly high rate.' .
The year was highlighted by the placing in service of three outstanding irrigation pumping plants, each the heart of a project greater than any in the Bureau’s history—Columbia Basin in Washington, Central Valley in California, and Colorado-Big Thompson in Colorado. The Bureau also initiated major construction on the Eklutna project in Alaska, its first undertaking outside the traditional 17-western-State sphere of Reclamation activities. Palisades Dam in Idaho-Wyoming, the largest earth-fill dam to be undertaken in Recla
1
2 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
mation history, was placed under construction late in the year. On the Columbia Basin project, first major delivery of water to project lands was begun, and completion of installation of remaining generating units at Grand Coulee power plant brought this world’s largest hydroelectric power plant to its full name-plate capacity. Hungry Horse Dam construction continued its rapid pace, and the goal of one million acre-feet of storage was reached by the end of the fiscal year. Missouri River Basin project progress was notably identified with completion of Cedar Bluff, Shadehill, and Boysen Dams and Angostura power plant.
The Bureau’s participation in the great expansion of foreign assistance activities extended Reclamation’s influence to world-wide scope. As part of this cooperation, engineer specialists were sent to numerous countries of both hemispheres to investigate development possibilities and to advise on projects.
The Design and Construction Division’s administrative management practices received continued scrutiny, and its productive efforts in the direction of improved management was given departmental recognition.
Contract Awards
Major contracts awarded during the year are summarized in table 1. Among the features placed under contract for construction were Palisades Dam and power plant on the Palisades project in Idaho-Wyoming, and Eklutna tunnel on the Eklutna project in Alaska, Nimbus Dam and power plant and Folsom power plant on the Central Valley project in California, Alcova power plant on the Kendrick project in Wyoming, Jamestown Dam on the Missouri River Basin project in North Dakota, and 10 miles of the St. Vrain supply canal on the Colorado-Big Thompson project in Colorado.
TABLE 1.—Major Bureau of Reclamation contracts awarded in fiscal year 1952
Feature Project Amount of award
Palisades Dam and power plant and relocation of roads Eklutna tunnel Nimbus Dam and power plant Folsom power plant Completion of Davis Dam spillway stilling basin and excavation for Colorado River channel improvement. Alcova power plant 10 miles St. Vrain supply canal Jamestown Dam 50 miles pipelines for Pt. 2 of unit 9, Coachella Valley distribution system, All-American canal system. 59 miles laterals, and pipelines for Area P-1, Potholes East canal. 15 miles concrete pipelines for Carpinteria section of South Coast conduit. 13 miles of Courtland canal 90 miles laterals for Area W-5, West canal Excavation for power and outlet tunnels, Palisades Dam Palisades Eklutna Central Valley do Davis Dam Kendrick Colorado-Big Thompson Missouri River Basin Boulder Canyon Columbia Basin Cachuma Missouri River Basin Columbia Basin Palisades! $29,180,346 17, 348, 865 6, 067, 354 5, 772, 960 2, 731, 882 2, 324, 224 2, 268, 292 1, 868, 862 1, 598, 798 1, 598,362 1, 471, 950 1, 420, 238 1, 297, 351 1, 242, 700
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 3
Principal Features Completed
Principal features completed on Bureau projects are shown in table 2. These include 4 dams, 2 power plants, 4 pumping plants, 211 miles of main canals and wasteways, and 856.14 miles of transmission lines.
TABLE 2— Principal features completed on Bureau of Reclamation projects in fiscal year 1952
Feature
Project
State
Grand Coulee power plant—Generators2R-7, R-8, and R-9.
70 miles main canals and waste ways________
Tracy pumping plant________________________
18 miles Delta-Mendota canal_______________
19 miles wasteways for Delta-Mendota canal._ 165 miles transmission lines_______________
12 miles South Coast conduit (Goleta Section).. Boulder power plant—Generators A-4 and A-9. Gila pumping plants Nos. 1, 2, and 3_______
62 miles main canals (Mohawk and Wellton)... Part 1 of unit 9, Coachella Valley distribution
system.
Platoro Dam________________________________
133 miles transmission lines---------------
10 miles main canal________________________
Shadehill Dam______________________________
Angostura power plant----------------------
Boysen Dam and power plant building--------
300 miles transmission lines, Transmission
Division.
Columbia Basin_____________
____do______________________
Central Valley__________...
____do_____ ____do_____ ____do______________________
Cachuma____________________
Boulder Canyon_____________
Gila_______________________
____do__________i—..........
All-American canal system__
San Luis Valley_________...
Rio Grande_________________
Riverton___________________
Missouri River Basin_______
____do______________________ ____do______________________
Missouri River Basin_______
Cedar Bluff Dam-----------------------------
18 miles Superior canal_____________________
14 miles Courtland canal____________________
9 miles of tunnels (Rattlesnake, Carter Lake, Olympus, and Pole Hill).
180 miles transmission lines________________
28 miles transmission lines-----------------
____do______________________
____do______________________
____do______________________
Colorado-Big Thompson______
____do______________________
Kendrick___________________
Washington.
Do.
California.
Do.
Do.
Do.
Do.
Arizona-N evada.
Arizona.
Do.
California-Arizona.
Colorado.
New Mexico.
Wyoming.
South Dakota.
Do.
Wyoming.
North Dakota, Wyoming, Colorado, Nebraska.
Kansas.
Nebraska-Kansas.
Do.
Colorado.
Do.
Wyoming.
Progress of Construction
The 1952 fiscal year was outstanding because of the advancement of construction on several multiple-purpose undertakings to the status of project-wide completion of major structures and initiation of integrated development for irrigation, power production, and other functions.
On the Central Valley project, the Tracy pumping plant, Delta-Mendota canal, and Delta-Cross channel were completed, and first integrated operation of the project was begun, climaxing many years of intensive construction activity. Four of the six giant pumps of the Grand Coulee pumping plant on the Columbia Basin project were installed and pumping of water for eventual delivery to 66,000 acres of irrigable land was started during the 1952 irrigation season. The last three generating units were installed in the Grand Coulee power plant, bringing the plant’s nameplate capacity to its total 1,974,000 kilowatts.
Completion of the Missouri River Basin project’s Cedar Bluff, Shadehill and Boysen Dams, and Angostura power plant, virtual com
4 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
pletion of Boysen power plant, and 300 miles of transmission lines for far-flung areas were significant advances on the huge basin-wide development.
With the installation of Generators A-4 and A-9 in the Hoover power plant on the Boulder Canyon project, the plant’s capacity was brought to 1,167,300 kilowatts, second largest hydroelectric power installation on Reclamation projects.
Elsewhere on Reclamation projects, Platoro Dam on the San Luis Valley project was completed this year. Several parts of the Gila project, including sections of the Mohawk and Wellton canals and the Wellton-Mohawk pumping plants were completed, thus bringing new areas into productive operation in time for the 1952 irrigation season.
Cachuma Dam on the Cachuma project in California was brought to within 30 feet of the crest elevation during the year and the outlet works was completed. Good progress was maintained on the Colorado-Big Thompson project: Four important tunnels—Rattlesnake, Carter Lake, Olympus, and Pole Hill tunnels—were completed.
Construction of Hungry Horse Dam and power plant continued to set a fast pace throughout the year. The record for concrete placement was established in July, comprising a daily average of 7,600 cubic yards, and a total placement of 235,650 cubic yards for the month. At the end of the year a total of 2,706,000 cubic yards had been placed in the dam; only 250,000 cubic yards remained to be placed for the remaining 50 feet of the 564-foot-high structure. Construction of the power plant proceeded rapidly, and installation of the first unit was started in March.
Although somewhat behind schedule, construction progress on Canyon Ferry Dam and power plant was generally satisfactory during the year. By June 30 more than 268,000 cubic yards of concrete had been placed in the dam, or about 71 percent of its total volume.
On other projects, construction advanced on features under contract, indicating that such important works as Carter Lake, Rattlesnake, Willow Creek Dams and Pole Hill power plant on the Colorado-Big Thompson project, Trauger pumping plant on the Central Valley project, Cachuma Dam on the Cachuma project, Big Sandy Dam on the Eden project, and Keyhole Dam and Boysen power plant on the Missouri River Basin project, would be completed in fiscal year 1953.
Despite the severity of Alaskan climatic conditions, intensified by rugged mountainous topography, and other difficulties, construction advanced rapidly during the year on the Bureau’s Eklutna project, a transmountain diversion development which is to provide defense and industrial electric power for the Anchorage and Palmer areas.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 5
Since October 1951 when major construction activities began on the project, the gate shaft for the intake of the Eklutna tunnel was sunk to its full depth, excavation proceeded steadily in the tunnel and lower penstock portal, and'work was continued on the adit portal high on the mountain near the downstream end of the tunnel.
Construction of the 4%-mile-long, 9-foot-inside-diameter pressure tunnel and companion facilities was carried out during the year under a contract awarded September 1951. It is the first major contract ever awarded by the Bureau for construction on a Reclamation undertaking outside the mainland of the United States. Other work on the project included construction of the 25-mile-long Eklutna-Anchorage transmission line and alterations of the existing Eklutna Dam.
Development of the Eklutna project marks the initial step in a comprehensive program for conservation and multiple-purpose use of the water resources of Alaska to meet the needs of economic advancement and national defense as authorized by the Congress in 1949. The project is to make available an estimated annual output of 143 million kilowatt-hours of firm and 16 million kilowatt-hours of secondary electrical energy to meet the critical shortage of power in the Anchorage and Palmer areas, as well as to provide other water resource conservation benefits.
Continuing Program
Major features on Bureau of Reclamation projects expected to be completed in fiscal year 1953 (as shown in table 3) include 4 dams, 2 power plants, 8 pumping plants, 133 miles of main canals, 327 miles of transmission lines, and pipe lines and laterals to serve 166,000 acres of land.
TABLE 3—Major features on Bureau of Reclamation projects expected to be completed in fiscal year 1953
Feature
Project
State
Carter Lake Dam______________________________________
Rattlesnake Dam______________________________________
Willow Creek Dam_____________________________________
Pole Hill power plant________________________________
Willow Creek pumping plant___________________________
14 miles Horsetooth feeder canal_____________________
12.7 miles North Poudre supply canal_________________
3.7 miles Willow Creek canal_________________________
1.3 Bald Mountain tunnel_____________________________
67 miles canals_______________________________________
Laterals to serve 89.000 acres_______________________
Ringold pumping plant________________________________
Babcock pumping plant. ______________________________
Lower and Upper Saddle Gap pumping plants____________
Lower and Upper Relift Scooteney pumping plants.
Trauger pumping plant____:___________ _______________
200 miles of pipeline laterals to serve 77,000 acres_
Keyhole Dam . . _____________________________________
Boysen power plant___________________________________
31 miles canals__ _____________________._____________
327 miles transmission lines_________________________
4.9 miles Franklin South Side pump canal______________
Franklin South Side pumping plant____________________
Cachuma Dam__________________________________________
Colorado-Big Thompson_____
_do__________ _do__________ _do__________l__ _do__________ ____do_______ ____do_______ ____do_______:_____________
-. .do___________________
Columbia Basin____________
____do________ ____do________ ____do________ .do___________,____________
____do_____________________
Central Valley____________
do_____________________
Missouri River Basin_______
____do__________ ____do__________ ____do__________ __________ ____do__________ ____do__________ Cachuma_________
Colorado.
Do.
Do.
Do.
Do.
. Do.
Do.
Do.
Do.
Washington.
Do.
Do.
Do.
Do.
Do.
California.
Do.
Wyoming.
Do.
South Dakota.
Do.
Nebraska.
.. Do.
California.
6 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 3.—Major features on Bureau of Reclamation projects expected to be completed in fiscal year 1953—Continued.
Feature Project State
Glen Anne and Lauro regulating reservoirs 1 mile Sheffield tunnel Big Sandy Dam 6 miles Means canal 6 miles Duchesne tunnel 31 miles Provo reservoir canal Relocation 15.6 miles of State highway Eklutna Dam...' 32 miles Eklutna-Anchorage transmission line Part 2 of unit 9, Coachella Valley distribution system. 42 miles Colorado River levee construction 21 miles channelization of the Rio Grande Cachuma do Eden do Provo River 2._, do Boise.... Eklutna do All-American canal system Colorado River front work and levee system. Californi a. Do. Wyoming. Do. Utah. Do. Idaho. Alaska. Do. California. Nevada-California-Arizona. New Mexico.
Among the principal structures expected to be placed under construction on Reclamation projects (table 4) during the next fiscal year are 10 dams and 13 detention dams, 1 power plant, 2 pumping plants, 295 miles of transmission lines for a three-State area, 200 miles of main canals, and laterals to serve more than 250,000 acres of land.
TABLE 4.—Major features expected to be placed under construction on Bureau of Reclamation projects in fiscal year 1953
Missouri River Basin project:
Tiber Dam, Montana.
Pactola Dam, South Dakota.
Webster Dam, Kansas.
Kirwin Dam, Kansas.
Missouri diversion dam, Montana.
Bartley diversion dam, Nebraska.
9 Courtland Canal detention dams, Kansas.
Little Porcupine power plant, Montana.
Crow Creek pumping plant, Montana.
295 miles transmission lines, Wyoming, South Dakota, North Dakota.
54 miles Franklin Canal, Nebraska.
20 miles Bartley Canal, Nebraska.
19 miles Upper Meeker Canal, Nebraska.
8 miles Naponee Canal, Nebraska.
6 miles Toston Canal, Montana.
4 miles Lombard Canal, Montana:
16 miles Bartley laterals, Nebraska.
Laterals to serve 14,000 acres, Nebraska.
Laterals to serve 6,000 acres, North Dakota.
8 miles drainage system, Montana. Columbia Basin project, Washington :
40 miles of canals.
Warden pumping plant.
Laterals to serve 82,000 acres.
Central Valley project, California :
Sly Park Dam.
Camp Creek diversion dam and Camp Creek tunnel.
Laterals to serve 114,000 acres.
Cachuma project, California:
Ortega regulating reservoir.
Carpinteria regulating reservoir.
Laterals to serve 17,000 acres.
Eden project, Wyoming:
Prospect diversion dam.
20 miles Eden Canal enlargement.
30 miles Eden laterals.
Solano project, California: Monticello Dam.
San Diego project, California :
61 miles second barrel, San Diego Aqueduct.
Vermejo project, New Mexico :
Detention dams Nos. 2, 7, 8, 13.
Colorado-Big Thompson project, Colorado :
16.5 miles Boulder Creek supply canal.
Weber Basin project, Utah :
12 miles Gateway canal.
Provo River project, Utah:
35 miles Provo River channel revision.
Gila project, Arizona:
Laterals to serve 14,500 acres.
Grants Pass project, Oregon:
Rehabilitation of Savage Rapids Dam.
All-American Canal System, California: Laterals to serve 4,600 acres.
Colorado River Front Work and Levee System project, California, Nevada, Arizona:
29 miles of levee and floodway channel construction.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 7
Design Activities and Developments
The pressure of field demands for construction details was augmented by requests for preliminary designs and estimates for project plans, various special investigations, and rehabilitation designs. Following Congressional appropriation for dams on the Palisades, Missouri River Basin, and the Vermejo projects, intensive studies and designs were undertaken for earliest possible initiation of construction.
By increased efficiency of operations, improved coordination with field forces, and by selection of new types of construction materials and adoption of new techniques, the design workload was facilitated and close adherence to the expedited program schedules was made possible. Major economy in certain designs was a concomitant achievement.
Numerous design developments characterized the Division’s work for the year. Outdoor and semi-outdoor plant construction was investigated for several power and pumping plants. For the Ringold pumping plant on the Columbia Basin project in Washington, an outdoor type of plant, individual removable steel housings were selected for protection of the indoor-type of motors, a design advancement which will be reflected in economy of construction.
Rising labor costs made it necessary to change from' reinforced concrete to other types of plant buildings. Designs for the Palisades power plant in Idaho incorporated steel frame and brick curtain walls; for the Little Porcupine power plant in Montana, a steel frame and composite siding were selected. These design changes will result in major economies in construction and will expedite building schedules.
Other design effort contributed to construction economy and conservation of critical materials. Stainless steel and monel metal were conserved by adoption of rubber water stops for articulated concrete structures. To conserve steel, structural designs called for “high bond” steel reinforcement bars in concrete buildings; the surface ribs on the bars reduce the length of anchorage embedment and permit shorter splices—significant improvements which will result in large reduction of steel requirements for Reclamation work. Important economies were also effected in the development and adoption of a caisson type of footing for electrical transmission towers in place of the more costly pile type of footing.
Continued progress was made in the Bureau's lower cost canal lining program. The practicability of applying underwater asphaltic seals to canals while they are in operation was under intensive study during the year. A critical inspection made of various canal linings on Northern projects indicated the importance of maintaining certain standards of constructon and maintenance if the lining installations are to remain serviceable. Review of performance of heavy compacted
8 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
earth, linings led to the conclusion that it is a promising type of lining to reduce seepage, provided proper materials are incorporated in its construction.
To simplify operations and to strengthen design, location, and construction procedures, a thorough review of plans for the canals and distribution system on the Columbia Basin project was undertaken by the Division. Improved procedures adopted involved relaxation, under certain conditions, of the conservative standards of canal location, simplification of surveying and mapping methods, and reduction of other refinements.
An interesting design innovation was the development of a heating system in the Alcova power plant building in Wyoming which will utilize the hot water from adjacent springs. Also at Alcova, the use of lightweight, precast concrete roof slabs and laminated, prefabricated metal and fiberglass wall panels resulted in savings in material costs and expedited the building’s construction.
Designers’ operating instructions, which are prepared and issued to assure proper and efficient operation of installed equipment and machinery in Bureau projects, continued useful since their inception 2 years ago. During the past year 30 such criteria were issued embracing those for operation of canal systems, storage and diversion dams, power and pumping plants, substations, and electrical transmission and radio communication systems.
Looking ahead to western electrical transmission needs for the next 2 decades or more, the staff undertook the investigation of technical problems involved in development of a super-grid to transmit electrical energy throughout the 17 western States; voltages proposed would be higher than any yet used in the United States. Engineering and economic studies indicated that it may be practicable to establish generating plants in the coal fields of the Rocky Mountain States and transmit more than 20 million kilowatts of electric power to load centers up to 600 miles away; cost of such transmission may be competitive with methods of transporting coal to load-area steam plants.
Specification Requirements
In general, the national rearmament program and material shortages did not have an adverse effect on bidding interest and competition for Bureau construction work. However, the strongest interest and greatest competition were apparent in work involving heavy construction and earthwork which required a minimum of critical materials. Sufficient bids were received for most of the specifications advertised, and the majority of bids were within acceptable limits of the engineers’ estimates. Foreign manufacturers showed increasing interest
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 9
in Bureau work and submitted bids on Reclamation equipment, especially electrical machinery.
To alleviate bidder’s concern regarding availability of materials under the controlled materials plan, a specifications procedure was initiated to list controlled material allotments that have been requested or that have been approved and reserved for a particular job. All specifications provided that for work delayed by operations of the controlled materials plan the time for performance would be extended to compensate for such delays.
During the year the standard specifications for construction of canal systems were revised and a second edition was issued. The new edition was improved by incorporation of practical suggestions submitted by construction engineers, contractors, and material suppliers.
To expedite processing of contracts for minor construction work, an informal contract form was initiated for advertising and award purposes. The new specifications were written to cover only the direct requirements of the particular work, thus encouraging small local contractors to bid on Reclamation work. Specifications for precast concrete pipe systems were also revised to eliminate the majority of detail requirements and to provide for acceptance of guaranteed work on a performance basis.
Administrative Developments
Paralleling the reduction in appropriations, several organizational changes were effected during the year resulting in simplification of the over-all organization of the Division, better utilization of available personnel, and reduction in costs of supervision. Among these changes, the major operating segments of the organization were reduced in number, a staff office level was established, and several units were shifted from one section to another to achieve a more consistent grouping of functions.
Continued attention was directed throughout the year toward developing greater flexibility and versatility of the staff. Improvement in staff performance was noted as a result of the rotation plan initiated several years ago permitting junior engineers to work in various offices throughout the organization. Areas of interchangeability as reflected in competitive levels established for professional and subprofessional personnel were under administrative review. As a result of the broadening effect on staff development activities and change in administrative viewpoint brought about by experience, establishment of broader levels of competition was assured.
Another development directed toward lowering of administrative costs was the initiation of procedures to simplify preparation of tech
10 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
nical field reports. Several reports were eliminated, others were consolidated, and the frequency of reporting was changed to minimize the month-end-report burden of field offices.
In furtherance of their administrative potential manifested during their rotation assignments in the Division, two young engineers participated in the third management training program of the Department of the Interior. Assignments to administrative work in various bureaus and offices were supplemented by formal university training.
The reciprocal detail of field engineers to the Denver offices for training in specialized fields during the winter season was conducted with marked success. Engineers from the field were trained in contract administration, specifications writing, grouting, and other special types of work. The value of the training course conducted by the engineering laboratories in concrete control and betterment of concreting operations was exemplified by better and more uniform concrete throughout Bureau projects.
To keep the staff abreast of changes in the national economy and the impact of the current defense effort on resources development, a representative group of supervisory engineers from the Design and Construction Division participated in a 2-week economic mobilization course held in Denver under the direction of the civilian committee of the Industrial College of the Armed Forces. Principles and problems of mobilization and methods and procedures for making the best use of our natural resources in any emergency were discussed.
In keeping its staff informed of current problems in the operation and maintenance of Bureau project structures, the Division, through its liaison representative, conferred with officials on 19 projects and in 15 field offices during the year. Information thus obtained was made available to the designing engineers through the media of written and verbal reports, photographs, and moving pictures. The procedures of transferring completed works from construction to operation and maintenance status were coordinated by the Division, 30 such transfers having been effected for the year.
A major activity of the 1952 fiscal year was the collection and organization of data on safety features and practices in use on the Bureau’s operating irrigation systems. These data, together with information assembled by the Division, were compiled during the year in a report on safety in the operation of canals and other waterway structures. This report will be made available during the next fiscal year to all Bureau offices and to others to acquaint design and construction engineers, operation and maintenance personnel, and officials of water-user-operated projects of the latest advances in safety practices for such structures.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 11
Drainage Activities
To maintain the productivity of Reclamation projects and to safeguard the investment in such undertakings as well as the holdings of the water users, increased emphasis was given during the year to the protection of agricultural lands from seepage and high ground water and also to their protection from flood runoff. The appointment of regional, district, and project drainage engineers, and the Division’s participation in formulating the basic policies on drainage in relation to land classification, were indicative of the year’s emphasis placed on drainage in Bureau developments.
Extensive consultations were held by the Division’s specialists in drainage and ground water in connection with drainage problems and land classification as related to drainability of projects soils. On the Oahe unit of the Missouri River Basin project in South Dakota, particularly, the problem of drainability of glacial till soils is without precedent, and comprehensive investigations and analyses were initiated to determine the drainability of the unit.
Research Activities
During the year the Denver Engineering Laboratories assisted design engineers and field forces in the solution of a widely diversified assemblage of complex problems associated with development of Reclamation structures and their operation and maintenance. In addition to this technical assistance, many worthwhile contributions were made toward improvement of field testing equipment and techniques.
Notable progress was made in soil test work. Studies in the visual soil classification system advanced and a more definitive approach to methods of describing physical and structural properties of soil-rock mixtures was developed. Much work was done in testing and identification and classification of expansive clays which caused heaving and dislocation of structures.
With the assistance of specialists in radioisotope techniques, an apparatus was designed and built and work was initiated on a test procedure for determining soil moisture and density in place by the scattering of neutrons and by gamma radiation. This technique appeared to offer sizeable savings in time and cost of testing as compared with conventional methods. Further research was conducted on electrical methods of reclamation and stabilization of soils.
As a result of a comprehensive research program on a special field test section at Bonny Reservoir in Colorado, soil cement and asphaltic concrete were found to offer possibilities as economical substitutes for rock materials (riprap) on earth dams. These substitute materials may have great usefulness in construction of many earth dams, particu-
226398—53---2
12 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
larly in the Great Plains States where rock materials are unobtainable locally and must be shipped from distant sources.
Study of loess soils was prosecuted intensively. Considerable data were compiled on load-carrying capacity of loessial soils as a result of the concerted soil driving and testing program, completed this year. Proper procedures for driving piles in loessial soils were also developed as part of the program.
Hydraulic laboratory studies continued under the demands of design and construction problems. Tests conducted on a full-scale weir box turnout pointed favorably toward the development of a low-cost water measuring device for open-ditch types of irrigation systems. Model studies led to the design of an afterbay stilling basin which satisfactorily withstood the turbulent high velocity flows discharged from by-pass energy absorbers. This design has already been applied to several power plants. Progress was also made in the development of simplified stilling basins for small culverts.
Through hydraulic model studies, modification of preliminary designs resulted in improved flow conditions and in reductions in construction costs. A special result of such studies was determination that the maximum discharge through the proposed Yellowtail spillway tunnel will require only a 41-foot-diameter tunnel in place of the contemplated 45-foot-cliameter tunnel; major savings in construction may be ascribed to this laboratory work. Model studies of the Nimbus Dam led to reduction of the spillway apron, thereby substantially decreasing concrete requirements.
In other fields of hydraulic laboratory research, much progress was made in resolution of sedimentation problems, particularly in the Missouri River Basin.
Hydraulic research advanced the salt-velocity method of measuring discharge of water through large conduits, and the method is now used in many pump-performance tests. The salt-velocity method offers considerable savings in time and expense, and during the year it was used for discharge measurements in pump-performance tests for the large Granby and Tracy pumping plants.
Studies of structural behavior of mass and reinforced concrete were fully maintained during the year. A comprehensive program for rock-core tests was conducted to supply designers with more complete information on foundation rock conditions. To further knowledge of reinforced concrete design theory for Reclamation construction, a large reinforced concrete beam, 25 feet long and weighing 6 tons, was cast and subjected to exhaustive tests. Completed tests of 10-year-old concrete cores taken from the Shasta Dam test block showed that the concrete has had a consistent gain in strength, which confirms confidence in the permanent strength of the Bureau’s concrete structures.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 13
Laboratory efforts emphasized control of concrete quality and economy in current construction and the selection of cements, aggregates, and pozzolans for new structures. The quality of concrete aggregates from numerous projects was determined by suitable tests. Development of a chemical test to determine reactivity of aggregates by the use of sodium hydroxide was part of the year’s' work. In connection with winter concreting operations, studies were made on heat of hydration of cement and on the use of calcium chloride to protect new concrete placement during cold weather. Because of laboratory investigations, requirements for curing and finishing of concrete in power and pumping plants and for protection of concrete in cold weather were simplified and liberalized. Considerable research was also done in the development and testing of methods of repairing cracks in concrete.
Testing, analyzing, and examining bituminous construction materials controlled the acceptance of approximately 11,000 tons of asphalt for Bureau construction, principally for canal linings. To afford better control of heating of asphalt, specifications were revised to require use of automatic thermometers which will record the temperature .during the entire asphalt heating operation.
Laboratory assistance was rendered in establishing improved methods of testing the efficacy of herbicides for cattails, salt cedars, and other noxious growths along canals, and in furthering the development of lower cost canal linings.
Testing and development of protective systems against corrosion of metallic members in numerous Bureau structures were also important activities during the year. Acceptance tests were conducted on 600 samples (representing 276,000 gallons) of paint, oils, and related materials.
Work Performed for Other Agencies
This year was notable for the Division’s numerous contributions of its technical resources and skills to the problems of other public agencies and of private agencies and foreign governments. For the International Boundary and Water Commission, the staff prepared designs and specifications for completion of Falcon Dam and power plant, major undertakings of the Commission on the Rio Grande in Texas. Work continued also on construction drawings and specifications for equipment for the dam and power plant. In addition, the staff assisted the Mexican section of the Commission by installing instruments in the power penstock on the Mexican side of the Rio Grande which will record earth pressures of the dam on the conduit.
Under an agreement -with the Navy Department, -work was begun on the preparation of designs and specifications for 61 miles of the 72-
14 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
mile-long second barrel of the San Diego aqueduct. • Bureau engineers will also supervise construction of the pipeline which will extend from the Los Angeles Metropolitan aqueduct to San Diego. (The Bureau designed the first barrel of the San Diego aqueduct which was constructed between 1943 and 1945.) For the city of Seattle studies of structural behavior of Ross Dam continued.
The Engineering laboratories also extended considerable technical assistance to numerous governmental agencies and private organizations. On three occasions aid was given to state and local law enforcement agencies in the identification of certain forensic evidence by X-ray diffraction methods. Assistance to the Atomic Energy Commission was given through acceptance tests of concrete aggregates, alkali-aggregate reactivity tests, and strength and elastic property tests of concrete cores for various installations of the Commission. For the Bureau of Mines, the laboratories investigated the possibility of using spent oil shale in concrete mixes. Tests of pozzolans were conducted for the Geological Survey, and aggregate tests were made for the Bureau of Indian Affairs.
Acceptance testing of paints, varnishes, oils, soaps, and waxes were carried out for the Federal Supply Service of the General Service Administration, a continuing activity of the laboratories. Similar acceptance tests of paints and related materials were made for the Forest Service.
The Department of the Army was advised on the analysis of water samples at the Rocky Mountain arsenal; and the Corps of Engineers w’as given data on tests of asphaltic and concrete construction materials.
Concrete aggregate tests were made for the Tennessee Valley Authority, the Water Resources Authority of Puerto Rico, the Georgia State highway department, and the Kansas State highway commission. The Colorado State highway department was given laboratory assistance in the study of foundation clays, and aggregate investigations and concrete mix studies were completed for the Denver Water Board.
Testing of concrete cores was undertaken by the laboratories for the Metropolitan Water District of Southern California, and for the city of Seattle in connection with its Diablo and Ross Dams. Hydraulic model studies and tests of aggegates and pozzolans for Falcon Dam of the International Boundary and Water Commission were further laboratory activities during the year.
An increased volume of technical studies and laboratory experiments was also accomplished during the year for foreign governments. Technical services for the Snowy Mountains Hydroelectric Authority of Australia included the preparation of designs for the Tumut Pond Dam and for the Adaminaby tunnel and T-l tunnels. Designs and
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 15
drawings were also prepared for related control structures and other hydraulic features.
For the Indian Government trial load analyses were carried out in design of a 680-foot-high concrete gravity dam, and stress analyses were initiated for the dam’s appurtenant works.
The staff completed its review of the design of the Chao Phya diversion dam, dike, and navigation lock for the Government of Thailand. Stability analyses and preliminary general arrangement layouts were made for the Chao Phya power plant.
The Engineering laboratories contributed to Bureau assistance abroad by conducting hydraulic model studies, concrete mix investigations, and other testing work for the Governments of Australia, India, Japan, Lebanon, and Thailand. The laboratories were also called upon by private engineering firms for technical guidance and research investigations on projects in El Salvador and elsewhere.
International Cooperation
The impressive increase in the Bureau’s foreign activities program called on the Division to expand its services to in-service foreign engineers and visitors, supply technical services to foreign countries, provide publications on Reclamation practices and works for their use, and detail engineers to foreign missions. The training program for foreign engineers wTas improved during the year to assure better education in Bureau practices and procedures, and better coordination with field offices was achieved. In addition, a schedule of weekly lectures covering general engineering practices and design work as carried on within the Bureau was inaugurated during the year for the benefit of foreign trainees. Technical “backstopping” services increased in volume and scope as expanded Reclamation-engineering missions in foreign countries progressed in their work.
Officials from 20 foreign nations participated in the first International Reclamation Conference at Yakima, Washington, held early in June 1952 in conjunction with the Columbia Basin water festival. In Denver, following the conference, the foreign engineers attended a special seminar on irrigation practices conducted by the Division.
Construction Costs
Construction costs showed an over-all rise during the year of about percent. This was due in large part to increases in labor rates, as equipment costs rose only slightly and materials prices were generally stable. Toward the end of the fiscal year nonferrous materials came into better supply, and in some instances lower prices were
16 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
experienced on electrical items. Uncertainty prevailed in steel and steel products prices. Because of the strike in the steel industry the supply of steel was short and prices rose accordingly.
Bidding interest in most construction w’as substantial and active competition resulted in favorable prices. In several instances, little interest was shown to bid on project completion work, and high unit prices were experienced for this type of construction. Unusually high prices were also experienced on several projects located in or near areas where active defense industries were located; these prices may be attributed to inadequate labor supply and resulting high labor costs.
Table 5 lists costs indexes for Bureau of Reclamation construction work based on the combined costs of materials and labor supplied by contractors and material and labor supplied by the Government.
TABLE 5.—Bureau of Reclamation construction cost indexes—fiscal year 1952
Cost indexes based on January 1940 costs=1.00
July 1951
January 1952
June
1952
Dams:
Earth_____________________________________________________
Concrete__________________________________________________
Pumping plants:
Building and equipment__________________._________________
Structures and improvements 1_________________________......
Equipment_________________________________________________
Pumps and prime movers____________________________________
Accessory electric and miscellaneous equipment____________
Discharge pipes___________________________________________
Canals and conduits:
Canals____________________________________________________
Conduits (tunnels, free flow, concrete lined)____________
Laterals and drains___________________________________________
Power plants, hydroelectric:
Building and equipment__________________________________
Structures and improvements 1_____________________________
Equipment...._____________________________________________
Turbines and generators___________________________________
Accessory electrical equipment____________________________
Miscellaneous equipment___________________________________
Penstocks_________________________________________________
Transmission switchyards and substations______________________
Transmission lines (wood pole)__:_____________________________
Transmission lines (steel tower)______________________________
Permanent general property:
Buildings______________________»._________________________
Hoads and bridges:
Primary roads_____________________________________________
Secondary roads, unsurfaced_______________________________
Bridges___________________________________________________
Composite index_______________________________________________
2.10 2.25
2. 30 2.50
2.10
2.10
2. 20
2. 50
2. 30
2. 35
2.50
2. 20 2.45
2.10
2.10
2.10
2. 20
2. 50
2.20
2. 20
2.15
2. 60
2.’25
2.10
2. 45
2.25
2.10 2. 25
2.40 2. 55 2. 20 2. 20 2. 20
2. 55
2. 40 2. 45 2. 65
2. 30 2. 55 2. 20 2. 20 2.20 2.20
2. 55 2.20
2. 25
2.15
2. 60
2. 30 2. 25 2.30 2.30
2.20 2. 25
2.45 2. 65 2. 20 2. 20 2. 20 2. 60
2.50 2. 60 2. 70
2.35 2. 65 2.20 2. 20 2. 20 2. 20
2. 60 2. 25 2.30
2.15
2.60
2.35 2. 25 2.50 2. 40
1 Indexes for structures and improvements on pumping plants and power plants are based on reinforced concrete structures.
Publications
Major technical publications issued during the year were a revised tentative edition of the Earth Manual and a reprint of the fifth edition of the Concrete Manual. The Earth Manual records engineering practices and procedures developed, in earth materials, investigations, testing, and construction. The Concrete Manual is an authoritative
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 17
handbook of information and instruction on concrete control and construction technique.
Also published were three engineering monographs which discuss discharge coefficients for irrigation overflow spillways, photoelastic stress analysis of concrete conduits, and stresses around galleries in concrete dams.
Preparation of technical records of design and construction gained in momentum during the year. These records provide comprehensive information on design and construction of specific Bureau structures. The final design report for Angostura Dam was published, and the report for Heart Butte Dam was completed and is to be issued early in the next fiscal year. Technical records of an additional 32 major structures were in preparation, and about 10 of these records are planned to be duplicated or published during the following year.
Under preparation this past year were: The sixth edition of the Concrete Manual; first editions of the Earth Manual, Paint Manual, Manual for Measurement of Irrigation Water, and the Welding Manual; an additional 15 monographs planned to be issued in the next fiscal year; and a revised edition of Dams and Control Works. Under way also was the compilation of an exhaustive index of all Bureau specifications which have been issued since inception of Reclamation activity in 1902.
To record the methods used and the accomplishments in the Bureau’s lower cost canal lining program for a wide range of readership, an illustrated semi technical bulletin entitled, “Canal Linings and Methods of Reducing Costs” was published. A Golden Jubilee Fact Book describing Reclamation’s accomplishments in the past 50 years was also printed for nontechnical readers.
The Advance Construction Bulletin and Advance Equipment Bulletin which report Bureau work proposed for the following 3 months were given increased circulation as requests from contractors and subcontractors were received. The annual forecast edition of The Advance Construction Bulletin which describes work to be undertaken for the remainder of the fiscal year was issued in increased numbers to promote competitive interest among wider numbers of prospective bidders.
Participation of design and construction engineers in professional activities and their contributions to technical literature continued at high level, with more than 100 papers and articles published or presented, including a number before international organizations. A Bureau of Reclamation symposium commemorating the fiftieth anniversary of Reclamation, held in conjunction with the summer convention of the American Society of Civil Engineers at Denver in June, was highlighted by presentation of many technical papers by Bureau engineers and by open house events held on June 17.
18 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 6.—Bureau of Reclamation storage dams
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 19
See footnotes at end of table.
Idah
20 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
lii. I !i ii£ I Mi-IiOo §§§ § s
S§§ I ssgRgg §§§ § § ggs§
gg § »r si pt * g Ms- s*" g s m
388 s isS® S§8 a SSgegsgsg sgs § § js§
■o" _T Mwpf w’cfrt* W rororocfw -T co- w'
8|s s gssB8 gs K8§ s Bfflssasssg ssa g § g§s
ill § S§§§§8 88g g Sgg|§8g8 ggs I § 888 gg-g- 3 £-■£ sg SS-- § tfss s yes-g gsg g f gSfe-
TABLE 6.—Bureau of Reclamation storage
ANNUAL REPORT OF BUREAUS AND OFFICES ft 21
22 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
FOREIGN ACTIVITIES
The Bureau of Reclamation again this year assumed an even greater role in the operation of the technical assistance programs of the United States. Each year since the end of the Second World War, the Bureau has received an increasing number of requests from abroad for technical services. In response, the Bureau, through the Office of Foreign Activities, has arranged to send technical personnel overseas, and has acted as host to trainees, official observers, and accredited visitors. Most of the work of this nature which the Bureau has done has been carried out in conjunction with the Technical Cooperation Administration of the Department of State under the terms of Pub. Law 400, 82d Cong., popularly referred to as the Point IV Law. Although the foreign technical assistance programs of the United States Government are directed primarily at benefiting other countries, the Bureau of Reclamation nevertheless profited a great deal from the resulting exchange of technical and general information about the development of water resources the world over.
During the last fiscal year, there were 33 missions overseas in 22 different countries involving 92 Bureau technicians. All of these technical assistance projects came about as a result of specific requests from the countries concerned and approved by the Department of State or by MSA. Under the point IV program, missions were sent to Costa Rica, Ecuador, Ethiopia, India, Iran, Iraq, Jordan, Lebanon, Liberia, Libya, Nicaragua, and Pakistan. Other Bureau personnel went on technical assistance assignments to Australia, Ceylon, Chile, and New Zealand under the provisions of Pub. Law 402, 80th Cong., to Italian Somaliland, Malaya, Northern Rhodesia, and Thailand for MSA, to the Virgin Islands for the Office of Territories, Department of the Interior, and to Saudi Arabia for the United Nations FAO. In fiscal year 1952, the Bureau received from the various agencies which direct the foreign assistance programs a total of $1,845,000 for its contribution to these programs. This amount contrasts vividly with the $247,000 which was paid to the Bureau for its participation in the program for the fiscal year 1951. In terms of newly irrigated acres and installed hydroelectric capacity, the Bureau in its foreign activities work is concerned with a program of water resource development which is larger than all it has done in the United States in the last 50 years.
During this past fiscal year, increased emphasis was placed on active participation by the Bureau of Reclamation in the various international meetings connected with the development of water resources. Bureau employees were sent as official United States delegates or observers to the following international conferences: World Power
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 23
Conference, Large Electric High-Tension Systems, International Commission on Large Dams, International Association of Hydraulic Research, United Nations Economic and Social Council Conference on Flood Control, International Geographical Union, and the Sixth International Grasslands Congress.
In November 1951, the Commissioner delivered a series of 16 lectures on the Administration and Execution of Natural Resources Development at the FAO Latin American Training Center in Santiago, Chile. Since that time, these lectures have been prepared for use by colleges and universities, and they have been translated into several foreign languages so that they might be employed in the point IV program overseas.
Continued efforts to establish a United States National Committee of the International Commission on Irrigation and Drainage met with success, and definite plans were made to hold the organizational meeting early in fiscal year 1953. The Bureau also accorded strong support to the United Nations Food and Agriculture Organization in its fight against world food shortages and in its land reform programs. The International Reclamation Conference was one of the high spots of the year. Planned by the Office of Foreign Activities, the meeting was attended by 30 high reclamation officials representing the governments of 24 nations. Papers were given on planning, construction, economics, and agriculture by the foremost authorities of the Bureau. The Columbia Basin was used as a laboratory, and this distinguished group of engineers and administrators participated in one of the most extensive and detailed examinations ever attempted of a basin development project.
The Bureau of Reclamation continues to play a very important part in the training of foreign nationals in water resource development. During fiscal year 1952, 350 foreign officials and engineers representing 60 nations toured various projects and visited Bureau field offices to observe Reclamation practices. Of this number, 71 were in-service trainees who studied engineering and administration in the Denver engineering offices and laboratories or at other Bureau installations. A number of Bureau trainees returned to their countries, and they are now working side by side with Bureau employees on point IV and other projects.
At the request of several foreign governments and with the approval of the Department of State, the Bureau performed testing, research, design review, and other similar services in connection with various development projects abroad. The Bureau is continuing to review for the Government of Thailand the design work for Chao Phya Dam which has been done in that country under the supervision of two Bureau men.
24 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The exchange of technical and general information about the development of water resources continued at an increasing rate during fiscal year 1952. The Bureau received requests from foreign nationals for information, publications, photographs, and similar material. Insofar as facilities permitted, these materials were supplied. Exchanges of publications with the agencies of foreign governments also increased in volume.
For several months it has been evident that a central clearing house was needed to collect, compile, analyze, and correlate the available data on geography, topography, hydrology, water and land use, electric power, irrigation, water laws, land tenure, and related engineering practices of the world over. Data of this type have been continually in demand by other government agencies as well as by the personnel involved in the Bureau’s own foreign program. In order to prepare personnel who were going abroad on technical missions, country reports were assembled on Chile, Ecuador, Ethiopia, and Peru. With the increasing need for material of this nature, a Branch of Technical Analysis was established in the Office of Foreign Activities to assemble data on all of the TCA countries. It is planned that the Branch of Technical Analysis will prepare additional country reports which, with the others, will be continually revised to insure the inclusion of all the latest available information. During fiscal year 1953, when the Branch of Technical Analysis has been completely staffed, it will be possible to increase the flow of water resources development information into this office through cooperation with the Foreign Service, correspondence with Bureau personnel overseas, and through continuing contacts with foreign engineers who have visited or have trained with the Bureau of Reclamation in the United States.
It is anticipated that there will be a further increase in the scope and magnitude of the part the Bureau of Reclamation will play in this Government’s foreign technical assistance programs during the coming fiscal year. It is estimated that during fiscal year 1953, the cost of the technical services which the Bureau will be requested to supply will be in the neighborhood of $2,700,000. The Bureau’s participation in these foreign aid projects will continue insofar as the domestic program will permit it, and as the funds are made available by the Technical Cooperation Administration and the other sponsoring agencies.
OPERATION AND MAINTENANCE
The Division of Operation and Maintenance is responsible for keeping irrigation water flowing down the ditch to 125,000 farms consisting of 6,713,000 acres on which 410,000 settlers live, as well
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 25
as making certain that the irrigation facilities on G9 projects are kept in good repair to assure the best and most economical use of the water. These facilities include 108 storage and 71 diversion dams, more than 18,000 miles of canals and laterals, more than 5,500 miles of drains, 331 major pumping plants and an estimated 10,550 miles of operating roads.
Actually the Reclamation family numbers almost 2,000,000. In addition to the number of settlers on the projects, at least 1,500,000 persons living in nearby towns and villages are dependent on the Reclamation program.
Extension of Irrigation Service
Bureau facilities were extended in 1951 to make full or supplemental water service available to an additional 688,000 acres, making the total 6,713,000 irrigable acres, compared with 6,025,000 acres in 1950.
Acreages and number of new farms for all projects reporting new farms are shown in the following tabulation:2
Irrigated
Project or division of project
N umber of farms
Acres
Boise project, Payette division, Second unit, Idaho________________________
Columbia Basin project, South district, Washington_________________________
Deschutes project, North unit, Oregon______________________________________
Minidoka project, North Side pump, Idaho___________________________________
Yakima project, Roza division, Washington__________________________________
Central Valley project, California_______________,_________________________
Klamath project, Oregon-California_________________________________________
Orland project, California.._______________________________________________
All-American canal system, Coachella division, California__________________
Gila project, Yuma Mesa division, Yuma Mesa unit, Arizona__________________
Mancos project, Colorado,__________________________________________________
Pine River project, Colorado_______________________________________________
Preston Bench project, Idaho_________________________________________________
Tucumcari project, New Mexico______________________________________________
Buford-Trenton project, North Dakota_______________________________________
Intake project, Montana____________________________________________________
Lower Yellowstone project, District 1, Montana_____________________________
Lower Yellowstone project, District 2, North Dakota________________________
Missouri River Basin project, Heart division, Dickinson unit, North Dakota_,
Riverton project, Third division, Wyoming___________________________________
Shoshone project, Wyoming-Montana__________________________________________
Kendrick project, Wyoming__________________________________________________
Mirage Flats project, Nebraska_____________________________________________
120
21
2
37
144
507
3
8
186
9
4
0
C
10
3
1
0
0
3
60
0
19
2
6,746 1, 195
1,053 3,692 6,000
53, 819 465
170 > 12, 018
1,110
516
2, 260 594
1, 755 465
50 25 20
143
5,008
4, 272 2,360
238
Total________________________________________________________________________ 1,139 103,974
i Does not represent all new land. A portion of this acreage was previously irrigated from private wells.
Crop Production
Farmers on Reclamation projects raised crops with a new all-time all-high gross value, $821,722,000 or an increase of $243,484,000 over 1he 1950 return, the previous all-time high, which was $578,238,000. This marked the sixth consecutive year that crop values exceeded the
2 Does not represent lands receiving supplemental water supply.
26 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
half billion dollar mark and brought the cumulative value of Reclamation crops produced since 1906 to $7,983,529,000. This is approximately four times the amount invested in all Bureau projects to date. The average gross crop value per cultivated acre was $138.29 for 1951. This was an increase of $26.86 over the $111.43 average value for 1950 and marked the seventh successive year of average crop values in excess of $100 per acre.
More than 22 million tons of food, forage, fiber, were produced on Reclamation lands in 1951 as compared with 16 million tons plus in 1950. Of the 1951 total, 4,674,267 tons consisted of fruits, nuts, vegetables, and pulses—the so-called protective food. The acreage distribution of crops shows that hay and forage constituted the largest acreage group with 41.5 percent of the total, followed by cereals with 22.7 percent, and cotton with 10.3 percent.
The irrigation of western desert lands makes possible the production of high value crop specialties. Among the top money makers were fresh market tomatoes on the Coachella division of the All-American Canal which grossed $2,500 per acre, strawberries on the Salt River averaged $2,200 per acre and a small acreage of hops on the Umatilla project averaged $1,980 per acre. Thirty-four projects or divisions of projects reported over 93,000 acres producing crops with values in excess of $500 an acre. Specialty crops grown on this acreage were valued at over $65,000,000.
The ability to produce this almost endless bounty year after year through a controlled and assured water supply will always remain one of the greatest attributes of Reclamation development. The types of crops raised on western irrigated lands include many products not available in other places in the United States and thus fall in the noncompetitive category.
Relative amounts of water supplied from Bureau works varied widely due to differences in crop requirements, rainfall, soils, extent to which adequate supplies from other sources exist, and other factors. The highest amount was reported on the Yuma Mesa division of the Gila project in Arizona where nearly 15 acre-feet per acre were delivered to farmers’ headgates. The lowest average supply was furnished on the Malta division of the Milk River project in Montana where records show about one-half acre-foot per acre was supplied to Bureau works. Water supplies were generally adequate except in the Southwest where shortages were experienced on the Rio Grande, Carlsbad, and Salt River projects.
Land Openings
During the fiscal year 1952 the Bureau opened for settlement 12,351 acres, comprising 201 farm units on the Columbia Basin and the Gila
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 27
projects. The farm units on the Columbia Basin project were sold under the provisions of the Columbia Basin project act, while the farm units on the Gila project were opened for homestead entry under the provisions of the Reclamation and Homestead laws. The land openings on the Columbia Basin included nine full-time farm units and 53 part-time farm units, comprising 694 acres of land in the Quincy Columbia Basin irrigation district, 80 farm units, comprising 4,759 acres in the East Columbia Basin irrigation district and 32 farm units, comprising 2,868 acres in the South Columbia Basin irrigation district. The opening on the Gila project involved 4,030 acres of land, comprising 27 farm units.
While the number of farm units opened to settlement during the fiscal year was slightly in excess of the number opened the previous year, the number of applications received for these farm units was greatly in excess of those received in former years. A total of 16,321 applications were received for the 148 family-sized farm units or an average of 110 applications per farm unit. A large proportion of the irrigation facilities now under construction or scheduled for future construction by the Bureau will serve privately owned lands. The amount of public or Government-acquired lands which is to be served by irrigation facilities is becoming relatively scarce, while the demand on the part of veterans for this land appears to be increasing. However, it is anticipated that in each of the next few years from 100 to 200 farm units will be available for settlement.
Credit for Settlers
Limited finances have always been and continue to be a problem for new settlers; however, the credit situation has been greatly alleviated during the past few years through loans made to new settlers on Reclamation projects by the Farmers Home Administration of the Department of Agriculture. Under the provisions of Public Law 361, Eighty-first Congress, the Farmers Home Administration can grant loans to entrymen prior to the time they obtain patent to the land. On several projects from 60 to 80 percent of the settlers have obtained loans from this source. The size of the individual loans ranged from $500 where water facilities only are involved to $20,000 or more where land development, housing and farm operating loans are granted. This increase in available credit has resulted in a more rapid development of the new farm units. Whereas it formerly required a number of years to bring a new farm under irrigation development, many new settlers have developed 80 percent or more of their irrigable area by the end of the second year.
226396—53----3
28 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Excellent cooperation exists between the Bureau of Reclamation and the Farmers Home Administration, and the Bureau has worked closely with the Administration in supplying it with information relative to land which is to be opened for settlement and in assisting it in estimating the credit needs of new settlers.
Development Farms
Sixteen development farms have been established in new irrigated areas of the Columbia Basin, Missouri Basin, Gila, and Riverton projects to determine and demonstrate, for the benefit of new irrigation farmers, the most efficient methods of irrigation, the best cropping practices and the crops best adapted to these areas. Five of these farms were established during the year.
A part of each farm is generally devoted to research which is conducted by State experiment stations and U. S. Department of Agriculture agencies on water use, fertilizers, crops, and other subjects. Field days and tours are conducted on the farms each year for the benefit of the new settlers. The findings of the research are reported annually and already have proved of great value to the new farmers in these areas. T he development farms are established as far as possible in advance of irrigation on the project so information will be available when the settlers start to cultivate and irrigate their lands.
Repayment and Water Service Contracts
A fundamental principle of Reclamation law is that the cost of project construction be repaid by the water users and other beneficiaries. In keeping with that principle, during fiscal year 1952 repayment contracts having a face value totalling $90,513,600 were entered into with 12 irrigation districts to assure the return of the cost of construction of irrigation works on new projects. In addition, delivery of water to 6 new contracting entities is provided for by water service type contracts executed during the year with various irrigation districts and municipalities. Further substantial progress was made during the year, pursuant to sections 4 and 7 of the Reclamation Project Act of 1939, in modifying repayment contracts with irrigation districts in financial difficulties to assure sound repayment arrangements based on economic and land classification surveys. Amendatory repayment contracts were entered into with 22 irrigation districts on 7 Federal reclamation projects involving the repayment of some $45,170,000. The Congressional approval necessary in connection with the amendatory contracts with 18 of the 22 irrigation districts was provided in specific legislation enacted during the year.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 29
In accordance with the act of October 7, 1949, as amended, reimbursement of the cost of rehabilitation and betterment work was provided for in contracts negotiated with 4 irrigation districts in the total amount of $1,796,000.
Rehabilitation and Betterment
The rehabilitation and betterment program of the Bureau of Reclamation was continued during fiscal year 1952 in order to take care of extensive items of deferred maintenance on some of the older Reclamation projects. This program, in accordance with the act of October 7, 1949, as amended, requires full reimbursement by the water users of all funds expended.
A total of $2,852,450 appropriated by the Congress for this work during the year was allotted to eleven projects. All work contemplated under the rehabilitation and betterment program for accomplishment of the Grand Valley project, in Colorado, and the Yakima project, in Washington, was substantially completed by June 30, 1952.
The work on the various projects included replacement of old wood structures; • repair or replacement of old concrete and steel structures; cleaning and repair of canals, laterals, waste ways, and drains, installation of canal lining to prevent excessive water losses; construction of drains; and the construction and repair of operating roads, cattle guards, fences, and many other items as required to place the projects in first-class operating condition.
Soil and Moisture Conservation Operations
Under the Bureau’s program of soil and moisture conservation operations, efforts were continued on the control of erosion on public lands under Reclamation jurisdiction; protection of reservoirs, canals, and other irrigation works from siltation; and prevention of water losses detrimental to irrigation projects.
This work is accomplished throughout the 17 Western States by individual effort of the Bureau of Reclamation and through effective cooperation with all other interested agencies in each of the areas concerned, particularly with the Bureau of Land Management, the Bureau of Indian Affairs, the Forest Service, the Soil Conservation Service, and soil conservation districts.
Representative of these activities are the stabilization and conservation of public lands in the Columbia Basin, and on watershed areas tributary to reservoirs of the Central Valley project, through revegetation, structures, etc.; the cooperative program with the Bureau of Land Management for control of erosion in the Book Cliffs
30 ☆ annual report of the secretary of the interior
area, Colorado, for benefit of public lands and protection of Reclamation structures of the Grand Valley project; construction for control of erosion for protection of the main canal and structures of the Rio Grande project, New Mexico; and increased construction for prevention of further erosion of Five Mile and Muddy Creeks above the Boysen Reservoir in Wyoming.
Drainage
One major area of maintenance not yet fully current, and which may become increasingly critical, is the improvement of project drainage and seepage control. In recent years, there has been general intensification of drainage activities on older projects. Cleaning and improvement of existing drains and extension of the system to additional areas has been a paying proposition in these years of high farm prices. On older projects, canal lining, in a number of cases, is being used with good effect to reduce seepage.
A number of the projects now in the construction program present especially important drainage problems. In some cases, these new projects include substantial areas of soil that is easy to waterlog and difficult to drain. In certain other cases, the terrain aggravates difficulties of waste water and surface runoff disposal. In a large number of cases, the costs of drainage construction and maintenance are a major problem of project finances.
To a major extent, drainage can be provided only after a period of actual irrigation. Generally, a good system of the ground water level observation has been established on all projects. Close collaboration of the Chief Engineer, Operation and Maintenance, and the regional and project staffs provides ready attention to technical drainage problems as they develop. By and large, however, progress is slow in improvement of the use of water which often is a major cause of seepage.
Lower Cost Canal-Lining Program
This special investigations program, aimed at a determination of materials, methods, and procedures that will result in the most economical canal linings, was initiated in 1946. The investigations have included laboratory work in Denver and experimental field installations. The work was continued during the past year by the Bureau of Reclamation directly and by utilization of the resources and experience of State colleges and the Soil Conservation Service, in cooperative studies.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 31
Utilization of the findings and developments under this program in design and construction of new projects and in rehabilitation and betterment of older, existing projects has resulted in definite worth-while savings to the Government.
Evidence that costs of canal linings have been materially reduced and economical seepage control obtained in spite of general rising construction costs may be found in the construction records and records of bid prices over the past 6 years. In 1946, the bid price of 3-to 4-inch thick reinforced concrete lining averaged close to $3 per square yard. In 1949 and 1950, the average bid price of the same thickness of unreinforced concrete lining was about $2.20 per square yard, and reports from the projects indicate that some 3-inch linings were actually being placed by Government forces in small laterals and farm ditches with subgrade-guided slip-forms for as little as $1.13 per square yard. On the Delta-Mendota canal in California, an estimated saving of $2,850,000 resulted from elimination of reinforcing steel in the concrete linings of that job alone. Costs of many miles of concrete and other hard-surface types of lining in the Central Valley, Columbia Basin, Gila, and other projects have been similarly reduced.
Progress of the investigations was reported in a bulletin titled, “Canal Linings and Methods of Reducing Costs” that is available to the general public through the Superintendent of Documents, U. S. Government Printing Office.
Weed Control
During the 50-year history of the Bureau of Reclamation perhaps no greater advancement in any operation and maintenance activity has been achieved than in the control of weeds on irrigation systems. The hand scythe, hoe and mattock, and horse-drawn mowers, with their labor-consuming, expensive, temporary results are a far cry from the specialized efficient equipment and the methods of control developed, especially during the past decade. These new methods have resulted in materially reducing the weed problems and water losses, and are annually saving many hundreds of thousands of dollars to the Government and the water users..
Many of these methods have been developed as a result of our cooperation with the Bureau of Plant Industry Soils and Agricultural Engineering, Department of Agriculture, and with State colleges. The BPISAE has stationed a plant physiologist at our Denver laboratory to work with Bureau of Reclamation chemists and weed specialists and has established four weed-control stations in the West. Perhaps the most outstanding development made in the Denver weed
32 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
laboratory was the adaptation of aromatic solvents for controlling water weeds which, if uncontrolled, choke irrigation channels. Working out methods and equipment for applying 2, 4-D to ditchbanks has solved the serious willow problem as well as giving control of annual weeds which impede the flow of water, cause large losses of water through transpiration and create other operation problems. This new chemical is also being tested in the Southwest for the control of salt cedar (tamarisk) which has spread throughout that area and has caused considerable concern because of its encroachment on range and other areas, the potential flood hazard it creates and its enormous waste of water through transpiration.
The use of TCA and IPC for controlling grass weeds is being demonstrated on many projects. Special aromatic oils for controlling Johnson grass is showing promise in the Southwest. Rosin amine D acetate is being used to solve some of our algae problems. Other new herbicides like CMU are coming in for their share of research to adapt them to the control of other weeds.
Active participation has been maintained in the inter-departmental weed control committee, composed of agencies of the Departments of the Interior and Agriculture, and which has as its function the exchange of weed control information and the coordination of weed control programs to prevent duplication of activities.
The grass-planting program on ditchbanks has been continued to prevent future weed problems and to furnish extra pasture for project farmers’ livestock. Grasses use less water than most wTeeds, they prevent erosion of ditchbanks and are excellent weed competitors. A systematic program of seeding grasses has been formulated with the aim of establishing a grass sod on all projects as soon as possible after contraction is completed. Maintenance costs and water losses due to weeds have been reduced to a minimum where this practice has beeh followed.
The new poisonous weed halogeton has been found in a few areas on lands under the Bureau's jurisdiction. Plans have been made to cooperate with other agencies in the control of this weed under the authority of the Halogeton Glomeratus Control Act which was approved by the President on July 14,1952.
Recreational Use of Reservoirs
Construction of dams and reservoirs for irrigation and power development provides incidental but very definite benefits to the public through the creation of exceptional recreational opportunities. This is particularly true in the more arid parts of the West.
Except in the Missouri River Basin, the Bureau of Reclamation is not authorized to expend funds for recreational development of reser
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 33
voir areas. At certain reservoirs where recreational possibilities are deemed to be of national significance, such as Lake Mead, on the Colorado River between Arizona and Nevada; Franklin D. Roosevelt Lake, on the Columbia River in Washington; Millerton Lake, on the San Joaquin River in California; and Shadow Mountain and Granby Lakes on the Colorado River in Colorado, responsibility for the development and administration of recreational facilities has been delegated to the National Park Service. At certain other reservoirs which are located within the National Forest boundaries, recreational facilities are administered by the United States Forest Service.
There is an urgent need for legislation to provide authorization for the expenditure of nonreimbursable funds for the coordinated planning, development, and administration of the recreational resources at Reclamation dams and reservoirs.
During the past year, the Bureau of Reclamation also worked closely with the Fish and Wildlife Service and with the various State fish and game agencies for the protection, and where possible, enhancement of fish and wildlife values at reservoirs and on project lands.
In response to the request of the Chairman of the House Committee on Interior and Insular Affairs, a special report was prepared and published, in a 63-page booklet, outlining some of the significant values to recreation and fish and wildlife conservation that have resulted from developments of the Bureau of Reclamation throughout the 17 Western States.
Flood Control Operations
During recent years, the flood control functions of Bureau reservoirs have added new operating responsibilities. During the past year there was serious flood threat on virtually every stream on which there is a Bureau reservoir, with the exception of the Rio Grande and the Pecos Rivers. By the high caliber performance of the field officials, reservoir operations in the spring throttled down flood crests with significant reduction of flood damages.
In region 1 in spite of the unusual amount of snow cover, Bureau operations on the upper Snake River held the discharge at Heise to 26,000 cubic feet per second, well below the normal flood stage. In region 2, on the Sacramento River, with record snow storage above Shasta reservoir, the spring floods were completely controlled, leaving the reservoir full without spill. In region 6, the new Shadehill Dam, barely finished, completely contained a flood of record, significantly minimizing damage to downstream areas. Floods, particularly in the Salt Lake City area, and also along the Humboldt River, required very complicated control operations this spring.
34 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The impressive summary of the spring’s flood control operations emphasizes the importance of this function and forecasts that in the years ahead it will increase.
Associated with reservoir operations is channel work such as performed in region 3 under the Colorado River Front Work and Levee Act. Those operations have the primary objective of correcting or preventing damage associated with downstream effects of reservoir storage and releases. The first major reach of new channel was completed a year ago and it has functioned satisfactorily since. Improvement of the second reach of channel is still in progress.
Cooperation With Design and Construction
Operation and maintenance activities have been essentially of a cooperative character. Basically, they depend on cooperation with the water users. There also is continued need for cooperation with the construction forces to assure that project facilities will meet operating requirements with maximum feasible efficiency and economy.
Each year it is gratifying to report increasingly close collaboration between the experienced operation and maintenance personnel who operate the existing projects and the design and construction staff who are building the new ones.
Cooperation With Agricultural Agencies
Another important field of cooperative work is with the agricultural agencies. The Bureau’s working relations with the State colleges and extension services and with the agencies of the Federal Department of Agriculture have continued to improve. During the year, 51 memoranda of understanding or cooperative agreements with State colleges or other agencies were executed. This brings the total of agreements now in effect to 151. In the field and in national gatherings such as the Association of Land Grant Colleges and Universities, Bureau representatives have been welcomed as working partners. In turn, the Bureau is utilizing the agricultural agencies increasingly for specialized technical information and for assistance to settlers in new irrigation areas. The joint program on the Columbia Basin project is an outstanding example for all time of close teamwork to bring about maximum early development of project lands.
Federal Tax Revenues from Reclamation Areas
The increase in the wealth of the Nation through Reclamation development can be measured in part by the direct contribution of rec
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 35
lamation projects to the national treasury. Payments on the construction account by project water users or revenues from the sale of hydroelectric power are obvious expressions of this phenomenon. The greatest single contribution of Reclamation projects, however, is through the payment of the various Federal taxes by the recipients of project benefits rather than through deposits made by them in the liquidation of some specific contractual obligation.
Income taxes paid into the Federal Treasury directly or indirectly as a result of Reclamation development since 1916 on fifteen selected project areas represent a return of over 3^ times the total Federal construction cost of these units. These Federal tax revenues in a sense constitute a return on the Federal investment in addition to the repayment of construction costs. Significantly, much of the area included in Reclamation projects would have produced little or no Federal tax revenues in their native States. Much of the land now irrigated would have remained a part of the great American desert and, if used for grazing or pasture purposes, would have only meager net income per acre.
Total Federal tax revenues from all Reclamation projects providing a full or supplemental irrigation water supply based on a projection of the 15-project analysis now exceed 2.5 billion dollars. The effect of major Reclamation projects, such as the Columbia Basin, Colorado-Big Thompson, Missouri Basin, and the Central Valley, on Federal tax revenues will not be felt for many years to come.
36 ☆ annual report of the secretary of the interior
5 s i
TABLE 7.—Projects in operation—Irrigation and crop value data for the calendar year 1951
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 37
28S 3 sssi s s 2 2 s KS 8S s 2 i
tfi 1 5,149, 805 884,341 S3 ft 822,252
m § § 3 OS «5«) ।
§ = § 8 1 3 IOIO £ s
ssa g co 46,713 S o S3 CO 00 r—< i
3 8 36. 87 26.46 s? s
§ S is S I is i 8 S
s is ” i g
148. 77 101. 37 ooo2 SSS 8 166. 82 i i 8 S8SS28 8S ! * §§ i 122.14
7,497,945 19,681,768 570,991 174,954 13,335 i i ig 8 7,937, 791 i i “8 i i11 i 624.392 i g§B«gs SS : g Wig 8S i 11,911,295
668'09 194,150 §§§ COM 47,582 1 i gg i i co“« ; i 2 § gg i o c^o«cj- ; 97,525
50,399 194,150 47,009 47,009 i i II i 11,701 § i s --S-S i 98,693
56,490 224,001 sss ®V 000‘OS 50, 000 i gg i 1 T—< 1 18,134 § 83 i i 105,126
See footnotes at end of table.
38 ☆
ANNUAL REPORT OF THE
SECRETARY OF THE INTERIOR
TABLE 7—Projects in operation—Irrigation and crop value data for the calendar year 1951—Continued
£08 ‘
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 39
See footnotes at end of table.
40 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
value data (or the calendar year 1951—Continued
Projects furnished supplemental storage water from works constructed by the Bureau Crop values Per acre Dollars 133. 51 i : § i i 5 1 1 33.74 35.99 81.96 71.21 : : s i i
o Dollars 280, 237 i 1 o I 1 1~- i i ” 1,143,665 333, 757 388,840 1,811,494 — 2,232, 740
Net area in cultivation gg : i ^*1 i i ils i : 33, 899 9,273 4, 744 25,438 24,296
Irrigated area si : : V i j i 33,899 9, 273 4, 744 25,438 i i § i i s
Irrigable area 1 $0 i : i i g 1 1 00 1 1 6b, 9,493 6, 660 40,012 i i g : i ”
Projects entirely constructed by the Bureau Temporarily suspended land* Value per acre Dollars 41.31 i s i i d i S8S ssc g i s i
Total crop values Dollars 92,123 i b i i s i !
N et area in cultivation S ! i § i i 1 i i i i i i § i
Land subject to construction charges Crop values Per acre Do ars 100. 57 95.06 224. 77 i i is s Eds 8 i
'cS o Dollars 1,012, 007 1,812,467 1.829.192 3,641, 659 i is ■ is Ip 2,456,040
Net area in cultivation s ia is 3°° i 1 i i ” i i ji i ife 6S3 3 I 1 J
Irrigated area S iS 33 is i i : a' i i ji i ife ill s i S i
Irrigable area1 S i§ id ss i £ i 5 i is i is" Bit § i kd i
State, project, and subdivision REGION 4 Colorado Fruitgrowers Dam» Grand Valley: Garfield Gravity division Orchard Mesa division3 Warren Act contractors Total—Grand Valley project... Mancos 4 Pine River Indian irrigation Uncompahgre Idaho Preston Bench 3 1 1 Newlands: North Carson division South Carson division Truckee division Total—Newlands project Truckee Storage
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 41
gg&SS S3
feggg3 sg
3 £
g g
E £5 g S
3
s
3
§g™ S3
s
§
s £
3* g
g g
s g
gsggg 3§
“5gH»O t~-*O
3
05
s
S
3
* £
§
3
§g§sg 3§
g §
3
g £
g‘ 1
g
3gSg§ §S
50*u5'cici'o' i<«5
s
3
3
£ 8
£
3
3
g 3
So
3 g < g
I
g
g
35
g
§ g J*L
3
ggg !38BS
s
3
g s
3 S&S
3 SSS
g §8
S
£
§
§
§
§
3 gg§
§ s¥§
g g
I £
g g
§ t 3
«
S
s
3g§
g £■
g
5
g 3SS S3
3 g-S 3S S
£
i g
ggg
33“
g £
1
B
s g s
3 S-g § g
£ g
s g-
i s
§
g
3
3 g
3gg
S3“
§ s§~
g“3
g § g§ S
See footnotes at end of table.
42 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
I—Continued
>—
s 5 a> 3 ■5 Per acre Dollars
ah storage wi r the Bureau Crop v 2s o Dollars
D 3 rd 5.2' d o Net area in cultivation 8 b N 1 II
furnished s works con: Irrigated 03 s 3
Projects Irrigable area 1 t ; |
ded land 2 iValue per a O O o Dollars 822, 949 387,671 1,210,620 gs |e-g£a 2,937,212 § S si 2,441,932 |
Projects ei d to ’d A. Net area in cultivation sig 1 s 22S88 8-22^ 63,267 <»■{£ 85,665 |
Irrigated area ss-„- 21, 695 § £ §2£22 73,803 i S3 °pg 76,656
Irrigable area 1 • 32°”8 <-ss?'0' 124,041 CC 8g S3- 97,275
State, project, and subdivision REGION 6 Montana Buffalo Rapids: First, division 4 ■ Total—Buffalo Rapids project I E i £ Milk River: Chinook division i c I i ■ Total—Milk River project Missouri River Basin project: Vpllnwstnnp. division—Savapp, unit Sun River: Fort Shaw division I Total—Sun River project
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 43
i g CO g CO 102.93
226, 973 226,973 63,300, 517
o o r-' | i
o o 615, 000
I 1 615,000
ss S 3 2 S3 sss gss g g £
§g 16, 581 CO ggg 24,416 563, 277
3 g 264 1,315 47 § 21,675
$ 2 g 2 45. 09 31.81 2 s 2 g 2 g
as MS 2, 777,872 395,489 2, 327, 526 =8 2. 222, 794 | if gg 3, 465, 424 | 18, 933. 202 688,077
32,810 16, 413 49, 223 i 54,137 52,026 8™ 25382 74,394 427,814 11,331
49, 545 54,137 £g i 52,026 S®o2 76,020 439,141 11,331
57, 200 g 59,129 ss 61, 299 818‘86 563, 590 11,659
Vorth Dakota (Montana) 34 F 1? er Yellowstone proj- Dakota Dakota J intractors rton project ig-Montana on on iin division jj hone project on 6 i 1 1 ■1
226396—53
See footnotes at end of table.
1
1 SSSi
44 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 7 — Projects in operation—Irrigation and crop value data for the calendar year 1951—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 45
See footnotes at end of table.
46 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 47
48 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
S 1
i s fi
I f
I
Entire area receiving full or supplemental water from Bureau-constructed works Cron values | Per acr e 3IIS S3 S S gfe RIIS • § h § g g.g £ i
i 8 S;5 88 §h S £ Ms £ S Ms §k ” g - 00-
•Net area in cultivation ” SfcoSaS s|s M g 1 MS § g If 8- 8" S
Irrigated area 8 I §§§§§ s 8 8§ I § MS § g g g s' S SK g g
Irrigable area i 1 ? s |B g § ig § g 9 8'1 =s S’ >' S f I
Leased and water rental lands receiving water from Bureau-constructed works Crop values Per acre Dollars i ; i“ i i H : ; ; ; : 274.48 124. 23 156. 59 156. 59 156. 59
o b Dollars i i is i i i i • i ! i i i i 64, 229 778,062 4, 829, 733 1, 829, 733 1,829,733
Net area in cultivation 1 Lk H g 8 i 30,843 30,843 ‘ 30,843 ‘
Irrigated area «o Ha H 6, 252 30, 843 30, 843 30, 843
Special and Warren Act contractors receiving water from Bureau-constructed works Crop values Per acre Dollars i i i. is H 197. 60 108.93 264. 62 102.07 . 102.07 243. 55
o 1 Dollars ij i ii i i i ig i 5 32,173,678 110,183, 637 144, 729,484 8, 314, 246 8, 314, 246 153,043,730
Net area in cultivation <>3 • i i 1 Oi f : : :ss i i i is 162,819 1,011,516 546, 928 81, 460 81,460 628,388 1
Irrigated area •5 K> • -i । ; ct> : : : ;s i i i i§ 162,819 1,011,516 523,889 • 81, 460 81,460 605, 349
Irrigable area 1 CO 1 i Hs i i i i§ | 190,841 1,075,798 726, 609 i 87, 286 87,286 813,895
State, project, and Subdivision region 1—continued Washington—-Continued i aKima: Kittitas division Roza division Sunnyside division Tieton division Warren Act contractors-Tn fol—VnVimo ject Total—Region 1 REGION 2 California Central Valley5 Orland Oregon-California Klamath: Main division (Oregon). i Lease ci ana water rental lands Warren Act contractors. ect Total—Region 2
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 49
See footnotes at end of table.
50 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 7—Projects in operation—Irrigation and crop value data for the calendar year 1951—Continued
s p o C3 CH CD A Per acre Dollars 38 3SS 853 s 53 51 8 o 51 s 88 s
pplemental v ed works > c Q 1 ~ 1 o H Dollars IS g§ S'S §J 388,840 3 g 2,471,930 2,232,740 § S3 igw g is 418,636 |
b -g ”fl o-b __ a o *— Q Net area in cultivation CO N 8§ -8 3 3 8 33S i s I 3 § 3 83 cr. s
3a receiving Bureau Irrigated c3 Per acre Dollars S ui
sntal lands -constructe a o O * 15 o Dollars 3
£ CC c £ rt fl OS , rj cs-g-S ts co N 8
Leased ai water fr< D c3 .0 a co V CJ N 8
ing water CD fl Per acre Dollars o 3 ।:
actors receivi icted works a o O 15 o Dollars 760,264 i
fl to O fl O 5 ° 3 < a Net area i c a-2 °S c > Co so N
nd Warren from Bun Irrigated area co so o N ! r—1
Special ai Irrigable area 1 co gISMfg
I
i
1
£
TABLE 8- Cumulative crop values, 1906 51
■Hi.....i i i ig§gSgg§ggs§i88^5SSSS&Eg
H i i i ! : : H : ! :* _rH?—Ir-Ir—It— W-rt W-rJ'w-w'w-rHw'wrt
H i i i i i i i i i is§i§glsgg8Biggg§ESggsgggg8 i i i i i i J H i i :g§g3gSS‘SWIS8¥a^8¥§§Wggf
1ll5lESElBO®SIIIISIIIiSlgSgIB§8fS§ iss§g5WfgBilggg'B¥ggslggg¥g^^^^ is^sSss-ssg^
8gggl8g§s§ggB§»ggggsSgg§6§gggsS8sSggg ggsgg'Sgggg^^^
- * s S 2 3 S S 2 gf S S £ S 3 S 52 8 £ S K S 8 S § 3 S 3 K £ £ K g S 3 S' §§s§igisiwgsifi§§§g8gsiggwss2sgi§iii ?|g§ssss§sgMgS>¥£sX^^^^
§8sg§8j»sK§s§ii§§giiiiiii§Wsi§®iiiii
~§»§S5SJgls8^^
“ ” HHhWhHHHNNNN’
§H§ggBggEWgSWIBf§IIISIg§gSIIgg=III ’WgsSWsfglg^
tilt
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 57
58 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
POWER UTILIZATION
Installation and production of hydroelectric power capacity took great strides on the multipurpose projects of the Bureau of Reclamation during fiscal year 1952.
By June 30, 1952, the total installed capacity in power plants constructed and operated by the Bureau of Reclamation was 4,181,200 kilowatts. This increase of 241,700 kilowatts, together with the existing facilities, served market areas in the western United States with much-needed electric energy for industrial and domestic purposes. The sales of electric energy during the fiscal year totaled 25,332,204,310 kilowatt-hours, which brought in revenues of $43,310,035 to the Treasury. During fiscal year 1953, the Bureau is scheduled to increase power production capacity 342,950 kilowatts. A summary of fiscal year 1952 power sales and revenues by projects is shown in table 9.
TABLE 9.—Bureau of Reclamation power systems, power sales, and revenues by projects, fiscal year ending June 30,1952
Region and project Sales of electric energy, kilowatt-hours Revenue from sales
Region 1: Boise project - - - - 189,322,683 14, 080, 546, 400 117,026,898 23,819, 488 $412, 921. 04 11,100,000. 00 520, 209.87 61,879. 65
Columbia Basin project
Minidoka project - - -
Yakima project - - -
Total -- -
14, 410, 715, 469 12, 095, 010. 56
Region 2* Central Valley project _ _ _ - - - -
2,514,551,476 9,894, 306. 39
Region 3: Boulder Canyon project - -
5, 571, 442, 485 1,693, 941, 806 8,649,125 9, 247, 718.97 5,821, 921. 90 42, 622.49
Park er-Da vis project _
Yuma project -
Total
7,274,033,416 15,112,263.36
Region 5: Rio Grande project __ _ - - -- 107,842, 909 712,311.26
Region 6: Fort Peck project
406,610, 598 29, 927, 394 75,053, 062 3, 720,000 1, 541, 261. 35 180, 996. 27 465, 279. 09 15,487. 57
Riverton project - - --
Shoshone project - -
Missouri River Basin-Oahe district
Total __ - -- - — -
515,311,054 2, 203,024.28
Region 7: Colorado-Big Thompson project - - - -
236, 433,437 181,133,877 39,116, 219 53,066, 453 1,361, 653. 39 1,112,630.31 272,329. 55 546, 505. 76
Kendrick project _ - - __ - - -
Missouri River Basin—North Platte River district _
North Platte project - - --
Total - - - - - --
509, 749, 986 3, 293,119. 01
Grand total _
25,332,204,316 i 43,310, 034.86
i Does not include energy sales and revenues in transactions between Bureau projects.
The power output on Reclamation multipurpose projects which included a record-breaking performance by the Grand Coulee power plant on December 31, 1951, of 2,226,000 kilowatts hourly peak demand indicates the great need for power in areas which are served by
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 59
Bureau plants. Applications for power service continued to mount and contracts for the sale of energy are being processed to provide for the widespread distribution and integrated use of power to be produced from plants now under construction.
Many applications from industrial and rural areas for blocks of power have been received by the Bureau of Reclamation but many of the demands could not be met because the present power production is fully utilized and a good deal of the future production committed. This has a great bearing on the defense production of the country.
The continuing demand by preferential customers in the rural areas is still a major factor contributing to the increasing power requirements in many areas. These requirements are being met by transmission-line construction where necessary and financially feasible and by wheeling arrangements with other utilities already in the area.
The Bureau of Reclamation is continuing to plan the development of power consistent with multipurpose development of the West’s valuable water resources.
Present Installed Capacity
During the fiscal year ending June 30, 1952, the Bureau had 24 power plants with a total nameplate capacity of 4,181,200 kilowatts, an increase of 241,700 kilowatts capacity over the fiscal year 1951 figure. The capacity installed during fiscal year 1952 is as follows:
Kilowatts
Boulder Canyon project-----------------------------------------------132, 500
Missouri River Basin project------------------------------------------ 1, 200
Grand Coulee project-------------------------------------------------108> 000
Total_____________________1___________________________________ 241, 700
Power plants operated by other agencies, principally water users’ organizations, on Reclamation projects totaled 16, of which 9 were originally constructed by the Bureau. These nine plants have an installed capacity of 30,827 kilowatts; the seven other plants constructed by the water users’ organizations have an installed capacity of 72,500 kilowatts.
Additional Capacity Under Construction
At the end of fiscal year 1952, the Bureau of Reclamation had under construction 14 new power plants, which will have an ultimate installed nameplate capacity of 842,050 kilowatts.
New projects under construction will include the power facilities of Kenil, Little Porcupine, and Tiber power plants, with a combined
226396—53----5
60 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
capacity of 21,600 kilowatts, in Montana on the Missouri River Basin project; Chandler, with a capacity of 12,000 kilowatts in Washington on the Yakima project; Gateway and Wanship, with a combined capacity of 8,400 kilowatts on the Weber Basin project in Utah. The United States Army Corps of Engineers is proceeding with the construction of its plants on the Missouri River Basin project. The Bureau of Reclamation will be the marketing agent for energy generated by all plants constructed by the Corps on the Missouri River Basin project.
Authorized to bo constructed by the Bureau of Reclamation as of June 30, 1952, are 22 power plants, with a total capacity of 869,300 kilowatts.
The status of hydroelectric power plants on Reclamation projects is shown in table 10.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 61
TABLE 10—Hydroelectric plants on Reclamation projects, operating, under construction, or authorized, as of June 30, 1952
CONSTRUCTED AND OPERATED BY BUREAU OF RECLAMATION
o . s-j c? O qO
See footnotes at encl of table.
62 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 10— Hydroelectric plants on Reclamation projects, operating, under construction, or authorized, as of June 30,1952—Continued CONSTRUCTED AND OPERATED BY WATER USERS ORGANIZATIONS
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 63
UNDER CONSTRUCTION BY CORPS OF ENGINEERS, DEPARTMENT OF THE ARMY; POWER TO BE MARKETED BY BUREAU OF RECLAMATION
64 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 65
Transmission Lines
By June 30, 1952, the Bureau of Reclamation .had 6,418.1 miles of high-voltage transmission lines in operation. It was accomplished by the completion of construction and placing in operation 856.14 miles of line and dismantling 18.84 miles of line during fiscal year 1952. Transmission lines placed in operation during the fiscal year are shown in table 11.
TABLE 11—Transmission lines completed during fiscal year 1952
Project and line Voltage Completed Length
Kilovolts Miles
Minidoka (Idaho): Albion line to Weeks substation Central Valley (California): Tracy substation to Ygnacio sub- 34. 5 May 1952 .. 1.00
69 November 1951 19.42
station. Davis Dam (Arizona-California): Gila substation to Wellton to Mohawk. Rio Grande (New Mexico): 34.5 September 1951.— December 1951 21.10
Socorro substation to Belen substation 115 40.87
Belen substation to Albuquerque substation Belen substation to Willard substation _ _ _ _ _ 115 _ do. 35.80
115 June 1952 _ _ 53. 00
Kendrick (Wyoming): April 1952
Seminoe power plant to Sinclair substation 115 28.16
Sinclair substation to Rawlins substation _ _ _ 34.5 do __ .. 9.93
TTanna substation to Sinclair substation 34.5 . do . 34.88
Colorado-Big Thompson (Colorado): September 1951 November 1951
Kremmling Tap to Oak Creek substation__ _ _ _ _ 115 50. 34
Gore Junction to Muddy Pass substation _ 69 21.31
Missouri River Basin:
Leeds substation to Rolla substation _ - 69 July 1952.. _ _ 42.56
Voltaire to Rugby substation _ 115 April 1952 55.94
Rugby substation to Devils Lake substation 115 do 58.76
Devils Dake, substation to Carrington substation 115 .do _ _ 52. 47
Jamestown substation to Edgelev substation 115 do 37.35
Havre substation to Shelby substation . . 115 April 1951 _ _ 98. 60
Alcova power plant to Boysen power plant to Thermopolis. 115 January 1952 118. 70
Sidnev substation to Ogallala substation to Julesburg _ _ 115 December 1951 75.93
Total - - -- - - -- - - - - - - 856.14
Construction was continuing on approximately 2,500 miles of transmission lines at the end of fiscal year 1952. A great number of these lines are scheduled to be placed in operation during fiscal year 1953.
Power Contracts
During fiscal year 1952, 130 contracts for delivery of power were executed. Included among these are 22 contracts with private utilities, 53 contracts with REA cooperatives, 11 with municipalities, 26 with other Federal agencies, 4 with irrigation districts, 4 with public power districts, 2 with State authorities, and 8 miscellaneous-type contracts. Fourteen of the 26 contracts with other Federal agencies were contracts with various Department of Defense agencies throughout the western area of the United States. A number of contracts executed were renewals of operating contracts or revisions of existing contracts resulting from changed operating conditions.
66 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Bureau continued its policy of contracting whenever possible with private utilities and cooperatives for wheeling power and energy over existing facilities. The Bureau also entered into several interchange agreements with cooperatives and utilities. In the Bureau’s region 5 area, which covers Texas, New Mexico, and part of southern Colorado, the Bureau is actively negotiating and has executed several contracts for the sale of supplemental power and energy to augment its hydroelectric generation in the area.
A summary by classification of customers served by Reclamation during 1952 is shown in table 12.
TABLE 12—Summary by classification of customers for 12 months ending June 30,1952 1
Type of customers Number of customers Sales of electric energy Revenue from sales of electric energy
Privately owned utilities _ 38 Kilowatt-hours 5,362, 740,094 $15,853, 605
Municipal utilities 34 2, 703, 332, 827 5,067, 015
State government utilities 10 1, 817, 401, 794 5, 749,957
Cooperative utilities (Rural Electrification Administration projects) ... _ ... 90 352,101, 701 2, 243, 072
Other Federal utilities . 4 14,181, 279, 769 11, 519, 802
Residential and domestic _ 445 4,880, 598 30,132
Rural (other than Rural Electrification Administration projects) ._ _ ... .. . .. 8 86, 696 765
Commercial and industrial _ _ _ 34 74,141,731 436,345
Public authorities ... 66 715,044,115 2,099, 079
Interdepartmental ... 46 121,194, 985 310, 263
Total all customers 775 25,332, 204, 310 43,310,035
1 Does not include energy sales and revenues in transactions between Bureau projects.
The Bureau of Reclamation at the end of fiscal year 1952 has 431 contracts under negotiation. In this number are included 192 contracts with municipalities, 131 with REA cooperatives, 32 with private utilities, 29 with public-power districts, 21 with other Federal agencies, 10 with State authorities, 7- with irrigation districts, and 9 miscellaneous-type contracts. A number of these are to renew existing contracts or to revise contracts in existence due to changes in operating conditions. A large number of contracts under negotiation are for future power deliveries at such time as additional generating capacity now under construction is placed in operation. Seventeen of the 21 contracts with other Federal agencies are contracts with various agencies within the Department of Defense.
PROJECT PLANNING
The project-planning program of the Bureau of Reclamation provides for the planning of basin and project developments for utilization of the water resources of the West and of Alaska. Except in the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 67
area in the Missouri River Basin project, the activities in the projectplanning program are financed with appropriations for general investigations. Recent appropriations for general investigations have been less than the amounts requested in the President’s budgets. The size of the appropriations has varied in amount from year to year. Consequently, the program also has been fluctuating in size, whereas it is in the interest of economy and efficiency that the investigation program be kept upon a substantially constant rate basis.
There have been outstanding increases in the population in the West and in Alaska during and since World War II which have aggravated deficiencies in water and electric-power supplies in these regions. In certain areas heavy defense installations have caused new and large demands for additional power and municipal and industrial water, so that the needs for investigations of potential water and power developments are increasing. As a result, there is constant demand from local and State interests throughout the West to continue investigations in progress or to initiate new investigations, or to resume uncompleted investigations deferred because of lack of funds.
The needs for planning are critical throughout the West and Alaska. In the Pacific Northwest, the Bureau’s current construction program for development of water and related resources consists almost entirely of the Palisades project and the irrigation features of the Columbia Basin project. The construction of Hungry Horse Dam is nearing completion. Aside from these, the Bureau has no authorized projects other than the relatively small Kennewick Division of the Yakima project and portions of the Minidoka project. - In California the initial features of the Central Valley project are practically completed, and construction is continuing on the Folsom Power Plant. In this area, only the Sly Park and Sacremento River canal units, and the Solano project remain authorized for construction. In the entire Colorado River and inland basins, some very small items are under construction, and only the Deer Creek Power Plant, the Weber Basin project, and a few miscellaneous minor items are authorized for construction. In the Southwest, which also is practically without a construction program, the only projects eligible for construction without authorization or reauthorization are the Middle Rio Grande and the Canadian River projects. Thus it is clear that the investigation program is barely keeping ahead of the present reduced construction program, and any further curtailment of the investigation program is sure to have adverse repercussions in the character and size of the future construction programs which are of such great importance in the development of water and related resources of the West.
68 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The general investigation program should proceed undiminished even during times of national stress, as at present, because of the long-range aspects of the program. It requires considerable time to make adequate investigations, and maintenance of an adequate program of investigations is essential to insure the availability of projects for construction in future years. Many of the projects being investigated are needed now, and others will be needed in the future to maintain the essential civilian economy.
Comprehensive River Basin Surveys
During fiscal year 1952 the Bureau of Reclamation has continued the Arkansas, White, and Red River Basin investigations in cooperation with the other interested Federal agencies under the field committee established by the Federal Interagency River Basin Committee on June 12,1950.
The report on the survey of the Washita River, Okla., a subbasin of the Red River Basin, was completed, reviewed by the affected States and Federal agencies, and transmitted to the President.
The Bureau has under way a number of other basin surveys of western streams.
New Projects Authorized
The report on the Deer Creek Power Plant, Deer Creek division, Provo River project, Utah, was completed and was forwarded to the President by the Secretary with a finding of feasibility authorizing the project under Reclamation law.
Other Project PlanningfReports
The reports on the Collbran project in Colorado were submitted to the Congress and were printed as House Document 216, Eighty-second Congress. Reports on the Hells Canyon division and the Scriver Creek power facilities of the Mountain Home division of the Snake River project, Idaho and Oregon, were submitted to the Congress by the Secretary in fiscal year 1952 with recommendations for authorizations of the projects by Congress. Bills were introduced in Congress to authorize these projects, and hearings were held in fiscal year 1952. The bill to authorize the Collbran project was passed by both Houses at the end of the fiscal year and transmitted to the President for signature.
A reconnaissance report on the potential development of the water resources in the Territory of Alaska was submitted to the Congress
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 69
in July 1951, and is being printed as House Document 197, Eighty-second Congress.
Reports on the Central Valley project (ultimate plan), Kings River division, North Fork Kings unit; Deschutes project, Oregon, domestic water system; Fryingpan-Arkansas project, Colorado (formerly called Gunnison-Arkansas project, Roaring Fork diversion, initial development) ; and lower Nueces River project, Texas, after review by the affected States and Federal agencies, were forwarded to the President.
Reports on the following eight projects were completed and were under review by the affected States and Federal agencies at the end of fiscal year 1952:
Boise Project, Idaho, Payette division, Payette Heights unit
Canton project, Oklahoma
Central Valley project (ultimate plan), California, Sacramento River division, Sacramento canal unit, Trinity River division
Fort Gibson project, Oklahoma
North Platte project, Nebraska, Braziel Dam and Reservoir
Swan Lake project, Alaska
River Compacts
Interstate-compact activity during fiscal year 1952 was somewhat less than in the previous year. The Bureau of Reclamation continued to give assistance in every way practical to the State and Federal representatives on those compacts in the active stage.
Congressional approval was obtained for the compacts covering the Canadian River in New Mexico, Oklahoma, and Texas, and the Yellowstone River in Montana, North Dakota, and Wyoming, which were ratified by the appropriate State legislatures last year. There was no activity during the year on the Cheyenne River Compact, negotiations for which were completed, but ratification by the Wyoming legislature not obtained. There was little activity on the Bear River Compact.
Congressional approval was obtained for Texas and Louisiana to negotiate a compact on the Sabine and Neches Rivers, and Col. L. W. Prentiss, of the Corps of Engineers, was appointed as Federal representative. The Bureau of Reclamation is interested in this stream because of possible water service to the Coastal Plain to the west. Legislation was passed by the Congress at the close of the year, and Presidential approval has since been given, permitting Idaho, Montana, Oregon, Washington, and Wyoming to enter negotiations toward a compact for the Columbia River and its tributaries.
An interstate suit was brought by Texas against New Mexico in the Supreme Court to require compliance by New Mexico with terms of
70 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the Rio Grande Compact. This matter vitally affects the Bureau s Rio Grande project in New Mexico-Texas, below Elephant Butte Reservoir, and the Bureau’s Middle Rio Grande project above the reservoir.
Hydrology
Hydrologic studies are vital to the planning and operation of irrigation, hydroelectric power, flood-control or drainage works. During fiscal year 1952 the impounding of 1,000,000 acre-feet of water, on schedule, behind Hungry Horse Dam in Montana, while still under construction, serves as an example of applied hydrology.
Some basic hydrologic studies being conducted by the Bureau of Reclamation include investigations of observed flood peaks and water yield, porosity, and infiltration and retention capacities of soils, meteorology of rainstorms, transportation and deposition of sediment, behavior of ground water, and characteristics of snow. The results of these studies are used to determine the required reservoir and spillway capacities, and the flood frequencies, and for flow forecasting and general operational purposes. Other studies include special surveys and the development, testing, and improvement of methods of utilizing basic data for more precise determination of required capacities. Among these were extensive infiltration surveys made in Wyoming and Montana. Uncertainty regarding the required capacities of reservoirs and spillways may result in overdesign for safety, and infiltration tests provide better information for eliminating some of these uncertainties. A new procedure for computing the daily discharge resulting from snowmelt, based on daily maximum temperatures, is being developed and has already been given a limited application. In general, studies of improved methods are of great importance because the improved procedures will allow greater safety and probably will result in reduced construction costs.
Hydrologic studies of streams in the western United States were continued for the purpose of obtaining the maximum possible beneficial use of the waters of the West for irrigation, power, municipal and industrial uses, fish and wildlife conservation, stream-pollution abatement, recreation, and other incidental uses. In order to improve the bases for its technical work, the Bureau of Reclamation has compiled data and is making studies of the use of water on Federal irrigation projects, and a report on these studies will be issued in fiscal year 1953, which recommends a course of action for improving estimates of water requirements. Other research and special studies were conducted as a basis for solution of the unusual problems accompanying water-resource development.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 71
Collaboration was intensified with the Corps of Engineers and the Weather Bureau upon data-reporting networks. This includes intimate details of hydrologic studies aimed at advanced precision in reservoir and river regulation by the expanding facilities of the Missouri River Basin project. A radio-reporting stream-flow network in the Pecos River drainage basin in New Mexico was activated in cooperation with the Geological Survey. A series of tests weie conducted on an experimental radio-transmitting rain and snow gage m the Sacramento River drainage basin below Shasta Dam. The groundwork is being laid for future reservoir and river regulation of the complex system developing in the Columbia River drainage basin, through detailed consideration of hydrologic data-reporting networks. These illustrate the advancements in the hydrology of operation of reservoir and river systems.
The second progress report, covering the 1949 snowmelt season, on studies of snowmelt in the headwaters of the Colorado River was distributed. These studies were conducted in collaboration with the Forest Service.
Detailed evaporation field investigations which were conducted in cooperation with the United States Navy Electronics Laboratory, the Geological Survey, and the Weather Bureau at Lake Hefner, near Oklahoma City, Okla., were terminated at the end of August 1951, and much of the equipment used on these studies was transferred to Lake Mead for use in making a more accurate determination of the evaporation loss from Lake Mead.
International Stream Investigations
The Bureau has continued investigations on development of water resources on international streams on the border of the United States and Canada.
The Canadian Section of the International Joint Commission presented to the United States Section a draft of a proposed treaty for apportionment between the two countries of the waters of the Waterton and Belly Rivers in Montana and Alberta. The United States Section, through its engineering board, field committee, and the State of Montana, took the Canadian proposal under consideration.
Definite-Plan Reports
Project-planning feasibility reports made to secure authorization of a potential project present a comprehensive plan for orderly development and conservation of the water and related resources, with sufficient data and studies to determine probable engineering
72 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
and financial feasibility to a degree sufficient to enable recommendation for or against proceeding with the potential development. Considerable detailed studies and exploratory work usually remains to be done following this stage before sufficient data are available to start the preparation of final designs and specifications. Therefore, following the authorization of a project, there is need for a report on the additional studies, including investigations and negotiations consummated prior to construction that are required to determine the definite plan of development for the project. Such a report, known as the definite-plan report, is prepared for internal or administrative use on the whole project, or for a unit of the project, depending on the size and complexity of the plans for development of the project.
Definite-plan reports were prepared, reviewed, and approved for the following projects or units in fiscal year 1952:
Gila project, Arizona, Wellton-Mohawk division.
Hungry Horse project, Montana.
Kendrick project, Wyoming, Alcova power plant.
Missouri River Basin project, Frenchman-Cambridge division, Nebraska.
Drafts of several other definite-plan reports were under review at the end of the fiscal year.
Artificial Precipitation and Salt-Water Conversion
Legislative action on artificial precipitation and salt-water conversion progressed considerably during the second session of the Eighty-second Congress. The two subjects were considered individually, and two new bills (S. 2225 and H. R. 6578) on artificial precipitation and salt-water conversion, respectively, were acted upon. S. 2225 was passed by the Senate and was under consideration by the Interstate and Foreign Commerce Committee of the House when the session ended. The Bureau has been represented on the departmental committee on artificial precipitation and has continued to keep abreast of developments in this field of interest to Reclamation.
H. R. 6578 was passed by both Houses in the closing days of the fiscal year and was sent to the President for signature on June 30, 1952. The bill provides for the Secretary of the Interior to conduct a program of research and development to evolve more economical methods of saline-water conversion, the majority of the technical work to be conducted by private organizations. Provision is also made for participation and cooperation by other civil and military agencies of the Federal Government. The bill authorizes the expenditure of $2,000,000 over a period of 5 years to finance the program.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 73
PROGRAMS AND FINANCE
New Accounting Systems
With the substantial completion of the conversion to the new accounting system at hand, as fiscal year 1952 began, the chief efforts of the system’s personnel during the fiscal year were focused on improvements and refinements in techniques dictated by experience with the new system and certain qualifications contained in the Comptroller General’s approval of the system dated October 6, 1950. Continuous attention was directed to maintain the modern and utility recognized practices as applied to Government accounting and to provide management at the various administrative levels in the Bureau with operational data readily available in the accounts for improved administration of work.
Accounting techniques for depreciation were accorded special consideration, and procedures applicable to revenue-producing property of the Bureau were formulated during the fiscal year and tested in pilot installations. Formal adoption of these procedures in finance offices of the Bureau was made effective July 1, 1952. The Bureau’s procedures conform to the depreciation concepts promulgated by the Federal Power Commission and will result in financial statements comparable with those of public-service corporations.
The Bureau of Reclamation has a twofold objective in properly estimating and accounting for depreciation. First, in accordance with the Bureau’s continuing policy of adopting sound business practices, it is necessary that the Bureau’s statements of financial operations reflect the real cost of rendering service (including depreciation as an expense) rather than reflect only out-of-pocket costs which exclude depreciation as a current expense. Secondly, that the maintenance accounts include only those costs which neither materially add to the value of the property nor appreciably prolong its life, but merely keep it in efficient operating condition, thus enabling administrators to make reasonable comparisons of such costs from year to year.
In order to improve the power-accounting methods of the Bureau, reviews were made in the applicable finance offices to determine the extent of uniformity of the data yielded. In addition, the poweraccounting methods and techniques were compared with modern utility-accounting practices. This has resulted in the preparation of cost data which enable the Bureau’s administrators to compare the results of operation among power projects and also with that of private utilities in their respective areas.
The increasing attention being given by the Congress to the cost of operation of the various offices of the Bureau, particularly the cost
74 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
of administrative and general expenses (and personal services as a segment of these expenses), caused the launching of a monthly cost report during the fiscal year on these matters. Each finance office prepares a report from the accounting records which contains prescribed detail accounts to accumulate the data. It is contemplated that the managerial personnel of the Bureau will utilize the information in the reports to obtain necessary data for appraising staffing and operational costs of the activities and offices under their jurisdiction. In addition, the source of financing for defraying the expenses of their various endeavors will also be revealed in the reports. In assembling the reports from the various offices of the Bureau, the regional offices and the Commissioner’s office, at their respective levels, are provided ready data for comparing the operating burden in the different areas. Generally, it is expected that reporting of this type will prove a dynamic instrument in aiding the managerial employees of the Bureau to reduce operating costs or improve the effectiveness of controlling them.
In conformance with the emphasis on streamlining the accounting operations of the Federal Government, the on-site audit program of the GAO was expanded in geographical scope during the fiscal year, and effective January 1, 1952, all finance offices of the Bureau were encompassed under it. The Bureau has received reports from the General Accounting Office resulting from the on-site audit of finance offices prior to January 1. These reports were carefully studied by the responsible administrators for appropriate action. In the main the reports disclosed that the accounts of the offices audited are being maintained in a satisfactory condition.
Manualization of Procedures
A factor in the effectiveness of the Bureau’s Finance Manual is the manner in which its provisions are kept current with changing regulations prescribed by the Treasury Department, General Accounting Office, Bureau of the Budget, and the Congress. During this fiscal year numerous revisions were made in the manual based on promulgations of these bodies of the Government. In addition, the systems personnel directed their efforts toward self-designed changes and improvements in the manualized procedures resulting from experience gained in actual practice in finance offices and from finance conferences and joint studies conducted by members of the Washington and field staffs.
In the 4 years existence of the new accounting system of the Bureau, many inquiries have been received from individual offices seeking interpretations of the procedures covering special transactions. Hence, in order to coordinate the interpretations and obtain uniform
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 75
treatment under similar circumstances, the Bureau’s Finance Manual is undergoing expansion to incorporate an appendix covering these interpretations. This is another step on the part of the Bureau to conform its accounting and financial practices to those recognized by the various public regulatory commissions, such as Federal Power Commission, which have prescribed uniform systems of accounts.
During the 50 years of the Bureau’s existence voluminous files of accounting records and financial documents have been accumulated. The disposition of the accounting material is being approached with careful planning and an eye to probable future need of old records and documents for sundry research and analytical purposes. The first step taken has been to determine the condition of the files and the extent to which these copies can be isolated for disposal. The General Accounting Office and the General Services Administration have approved for use by the Bureau of one Federal Records Center in Denver for all records and documents. Also, the General Accounting Office is instituting a procedure whereby the Bureau will be formally notified of the completion of on-site audits and thereafter the finance offices can proceed with established regulations for retaining and disposing of accounting documents.
The uniformity and standardization expected from a manual are the functions of how the procedures are applied by operating personnel. In full cognizance of this fact regional programs and finance conferences were continued during the fiscal year. These symposiums have produced healthy interest in the Bureau’s procedures and have promoted uniformity in the application of programing, budgeting, accounting, and reporting procedures. The practice broadens the perspective of operating personnel with respect to the purposes of the Bureau’s manual and permits these employees to appraise the effectiveness of programs and finance beyond the immediate microcosm of the working detail in their offices. This has encouraged self-analysis and has resulted in a marked improvement in the data contained in financial statements and reports. In recognition of these developments the monthly reporting has been considerably simplified and less analysis and review work is required.
Machine accounting was further expanded during the fiscal year to encompass several more finance offices. The benefits anticipated from bookkeeping machines in prior installations have materialized into significant savings in the accounting operation.
Program Procedures
By the beginning of the fiscal year, detailed procedures for the estimating and scheduling of the Bureau’s activities had been formal-
226396—53----6
76 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
ized and. placed in use throughout the field offices. Particular attention was devoted to the problem of uniform interpretation and application of those procedures as well as the clarification of points of ambiguity and misunderstandings of the instructions. Substantial progress was made in solving this problem primarily by the visit of Washington office personnel to the field offices and the detail of regional personnel to the Washington office.
During the fiscal year particular attention was also devoted to the problem of improving the realism and accuracy of both the estimating of costs and the scheduling of flag actions.
Much greater emphasis and attention was paid to apportionments of funds than in previous years. This additional workload resulted from the use by the Bureau of the Budget of the apportionment procedures as a means of controlling the Bureau of Reclamation’s program in accordance with Presidential policies and criteria. This necessitated closer review and coordination with, both the programming and accounting docuinents.
The only major change in programing procedure was to provide for the identification on the operation and maintenance schedules of the cost of operating multipurpose facilities with an allocation of those costs to all applicable project functions, both reimbursable and nonreimbursable.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 77
See footnotes at end of table.
78 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13—Schedule of public works construction programs—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 79
See footnotes at end of table.
80 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13.—Schedule of public works construction programs—Continued
3
A
a
c3
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 81
See footnotes at end of table.
82 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13—Schedule of public works construction programs—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 83
Estimated obligations
84
☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13—Schedule of public works construction'programs—Continued
Balance to complete or projects not scheduled (16) TJ co OS s of 6WTU_‘f__ oq co cT O a a z 259,000 13,125, 000 2,809,394,672 5, 938, 000 00 00 CO s" CO 12,090, 683 2, 821, 485,355
1959 (15) $165,920,495 1,766,666 s GO cc O' O' r 7, 616, 666 214,319,358 15, 208, 000 2,274,400 17,482,400 231,801,758 |
1958 (14) o 00 GO iQ 00 581,548 927,236 i, 766,666 8 00 o-T 00 252,916,957 26, 640,184 2,104, 000 3, 895, 000 32, 639,184 285,556,141
obligations 1957 (13) $205,862,556 6, 578,889 1,897,000 p S cr 12,939,000 oc oT 00 (M ir 321,997,417 c W oc c 5, 725, 000 2, 045,130 2, 446, 248 35,003,878 357,001,295 |
Estimated 1956 (12) $236,724,273 15,348,088 1, 697, 542 oc CC O 1,550,000 cc o 8,800,000 g 11,856,000 2.144.985 a cc 391,055,613 1, 300,000 4, 760, 000 2, 939,000 2,475,000 21,638,000 | 412,693,613
1955 (11) $201,086,445 20,338, 000 137, 606 oc r co 2, 608, 000 220, 807 2,089,981 1,109,287 551,371 12,249 13,165,091 27, 715 153, 794 409,038 12,787,126 4. 720. 744 1,067,062 331,097,400 C 446, 000 2, 505, 000 8,198, 000 2,375,000 15,024,000 346,121,400 I
1954 (10) S 94,757,400 17.926.000 10,022 50, 000 404, 949 2,995,000 545. 500 1, 635,000 9,877, 950 215, 000 61.938 c o o a 52, 000 403,000 1,472,000 6,776,874 4,289, 200 893, 656 255,872,032 800,000 112, 000 853. 000 1,765,000 J 257,637,032 |
1953 (9) $64,512,476 1.000 9,922,183 170.000 2,313,000 2,648, 802 139,008 666,273 4,956,500 261,955 638,062 664. 022 3,000, 000 40,220 355, 687 656,195 1,350,000 1, 500,000 35.040 217,497,036 2,526,889 2,526,889 220,023,925
Name andjocation of project (1-2) 1. authorized pkojects—continued B. Continuing divisions or projects—Continued Mirage Flats. Nebr Missouri River Basin, various Ochoco, Oreg _ Palisades, Idaho-Wyo Paonia, Colo Pine River. Colo Provo River, Utah Rehabilitation and betterment, various Rio Grande, Elephant Butte power. New Mexico-Texas Riverton. Wyo San Diego. Calif San Luis Valley, Colo : Savage Rapids Dam. Oreg Shoshone. Wyo Solano, Calif Sun River. Greenfields. Mont Tucumcari. N. Mex 5* .6 *E> E > Weber Basin, Utah Yakima-Kennewick. Wash Yakima-Roza, Wash Subtotals, continuing divisions or projects C. New divisions or projects: Canadian River. Tex Carlsbad-Alamogordo Dam, N. Mex 1 Collbran. Colo Middle Rio Grande, N. Mex Minidoka-American Falls power. Idaho Subtotal, new divisions or projects Total, authorized divisions and projects 1
ANNUAL REPORT Or BUREAUS AND OFFICES ☆ 85
MISSOURI RIVER BASIN
r
86 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13.—Schedule of public works construction programs—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 87
§§§§§§§ i § SSSS is i is sssss iss i§ issis §11
siBisn § sMIs 8 ffiff iff if iffff g'
cgcr^g^odcf 1 £ is M fa SK83- i*- 8 s’
sssssss i g ssis is 1 S3 SSSSS isSSSisSBS s
§§§§>§ i f s§t§ if I ff sssss §
S5-^S S i i” J2 r—< S2SSN* i ” -- §
§§§§§§§ i i ssis is 1 is issssssssssSiii s
§§§f§W i f ffiff g 11 i§§§§§^88888S8§
8 i §' &8" i co c-hVn" Htirt t-T tf
ggggg igg § ssssss 1 S3 silssss islsssss s
iWf iff SWM-’W ff g£s>ss issssssg f
a 8- i8- g 88 - S 5 8 i- - 8
SSSSS iss § ssisss i is issSsi i isssss is %
ffs'ff iff I ffiW s if ssssss i isssss i8 i
in r- r-< £ 88 - 3 co o' s
sss ilss § :*ff g
§§ ;§§§ i
ff i§w g
8
§ i§§ ;§§ ■§§§
S i£8 :S- isss
s §
f £
88
☆
ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 13—Schedule of public works construction programs—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 89
TABLE 14.—Schedule of irrigation and power
usands) Esti- 105a mated iyoy addi- tional 11.3 149. 9 24. 7 12.3 1.3 40. 0 585. 0
(in tho 1958 11 । ! ! । । ! । । । । । । .1 । । । । । । 100 ! ! ! ! 0 ! ! * ! ! ! i : i i ; i : i
-Acres 1957 ! ! !!!!!!!!!!!!!!!!!!! !c©iq ! ! ! !o ! ! ! ! !oo ! ; : ; i i i : : i : ! ; i i : is : : : i i“5'*
i 3 s ! 1 I ! ! 1 1 ! ! । । ! । । । । । ! । । i ! cm co । ! i !0 ! ! ! ! ! 0 0 ; ; : ii'iii i i s : i : 11 . 1 ! ■ ■ 1 H > • • >
o s s II 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 IHCD lO । lO Illi !OO i i i i i; i i i i i i i i i i i i^ ii i s i i i i
i 1 ! ! 0 ! ! ! ! ! I ! ! । ! ! ! ! । । । ! >0 00 cm ! 0 ! ! 0 ! ! ! ! ! ! i i i i i i i i i 23^’ § i is i i i
f § ! ! co ! ! । ! । । ! । । । । ! । । ! । । ! loco !o ! !o ! ! 1 ! ! ! i i - i i i i i i i i i i i i i i i i i i i-s is i is i i i i i i i • • 1 1 1 1 1 .11111111 1 II 1 1 1 1 1 1 1
chedule 1 Existing 6-30-52 COO CO O OO i io 1 i 1 100 i 1 Ijt^ ICO i i iCOr-i lO 1 lO ! ! !ocm 1 ! SB HS I i i iS : ; M id i i ig : is 1 : ;8S i i : : : : ; : : : : : : : : ; : : : : : : ;
S Type
sands) Estimated additional i i i i i i i i i i i i i i i i
1 1
'atts (ii 1958 i !• i i i i i i i i i § i i i i i i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1
-Kilow 1957 ; i ! । ; i i io ; ! ; o ! ! ; i i ! i i i i i i i S ! i i g i i i i I i
I | § i i i i i i i i i i i ; i i i i : 1 i i i i i i i i i i i i i i i i i i
f i ! । । । । । । । । । । iq ! ! ! ! ! ! i i i i i i i i i i i K i i i i I i
1 1
ale of 1 1953 i coiiiiiioiiiio!!!!! i 4 i j i । 1 ‘ 1 i i i 8 1J I H
Sfched: Existing 6-30-52 182.4 24.4 27.0 1,167. 3 454.0 74.7 } 1,974. 0 225.0 1.5
Name and location of project 1. AUTMUK1ZED PROJECTS A. 56 completed projects and divisions B. Continuing divisions or projects: All-American Canal, Ariz.-Calif Austin, W. C., Okla Boise-Anderson Ranch, Idaho Boise-Arrowrock Dam, Idaho Boise drainage, Idaho Boise-Payette, Idaho Boulder Canyon, Ariz.-Nev ... Buffalo Rapids, First division, Mont Buffalo Rapids, Second division, Mont. Cachuma, Calif Central Valley, Calif Colorado-Big Thompson, Colo Colorado River Front Work and Levee System, Ariz.-Calif.-Nev Columbia Basin, Wash Davis Dam, Ariz.-Nev Deschutes—North unit, Oreg Eden, Wyo
90 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
41 U2 U2 U2 02 U2 U2 U2 U2 02 02 02 U2 UJ UJ U2 UJ UJ ua UJ
TABLE 14—Schedule of irrigation and power development—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 91
226396—53---7
92 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 14.—Schedule of irrigation and power development—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 93
94 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 14.—Schedule of irrigation and power development—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 95
! ! 1 loj 1 ' 1 00 O 0 0'0 i i O O 1 O CM 1 1 1 00 H, iCoX 1 i i ico ! ! । i i CM O II CM CO CO 00 i i i i i i i i CO b- । i i “’’§8 i i i i i i i i®S i II CO r-1 r-4 llllllll 1
! : : irf i II CO 00 1111 ii i i o o i • 1.0 1.0 II 1 1 1 1 1 1 I f 1 1 ii i i i i i i i i i i i© o II 1 1 1 1 1 1 1 1 1 1 . ii i i i i i i i t i i O CO
; 1 17.0 22.7 ii i । o o । । 1.0 9.0 ii i i i i i i i i i i i II 1 I 1 1 1 1 1 1 1 I 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 I
II II Illi ii i i i i o । ; ; <=> ■ •; II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 II 1111(1111'11 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 I 1
II 1 1 11 Illi II 1 1 II Illi i i i i i iX 11^1 II II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 t II 1 1 1 1 1 1 1 1 I 1 1 II 1 1 1 1 1 1 1 1 1 1 1
i i i i i i II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 I 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 I 1
i i i i i i II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 i i i i i i i i i i i i i
i i i i i : i : II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 I 1 1 1 1 1 1 1 i i i i i i i i i i i i i
; ; ; ; ; ; I 1 II Illi I i i I I i i i II 1 1 1 1 1 1 i i i i i i II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1 II 1 1 1 1 1 1 1 1 1 1 1
5«2 JZJCQ
i i i 540.0 1,030.0 380.0 380.0 770.0 350.0 1,120.0 o o o o o * H
; : i 324.0 831. 5 ■ i • i s i i ~ i i i i i i i i
: s : 216.0 234.0 । i i i i i i
i : i 1 1 II 1 III 1 1 1 1 1 III i i i i i i i ; .. ; i ; : ! :
: i ; i i I i i i i i i i
i i i i i i i i i i i i i i ! i i
i ; ; 1 II III i i i i i i i i i i i i i i
i i ; : : i i ! i i i i Xi Xi i i i i i i i i i i i i ; i ; : ; ;
Foster Creek project, Wash Michaud Flats project, Idaho Rathdrum Prairie project, Idaho rnlnmbio ■Rocin Wook • HT'hiV/l Vllilll MIC* puvjvvv, »»C*OU.. XJ.U1U | powerhouse, Grand Coulee Dam. Total, region 1 Region 2: Divisions and units of Central Valley project (ultimate plan), Calif Santa Maria project, Calif Total, region 2 Region 3: Central Arizona project, Ariz.-N. Mex. Dixie project, Utah Fort Mohave project, Nev iviarme u any on project, Ariz Total, region 3 Region 4: Bear River project, Utah-Idaho KJ UlUJCCb, ID bail lllllbiai Phase) • Colorado River storage project: Green division: Echo Park unit, Colo.-Utah Flaming Gorge unit, Utah-Wyo Middle River division: Glen Canyon unit, Ariz.-Utah San Juan division: Navajo unit, N. Mex.-Colo Florida project, Colo Fruitgrowers Dam project extension, Colo
96 ☆ annual report of the secretary of the interior
TABLE 14.—Schedule of irrigation and power development—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 97
98 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Appropriations
The Bureau of Reclamation’s regular and supplemental appropriations for fiscal year 1952 amounted to $234,408,522, a decrease of $37,-135,478 under fiscal year 1951. With the unobligated balance of $34,145,355 from the previous year, the money available for Reclamation totaled $268,553,877.
The unobligated funds at the end of fiscal year 1952 totaled $49.5 million. This unobligated balance resulted principally from the shortage of materials needed for the construction of power facilities and unanticipated delays in executing repayment contracts of which some are pending validation by the courts.
Another factor having a bearing on the unobligated balance was the limitation on the amount that could be expended for personal services which was placed on each of the four main appropriations of the Bureau.
Obligations for fiscal year 1952 totaled $217.6 million or 86.5 percent of the obligations programmed in 1952, as compared with 90.4 percent of the obligation program accomplished in fiscal year 1951.
In addition to the personal services limitation previously mentioned, the 1952 Appropriation Act imposed certain other restrictions on the Bureau, one of which prohibited the initiation of construction of transmission facilities in areas covered by power wheeling contracts unless the power company in such an area was unable or unwilling to construct them.
The limitation on the amount of money which may be used for performance of work by Government forces (force account work), first imposed upon the Bureau in 1949 Appropriation Act, was included again in the 1952 Appropriation Act. The 1952 act carried the same, limitation as appeared in the 1951 and 1950 Appropriation Acts, viz, not to exceed 12 percent of the allotment for any one project with a maximum of $225,000 to be used on any one project or unit of Missouri River Basin.
A limitation of $150,000 in the general administrative expenses appropriation was imposed upon expenditures for information work in 1952. This is the same limitation as appeared in the 1951 and 1950 acts.
The amount appropriated, including all suppiementals for fiscal year 1952 for each activity, together with the amount to be derived from the special and general funds, was as follows:
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 99
TABLE 15.—Condensed statement of appropriations, fiscal year 1952, exclusive of trust funds
• Amount appropriated
General investigations________________________________________ $4, 500, 000
Reclamation fund_________________________________________ (3, 810, 000)
Colorado River Dam fund: Colorado River development fund_ (500, 000)
General fund_____________________________________________ (190, 000)
Construction and rehabilitation_______________________________ 208, 052, 725
Reclamation fund---------------------------------------- (29,257,650)
General fund____________________________________________ (178,795,075)
Operation and maintenance_____________________________________ 15,977,594
Reclamation fund_________________________________________ (12,476,944)
Colorado River Dam fund__________________________________ (1,671,000)
General fund_____________________________________________ (1,829,650)
General administrative expenses_______________________________ 5, 478, 203
Reclamation fund_________________________________________ (5, 478, 203)
Emergency fund_____________.__________________________________ 400, 000
Reclamation fund_________________________________________ (400,000)
Grand total__________________________________________ 234,408, 522
Reclamation fund____________________________________________ (51,422,797)
Colorado River Dam fund______________________________________ (2,171,000)
General fund_______________________________________________ (180,814,725)
Reports
During fiscal year 1952, collection and compilation of the Bureau’s basic statistical data on allotments and appropriations from 1902 through 1952, by projects and activities, by years, by funds, by functions and by States was practically completed, together with pertinent data on investments, costs, revenues, funds, and related items. This information has been assembled for publication in 1953 in the form of a statistical appendix to the Secretary’s annual report for administrative use.
Refinements were incorporated in the Bureau’s basic summary cost and progress report including the establishment of “total cost” common base relating programs to accounts and reporting thereon. Monthly reporting on year-end estimates of unobligated funds was supplemented with monthly reporting of year-end estimates of unliquidated obligations; the combination of both representing estimates of year-end unexpended funds for budget and, programing purposes.
In addition to providing for all official reports on employment, a system was installed for carrying out the Jensen and Ferguson amendments of the 1952 Appropriation Act which placed limitations on personnel and personal services. From July 1, 1951, to June 30, 1952, total employment dropped from 16,836 to 14,037. Upon expiration of these limitations at the year-end, the Commissioner’s personnel ceiling was reinstated for fiscal year 1953 to serve the same purposes in a more practical manner. The personnel roster which lists all personnel of the Bureau by name, title, grade and salary was coded to show function, post of duty, and organizational unit of each
100 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
employee for use in conjunction with both the Commissioner’s personnel ceiling and the administrative and general expenses reports.
Program Briefs, a monthly summary of narrative high-light comments on construction accomplishments by projects and MRB units, was introduced in 1952 to keep top officials promptly informed on conditions, particularly where their assistance is required, and will be expanded in 1953 to include all other Reclamation activities.
Processing of the administrative and general expenses reports was undertaken in late 1952. These reports, which replace the activity and object expenditures report in effect 1950 through 1952, provide management with adequate monthly information or organization, positions, employment, personal services, and other expenditures. Coupled with the coded personnel roster, these reports will be used for improving the efficiency,'of Bureau operations during 1953.
The Washington Report, a biweekly periodical on newsworthy items and Bureau policies as expressed at the Commissioner’s staff, conferences, met its schedule in 1952 and will be continued in 1953;. the monthly Programs and Finance Division report likewise. Federal Power Commission FPC No. 1 reports on power projects were filed in accordance with instructions. For 1953 these (1952) reports will be prepared to conform to the Bureau’s accounting system, currently reflecting multipurpose plant and will be limited essentially to power data details. The consolidated operating statement of Bureau of Reclamation power system is scheduled for publication early in 1953 covering fiscal year 1952.
A specaial publication program for 1953 was undertaken in late 1952 consisting of printed supplements to Bureau of Reclamation Appropriation Acts and Allotments and Bureau of Reclamation Project Feasibilities and Authorizations; a new edition of How Reclamation Pays; a revised edition of The Reclamation Program (for 1953-59), and the Statistical Appendix. In each instance published data will be up to date of June 30, 1952.
Serving as a center for clearing statistical data, various releases of the Bureau were checked and data compiled for numerous inquiries of Members of the Congress and to meet requests of other agencies and the public for information.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 101
TABLE 16.—Appropriations from Reclamation and other funds, fiscal years 1902-1952
Fiscal year Reclamation fund General fund Colorado River dam fund Emergency relief funds 1 2 Permanent appropriations Total
Regular 1 Power revenue Regular Colorado River FW and LS
1902 s $165, 000 (3)
1903 3 5, 950,000 (3 4)
1904 318^ 440^ 000 3 $2, 000,000
1905 3 8^ 758^ 000 (3)
1906 3 27, 494, 961 3 15, 363, 800
1907 3*43,569,161 (3)
1907 3 18,176,161 3 18, 051,161
1908 o>, 562,038 9', 562; 038
1909 9, 180’, 700 9; 180; 700
1910 8' 183^ 300 8,183,300
1911 26' 896,790 26; 896', 790
1912 _ 8^ 262' 367 8, 262, 367
1913 8,300, 508 8; 300', 508
1914 15’ 93E 922 15, 931,922
1915 1 261,411 1, 26i; 411
1916 13' 530^ 000 13, 530,000
1917 8, 887, 557 $15,666 8, 902; 557
19J8 8^ 227^ 000 310,213 8, 537, 213
1919 9,397,081 443,196 9; 840; 277
1920 7', 300j 000 548; 927 7,848,927
1921 8^ 463,000 661,177 9,124; 177
1922 20i 266,000 335, 871 20; 60i; 871
1923 14' 800^ 000 559, 530 15; 359; 530
1924 13^800,000 31< 067 14,114, 067
1925 - Hi 890' 809 li; 890; 809
1926 12', 563, 240 $50,000 12, 613', 240
1927 7, 436^ 320 40,000 35,000 7; 51i; 320
1928 12; 148; 800 15,000 35,000 12,198; 800
1929 14', 138; 400 $190,000 15,000 100,000 14, 443, 400
1930 8, 253; 000 390; 000 10, 660,000 100,000 19,403,000
1931 9; 087,000 395, 000 100,000 9; 582; 000
1932 . 6, 971', 000 300,000 25, 000, 000 100,000 32,371,000
1933 2,442, 288 375, 000 13,050, 000 15, 867,288
1934 3, 003; 000 405, 000 8,000,000 48, 000 $103, 535,000 114,991,000
1935 ' 860; 750 316, 000 34; 076', 000 35, 252, 750
1936 1,022; 100 366,000 15,900, 000 50,000 25 438; 000 42, 776,100
1937 12, 028; 600 316,000 34, 850,000 $350,000 4 4, 873, 000 42, 671, 600
1938 11,991,600 331, 000 30,655,000 15,000 500,000 37,047, 500 $1,100, 000 81, 640; 100
1939 10, 574, 600 366,000 32, 980,000 15,000 500,000 4 2, 502, 488 4, 600,000 46,533,112
1940 13, 269, 600 606, 000 64, 200,000 15, 000 575, 000 28,347 5, 700, 000 84, 393,947
1941 9, 429,600 571,000 63, 750, 000 15,000 768,000 4 124,300 6, 600, 000 81,009, 300
1942._ 7', 446, 600 664, 400 94', 245,031 50,000 1,000,000 4 19, 961 2, 600,000 105; 986; 070
1943 2, 651,060 956, 900 86,628, 565 47,895 1, 379, 250 4 1,131 2, 600, 000 94,262; 539
1944 2,422, 500 2,091,975 35, 578,000 75,000 1, 443,100 4 72, 709 5, 669, 468 47, 207, 334
1945 5, 321, 000 2, 328, 800 17, 734,200 340,000 2, 200,000 4 22,332 5, 282, 501 33,184,169
1946 34, 089, 290 2, 528, 600 82, 858, 000 612, 500 2, 550, 000 4, 491,718 127; 130; 108
1947. 36, 315, 968 3, 284, 245 75; 931,805 100,000 1,814, 330 4 30, 396 4, 806; 879 122; 222; 831
1948 20,127, 250 5, 549, 500 115, 420, 288 2,088, 000 5, 545, 400 148' 730; 438
1949. _ 29, 952, 663 6, 999, 601 226, 801, 503 2, 450,000 4; 693; 475 270,897, 242
1950 35', 447, 705 9, 327, 097 311,434,175 2,123,100 8,034, 825 366, 366 902
1951 46; 917, 365 222,453, 635 2, 308; 000 5; 650; 514 277,329, 514
1952 . .. 5i; 422, 347 180; 665,175 2,171,000 e; 505; 000 240, 763', 522
Total.. 646, 889, 090 38, 658,118 1, 752, 053, 358 ■ 903,395 24, 219, 780 192,478, 530 73,879, 780 2, 730, 082, 051 1 1
1 Prior to fiscal year 1916 funds were made available from the Reclamation fund by allotment authorized by the Secretary of the Interior. .
2 Emergency relief funds include allocations from NIRA, PWA, and ERA funds.
s Allotments made prior to Fallon, Nev., conference on July 27, 1907, were canceled and summary allot ments issued. Original amounts excluded from total column.
4 Credit.
102 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 17— The Reclamation fund, 1951-53, funds available for appropriation
Actual 1951 Actual 1952 Estimated 1953
Unappropriated balance brought forward (as of June 30) Accretions and collections: Bureau of Reclamation, .100, _ $32,136, 457 $40, 828, 300 $74, 719,171
8, 893, 499 17, 929, 996 29, 417, 040 11,322, 621 22, 952, 820 43, 453,149
Other agencies, .200, - - .. —
Reclamation fund, power revenues, .300 Total accretions and collections ... Total available for appropriation ___ _
56, 240, 535 77, 728, 590 —
88, 376, 992 398,154 6,575 2, 309,137 118, 556, 890 150, 000 10, 088 5, 208, 981 2, 535, 735 3, 810, 000 29, 257, 650 12, 476, 494 5, 478, 203 400, 000
Less: Appropriated for refund of revenue collections Appropriated for Farmers irrigation district, North Platte project, Nebraska _ _ . __ . —
Add: Lapsed appropriations Return of F. Y. 1951 appropriations, sec. 1214. _
Deduct appropriation or estimate for— General investigations _ 5,116, 000 25,135, 700 12, 001, 400 7, 200, 000
Construction and rehabilitation Operation and maintenance —
General administrative expenses Emergency fund .
Total appropriation or estimate._ _ _
49. 453,100 51, 422, 347
Balance carried forward - ■ ,
40, 828, 300 ■ 74, 719,171 —
TABLE 18.—Accretions to Reclamation fund by States, fiscal year 1952
State Sale of public land Proceeds from Oil Leasing Act Total to June 30, 1952
Fiscal year 1952 To June 30, 1952 Fiscal year 1952 To June 30, 1952
Alabama $4, 372. 65 $1, 881. 07 $200, 973. 42 $205, 346. 07
Arizona _ _ _ __ $19, 099. 93 2, 898, 985. 62 59, 784. 44 135; 348. 46 3, 034, 334. 08
Arkansas _ _ _ _ _ _ 216. 30 2, 999. 38 2, 999.38
California 416, 918. 89 9,257, 951.19 4, 053,138. 07 47, 286, 639. 65 56, 544', 590. 84
Colorado 88, 580. 08 10, 640, 358. 69 3,156, 044.14 13, 273, 939. 30 23, 914, 297. 99
Florida _ _ 15. 75 141. 75 141. 75
Idaho . _ 113, 483.13 7, 408, 029. 29 59, 699.11 306, 338. 98 7, 714, 368. 27
Illinois 10. 50 31. 50 31. 50
Kansas 26. 78 1, 039, 932. 91 57, 603. 69 211, 093. 06 1,251, 025. 97
Louisiana _ 22, 323.17 446, 940.17 446, 940.17
Michigan _ _ 950. 01 12, 045. 99 12, 045. 99
Mississippi __ 924. 65 4, 573. 75 4, 573. 75
Montana 72, 465. 93 15. 694, 931. 66 801, 281. 72 5, 963, 685.91 21, 658, 617. 57
Nebraska __ 1, 994. 70 2,158, 545. 64 1, 025. 06 7, 833. 86 2,166, 379. 50
Nevada 11, 908. 22 1,117, 828. 04 249, 522. 90 703, 785. 23 1, 821, 613.27
New Mexico 38, 222. 56 6, 957, 440. 46 3,119, 319.39 18, 963, 715. 08 25, 921,155. 54
North Dakota.. 16, 410. 45 12, 262, 399. 99 60,153.23 462, 954. 93 12, 725, 354. 92
Oklahoma _ 9, 929. 69 5, 961, 000. 91 29, 240. 08 118. 608. 67 6, 079, 609. 58
Oregon . 600, 345. 72 13,195, 111. 41 7, 547. 62 18. 098. 08 13, 213, 209. 49
South Dakota 6,150. 70 7, 753,219. 75 16,189. 00 113, 863.28 7, 867, 083. 03
Utah 50, 712. 95 4, 590, 957. 09 1, 437, 966. 28 4, 981, 002. 06 9, 571, 959.15
Washington. _ 183, 915. 93 8, 058, 289. 27 1,176.30 51, 603. 66 8,109, 892. 93
Wyoming 35, 540. 81 9,144, 315. 02 6, 952, 767.24 74, 752,613. 85 83, 896. 928. 87
Total.. 1. 665. 706.47 118,143, 669. 59 20, 088, 779. 72 168, 018, 830. 02 286,162, 499. 61
1 1, 282, 714. 92
’ 5, 585. 762.16
Receipts from Naval petroleum reserves, 1920-38, act of May 9, 1938 29, 778, 300.23
Proceeds from rights-6f-way over withdrawn lands, act of July 19,1919— ’ 10, 978. 25
4 51, 898. 02
Town lot sales - __ ___ _ _ _ _ __ « 724, 645. 77
Timber sales and other miscellaneous items « 191, 223.33
323, 788, 022. 29
Grand total
i Proceeds for fiscal year-------------------x.------------------------------------------- $116,817.42
’’Proceeds for fiscal year________________________________________________________________ 1, 027, 542.16
’’-Proceeds for fiscal year______________________________________;------------------------ 427. 61
4 Proceeds for fiscal year________________________________________________________________ 19, 917. 63
’’Proceeds for fiseal year________________________________________________________________ 1,100. 04
’.Proceeds for fiscal year________________________________________________________________ 32, 528. 60
Total.
1.198. 333. 46
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 103
TABLE 19.—Cost of plant, property and equipment as of June 30,1952
mgry
104 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE 19—Cost of plant, property and equipment as of June 30,1952—Continued
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 105
106 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
COMPTROLLER
The Office of Comptroller has effectively discharged its delegated functions for unbiased evaluation of the financial affairs of the Bureau. For the fiscal year 1952 the Comptroller has completed more assignments, rendered more reports, and covered a greater diversity of financial review than in any year since the office was founded. The audit performance has been consistently such as to elicit expressions of confidence and commendation from those in a position to make a professional appraisal.
A total of 88 reports were issued by the Comptroller covering (1) comprehensive project audits, (2) varied special audits dealing with selective segments of the project accounts and operations, (3) water users’ organizations, (4) surveys to ascertain compliance with prior audit and survey findings, and (5) review of data requisite for amendatory repayment contract negotiations.
During the year the comprehensive surveys by the Division of Audits of the General Accounting Office have been expanded to provide total Bureau coverage. In order to eliminate to the greatest extent practicable the tendencies of overlap as between our audit staff and that of General Accounting Office and to effect greater efficiency otherwise, the Office of Comptroller has a plan in the development stage, the design of which proposes to provide:
1. The maximum precaution with respect to overlapping of assignments ;
2. Audit coverage in more detail and with greater currency;
3. Insure remedial action on internal disclosures; and,
4. The improvement of the reporting system to afford more effective presentation to top management, and to insure more frequent and rapid reporting.
In addition to the audit activity the Office of Comptroller continued to discharge its functions of financial policy and review in matters of repayment contracts, analyses of rate schedules, municipal finance and management, interagency agreements, external audit and investigational reports and legislation.
In summary, the Comptroller has effectively operated its small staff to insure adequate and comprehensive audit coverage of Bureau projects and ably discharged his function as financial adviser of the Bureau.
LEGISLATION
The fiscal year 1952 can record but few enactments by the Congress of bills to carry forward the Reclamation program. No Reclamation
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 107
projects were authorized for construction by the Congress during the year.
Two river compacts negotiated by the various affected States were consented to by the Congress. The consent of the Congress to the Yellowstone River Compact among the States of Montana, North Dakota, and Wyoming was granted by the act of October 30, 1951 (Public Law 231, 82d Cong.). In connection with the plan of this Department for improvements in the Yellowstone River Basin, as set forth in our Missouri River Basin plan, it is believed that the Yellowstone River Compact is an important step toward the harmonious realization of the contemplated developments. The second compact concerns the waters of. the Canadian River and was negotiated by the States of Oklahoma, Texas, and New Mexico. The consent of the Congress to this compact was necessary before construction may be initiated on the proposed Canadian River project, Texas.
The act of March 6, 1952 (.Public Law 273, 82d Cong.), is of importance to the Bureau of Reclamation in connection with the orderly administration of the amendatory repayment contract program. That act continues until December 31, 1954, the authority of the Secretary to negotiate with water users’ organizations amendments to repayment contracts and other form of obligations which had been entered into prior to August 4, 1939. Also, it continues until that time the authority of the Secretary to grant deferments of construction charges in certain circumstances.
During the fiscal year five more amendatory repayment contracts, negotiated pursuant to section 7 of the Reclamation Project Act of 1939, were authorized by the Congress to be signed by the Secretary. The contracts authorized to be executed by the Secretary on behalf of the United States by the act of June 23, 1952 (Public Law 402, 82d Cong.), concerned water users on the Owyhee, Riverton, Milk River, and Frenchtown Federal reclamation projects.
The act of March 5, 1952 (Public Law 269, 82d Cong.), removed the requirement in section 3 of the act of September 27,1950 (64 Stat. 1072), that the organization contracting with the United States for the return of the. reimbursable cost of the Vermejo project have the power to tax personal property. However, the organization must have the power to tax real property.
Notwithstanding the recommendations of the Department of the Interior, the Congress, by the act of June 27, 1952, removed the application of the excess-land provisions of the Federal reclamation laws to certain lands in the San Luis Valley project, Colorado.
At the close of the fiscal year the following bills were in the final stages of enactment by the Congress or were before the President for his approval:
226396—53----8
108 ☆ annual report of the secretary of the interior
H. R. 2813: To authorize the Secretary of the Interior to construct, operate, and maintain the Collbran Reclamation project, Colorado.
H. R. 6578: To provide for research into and development of practical means for the economical production, from sea or other saline waters, of water suitable for agricultural, industrial, municipal, and other beneficial consumptive uses.
H. R. 6163: To provide for authorization of a study and report of irrigation works in connection with Chief Joseph Dam.
H. R. 6723: To authorize the execution of certain amendatory repayment contracts negotiated pursuant to section 7 of the Reclamation Project Act of 1939.
S. 3333: To authorize the acquisition of certain lands of the Shoshone and Arapaho Indian Tribes of the Wind River Reservation needed for the construction and operation and maintenance of the Boysen unit of the Missouri River Basin project.
Litigation
Work in connection with litigation affecting the Bureau of Reclamation appeared to reach an all-time high during the fiscal year 1952. Attorneys of the Bureau participated in such litigation, as amici curiae, by filing briefs and making oral argument, and by assisting attorneys of the Department of Justice in the conduct of trials and in the preparation and review of legal briefs, arguments, and stipulations.
The following actions pending before various courts at the close of the fiscal year 1951 were brought to a conclusion during the fiscal year 1952:
1. In connection with the action JFzZZ Gill v. The United States, and three related cases in the Court of Claims, a settlement was approved by all the parties and judgment was entered providing for payment of approximately $195,900 to the plaintiffs. These actions involved water rights of owners of land located along the San Joaquin River between Gravelly Ford and Mendota Pool, Central Valley project, California.
2. Judgments were entered in accordance with a stipulation in the action W. F. Brush v. The United States, and sixteen related cases, in the Court of Claims. These actions involved the water rights of owners along the San Joaquin River below the mouth of the Merced River, Central Valley project, California. The sum of the judgment plus interest amounted to approximately $250,000.
3. In regard to the attempt on the part of the objectors to obtain an injunction restraining the Board of Directors of the Kansas Bostwick Irrigation District for proceeding with the confirmation proceeding of its repayment contract with the United States, the Kansas Supreme Court handed down a decision to the effect that the contract
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 109
should be confirmed. After confirmation of the contract by the lower court, the parties opposing the confirmation served notice of an appeal to the United States Supreme Court. That court denied the appeal on the grounds that no Federal question was involved.
Actions pending before judicial tribunals at the close of the fiscal year 1951, but which were not concluded during the fiscal year 1952, include the following:
1. Everett G. Rank v. Julius A. Krug, No. 685-ND, United States District Court for the Southern District of California. This is a purported class action filed in 1947 to enjoin certain named Federal officials in the operation of Friant Dam and Reservoir, Central Valley project, California. During the early part of the fiscal year 1952, the plaintiffs filed an amended complaint and a motion for a preliminary injunction which, if granted, would have required the defendants to make substantial release of water from Friant Dam down the San Joaquin River and would have seriously interfered with the operation of the project Hearings on this motion were held in Fresno, Calif. On August 4, with the consent of defendants, a temporary restraining order was made by the court providing for the release of 2,000 cubic feet per second of water from Friant Dam until certain channelization and pump rectification work was accomplished .by the defendants. This work was immediately undertaken, and reduction in releases were made. Further hearings were held and a new order was made by the court allowing further reductions in the amount of water released on condition that certain specified work be performed along the 37 miles of river below Friant Dam. The court also ordered that proposed plans for a physical solution be submitted by the parties and that the merits of the case would be tried on January 19, 1952. Pretrial hearings were held and proposed plans were submitted by the plaintiffs, the State of California, and the Bureau. The trial was reset to begin on January 29,1952. The trial has been in session since that date and has continued into the fiscal year 1953.
2. Hollister Land and Cattle Co. v. Krug, No. 680-ND, United States District Court for the Southern District of California, is an action brought by a purported class composed of all owners of land within the boundaries of the Grass Lands Water Association, an area of approximately 106,000 acres lying below Mendota Pool. A motion for a preliminary injunction was filed July 27, 1951, coincident with a similar motion in Rank v. Krug. Hearings on this motion were held in Fresno concurrent with the Rank v. Krug hearings. On August 29, in court, the Bureau offered the plaintiffs a contract for delivery of project water under which the plaintiffs would ultimately pay only for that water to which they were not legally entitled.
110 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Because of this offer the court refused to issue any temporary injunction and set the case for hearing on the merits at the same time as Rank v. Krug. This offer was not accepted by the plaintiffs. A pretrial hearing was held on December 20, 1952, and the court entered an order that further hearings in this case would not be held until the hearing on the merits in Rank v. Krug vtas concluded.
3. Also pending in the United States District Court for the Southern District of California are 11 inverse condemnation proceedings brought by owners of land in the Friant to Gravelly Ford area. These cases are numbered 670-ND to 679-ND and 682-ND. The plaintiffs are members of the purported class action in Rank v. Krug, and the cases have been taken off the calendar until that case is concluded.
4. Pacific Gas and Electric Company v. United States, No. 47972, filed in the Court of Claims, involves claims of the plaintiff company for a taking of a proposed steam-plant site in the Friant to Gravelly Ford area. It is anticipated that hearings will be held before a commissioner in the near future.
5. Cotton Land Company et al. v. United States, No. 46422, filed in the United States Court of Claims in April 1945, was an action seeking to recover $890,596 for alleged flood damages to plaintiff’s lands as a result of the construction and operation of Parker Dam, Parker Dam project. Following the court’s decision of January 5, 1948, holding the Government liable, and the court commissioner’s supplemental report filed May 29, 1951, plaintiff’s attorneys submitted an offer of compromise settlement on July 30, 1951, which was under consideration during the balance of that year. Negotiations resulted in the filing of a stipulation for judgment and contract of settlement, in which plaintiffs agreed to convey to the United States approximately 1,675 acres of land, and to accept $82,264.33, plus interest at 4 percent per annum from December 15, 1951, in full settlement of all their claims, of which amount the Metropolitan water district of southern California agreed to pay 60 percent. Judgment pursuant to the stipulation was entered in February 1952.
6. A report of the special master, and proposed finding of fact, conclusions of law, and decree were filed in the case of the United States v. Alpine Land Ac Reservoir Company, pending in the District Court of the United States for the District of Nevada. This suit was instituted to determine the priority and extent of water rights of the United States acquired for the Newlands project on the Car-son River, California and Nevada. Motions have been filed by various litigants to reopen the case for the taking of additional testimony and for intervention. An effort is being made to stipulate a decree, and the court has granted extensions of time for the filing of
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 111
objections to the proposed findings of fact, conclusions of law, and decree pending negotiations for a settlement.
7. The action United States v. Sierra Valley Water Company was filed in the District Court of the United States for the Northern District of California, northern division, to enjoin excessive diversions of water of the Little Truckee River in violation of the water rights of the United States acquired for the Newlands project, Nevada. The case is at issue and ready for trial. However, negotiations for settlement and for a stipulated decree are pending.
Among other actions pending before the courts at the close of the fiscal year are the following:
1. Ivanhoe Irrigation District v. AU Parties and Persons, No. 39627, filed in the Superior Court of the State of California, in and for the county of Tulare, which is a proceeding for validation of the waterservice and distribution-system construction contract between the district and the United States. Hearings on demurrers by objectors to the contract continued through 1951. After a trial of the facts in April 1951, the court asked for submission of briefs. Oral arguments were made and final memoranda were filed at the close of the fiscal year 1952.
2. Madera Irrigation District v. AU Parties and Persons, No. 8502, filed in the Superior Court of the State of California, in and for the county of Madera, which is a proceeding for validation of the water-. service and distribution-system construction contract between the district and the United States. It is similar to Ivanhoe proceeding, but has additional complexities arising from the fact that excess landowners in the district claim vested rights to project water by virtue of the district’s former ownership of certain lands and water rights. Hearings were held and briefs were filed.
3. United States of America, petitioner v. Federal Power Commission, Pacific Gas and Electric Company, and Fresno Irrigation District, for itself and as trustee for others, No. 13265’, filed in the United States Court of Appeals for the Ninth Circuit, is an action requesting review by the Circuit Court of the proceedings had before the Federal Power Commission on application of the Pacific Gas & Electric Co., for license to develop power sites on the North Fork and main stem of the Kings River, and a similar application by the Fresno irrigation district et al. for a preliminary permit. Case should come on for argument late in 1952.
4. The action United States v. Coachella Valley County ~Water District, No. 14047-HW Civil, filed April 25, 1952, in the United States District Court for the Southern District of California, central division (Los Angeles), seeks a declaratory judgment as to certain rights and obligations of plaintiff and defendant under their contract of
112 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
December 22, 1947, for construction of the lateral distribution system and other works, Coachella division, All-American Canal system. Defendant filed its answer May 31,1952. On June 30, the case was set over to July 7, 1952, for pretrial hearing on factual matters put in issue by defendant’s answer.
5. The action Hudspeth County and Reclamation District No. 1 v. Howard E. Robbins et al. (regional director, region 5, Bureau of Reclamation), in the United States District Court for the Western District of Texas, El Paso division, is a suit for declaratory judgment to establish Hudspeth district water rights and to enjoin offices of the United States from impounding and diverting certain waters allegedly belonging to the district. The defendants’ motion to dismiss was overruled by the court shortly after the close of the fiscal year 1952.
6. The case of State of New Mexico and City of Truth or Consequences v. Labon Backer et al. (an officer of the Bureau), is a suit to enjoin defendants from draining Elephant Butte Lake. After removal of the case from the State court to the United States District Court for New Mexico, the suit was dismissed. An appeal was taken to the Court of Appeals, where the case was pending at the close of the fiscal year.
Various other actions affecting the Bureau of Reclamation were settled, continued, or filed during the fiscal year, including condemnation cases and tort and contract claims.
MANAGEMENT PLANNING
In collaboration with the regions and central-office divisions and offices, continued effort was made to identify specific problems in the operations, methods, and management of Reclamation activities. These problems were scheduled and attacked by the field and headquarters staffs, and a number of important solutions were developed and placed in operation. In compliance with the President’s management-improvement program, this effort will be continued to improve operations and management throughout the organization.
The office participated in a Bureau-wide program to train and assist supervisory personnel at all levels in discharging their responsibility to provide adequate guidance to subordinate staffs, the objective being to promote and develop the ability of supervisors and employees to do their work correctly and avoid subsequent extensive revisions.
Self-appraisal methods developed last year were applied with good success and will be extended. Under this plan, each regional staff division reviews regularly and with management participation the activities under its jurisdiction at each operating office in the region. In addition to guiding the operating employees in the application
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 113
of principles and techniques, the regional and management staffs become better acquainted with basic problems confronting the operating offices and the Bureau in the execution of programed functions and activities.
Substantial progress was made in the development of Bureau-wide methods for determining the ratio of employees to given workloads in selected Bureau activities. With further improvement, these methods of determining personnel requirements will be of great value as workloads shift within regions or between regions, and as Bureau programs increase or decrease by reason of congressional action.
During the past year emphasis has been placed on improving and consolidating the content of the Reclamation Manual, which now includes all continuing instructions for the guidance of employees in executing the Reclamation program. The demand for the Reclamation Manual and related management reports and documents continued particularly among universities and foreign governments.
Under the incentive-award system, wide participation among employees was achieved with consequent benefits both to the Bureau and to the employees who developed the improvements in operations and methods. The increased interest in the program was due largely to the decentralization of award authority to the field level, thus permitting prompt action upon employee proposals for procedural and other improvements.
The office initiated a system to provide standardized organization charting and functional descriptions throughout the Bureau, with corresponding automatic staffing data for the headquarters and regional staffs.
Through the review of reports and forms, particularly at the regional level, operations were improved through the consolidation or elimination of like or similar reports and forms and through the revision of the procedures relating to their use.
PERSONNEL
The general policy of “no new starts” created a problem of possible large-scale force reductions in certain areas, while limited recruitment, mostly at a lower grade, was necessary in others. Turn-over was high, the Bureau having a total of 16,595 full-time employees at the beginning of the year and 13,846 at the closing. This turn-over, coupled with aggressive internal placement activities, enabled us to avoid the demoralizing effects of large-scale reductions in force and to come within the money limitations for personal services; at the same time, it presented many problems of employee utilization, adjustment, reorganization, and consolidation of functions incident to the gradual shrinking of an organization of the Bureau’s size.
114 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
No particular difficulty was encountered in the comparatively small amount of recruitment done at all levels during the fiscal year. However, serious difficulties are now being encountered in recruiting engineers at the GS-5 and GS-7 levels.
Management-training activities progressed satisfactorily, with (1) participation by six Bureau employees in the departmental management-training program; (2) continuation, on a limited scale, of the administrative and accountant-trainee program; (3) completion of six formal sessions of supervisory training for 100 top- and middlelevel supervisors on the Columbia Basin project; and (4) definite plans made to launch a series of suggestion sheets on management. Rotation of GS-5 and GS-7 engineers was extended to three of the seven regions. The Central Board of Civil Service Examiners announced four open, continuous examinations, received 1,321 applications, rated 848 eligible, and recorded 371 appointments. We maintained contact with engineering colleges throughout the United States to facilitate employment of graduates and undergraduates.
Labor-management negotiations arriving at mutually satisfactory hourly rates of pay and working conditions were successfully carried out for the Columbia Basin project. A collective-bargaining agreement with the Colorado River Power Trades Council, representing all ungraded employees at the Parker Dam power project and the Davis Dam project, was executed in December 1951. Negotiations are presently under way for the development of similar agreements at the Central Valley project in regions 6 and 7. Authority was delegated to regional directors and the chief of personnel, field division, to approve wage rates for ungraded employees. This has resulted in more prompt alinement of the Bureau’s wage schedules with local prevailing rates.
A plan for personnel management review and improvement was formulated and a successful “trial run” conducted in one district. The plan provides for measuring the effectiveness of the personnel program in terms of actual operating practices and offers an avenue for employee participation in the development or modification of management policies. It will have Bureau-wide application in fiscal year 1953.
The tempo of the Bureau’s position classification program, including an over-all review of position allocations, was conditioned by the availability of trained technicians and funds, the need to coordinate with the Department and the Civil Service Commission, and the Bureau-wide support of management. Contacts with field installations were continued. Work also continued in the review of proposed Civil Service position classification standards, and with various regional Civil Service classification audit teams which visited Bureau offices. The
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 115
foreign-activities program added substantially to the workload, and a similar effect was realized by the consolidation of wage administration with the classification function in the Washington office. Manual revisions were accomplished as required in order to reflect current policies, practices, and procedures.
Considerable work on staffing and ratios was done during the year. The personnel ratio of 1:115 contained in the Interior Appropriation Act of 1952 was administered in the Secretary’s office on a Departmentwide basis. The ratio was based on the number of employees engaged 50 percent or more of their time in personnel activities. This resulted in a reduction of personnel employees in some of our offices. A critical examination was made of all our personnel offices for achieving manpower conservation, our target being to achieve greater results with fewer people. At every level in our program the personnel staff devoted itself to assisting management in the establishment, development, and maintenance of a work force which would most effectively meet the Bureau’s operational needs. Forecasting staffing requirements and programing placement of available employees according to workload was1 again emphasized.
The Bureau’s safety program was continued and further intensified especially on organization and maintenance operations. Safety evaluations and inspections were performed on all Bureau operations. A program of safety education, by means of safety conferences, training courses, films, posters, and periodicals, was continued. Accidents were reduced 21 percent for Bureau employees and 6 percent on contract operations, as compared to the 1951 experience. The severity of accidents likewise reflected a decrease of 86 percent and 2 percent, respectively, during the same periods. The Federal employee-health program continued to operate in its pilot stage at the Denver Federal Center.
During the year 45 Bureau employees were assigned to duty in foreign countries under the President’s point 4 and TCA programs. Staff personnel officials from the Washington and Denver offices made several trips to regional and field offices to give on-the-spot guidance and assistance. On June 30, 1952, the Bureau had on the rolls 13,846 full-time employees, 11,172 of whom were under the Classification Act; 2,674 were under wage board; 7,266 were entitled to veterans’ preference; and 1,988 were women.
SUPPLY
Aircraft Operations
The Bureau of Reclamation maintained and operated a fleet of 8 aircraft consisting of 1 twin-engine, 10-passenger Lockheed Lodestar;
116 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
2 twin-engine, ,5-passenger Beechcrafts; 4 single-engine, 3-passenger Ryan Navions; and one Bell helicopter. This fleet of aircraft has proved very successful inasmuch as it was used to transport Bureau and departmental staff personnel to areas not generally served by commercial transportation. The Bell helicopter was used in connection with inspection of proposed transmission line rights-of-way, inspection of power lines, aerial photographic surveys of features of various Bureau projects, surveillance of floodwater conditions, and general reconnaissance work.
Procurement
As a whole, the Bureau has been able to obtain priorities and allotments of critical materials in accordance with construction needs. Trenton Dam’s Chicago, Burlington & Quincy Railroad relocation did suffer due to the inability to obtain steel at time it was required for construction. The Bureau is also unable to obtain nickel-bearing stainless steel which was most desirable for the turbine runners for the Flatiron Power Plant.
It is apparent that, due to the steel strike, shortages will exist to the effect that many of our projects will be unable to obtain material in accordance with our present construction schedule. It appears that plate steel and heavier structural shapes will be the most difficult to obtain.
The field Material Control Offices, which were established and given the responsibility of collecting and compiling current requirements for critical materials and preparing full and complete statements of essentiality as justifications for requests for allotments, have done an exceptionally fine job in presenting those requirements for issuing the allotments and priorities to suppliers and contractors.
Property Management
An intensive campaign was conducted to expedite disposal of all possible accumulations of metal scrap in view of the critical metal shortage. This program resulted in the return to trade channels, for reuse, of 1,575.4 tons of ferrous, and 117 tons of nonferrous scrap metals.
During the year excess and surplus usable personal property having an acquisition value of $1,022,917 was disposed of by sale and transfer; $317,668 was realized from the disposal of this property.
The work of further refinement and streamlining of our property accountability procedures and improvement of procedural instructions of property management manual was continued.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 117
Following receipt of Bureau of the Budget Circular A-45 and departmental regulations covering the subject of establishment of rates for quarters and utilities furnished employees, instructions in compliance therewith were issued, following which a program of complete review of all Bureau rates was begun late this fiscal year.
An appraisal of all Bureau housing will be involved as well as a study of rates charged commercially for comparable housing in adj acent communities.
Any changes in rental rates as a result of this review will be made effective within the first part of the following year.
Service Management
In the disposition of records, 56 new, revised, or extended Bureauwide schedules were issued which established standards for the retention and disposal of over 400 types of specifically described records.
Approximately 1,350 cubic feet of separated employee personnel status records were transferred to the custody of the Federal Records Center, St. Louis, Mo.
Considerable work has been imposed upon the Supply Division in performing supply services for the Office of Foreign Activities. This has been a rapidly expanding activity which has introduced unprecedented problems in furnishing the equipment and supplies and services needed by Bureau personnel on foreign missions.
REGIONAL REPORTS
Region I, Headquarters, Boise, Idaho
General Investigations.—The planning program for the region included work on 3 reconnaissance investigations, 3 basic surveys, 24 project investigations, 6 studies of existing projects, 4 advance planning studies, 5 studies classified as general engineering and research, plus special studies.
Final project investigation reports were made on the Payette Heights unit of the Boise project, Idaho; Savage Rapids Dam of the Grants Pass project, Oregon; Sequim project, Washington; and Goose Lake project, Oregon. A special report was prepared on the Rogue River Irrigation Association’s proposal for the Rogue River Basin development along with a reconnaissance report on the Okanogan River Basin, Wash.
A definite plan report on the Palisades project, Idaho-Wyoming, was submitted to the Commissioner, but was returned to the regional office for further revision.
118 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Special reports were also prepared on “Prediction of Snowmelt Floods Through Forecasted Temperatures” and on “Preliminary Studies of the Investigations of the Third Power Plant at Grand Coulee Dam, Columbia Basin Project, Washington.”
A water management officer was appointed to carry out the Bureau’s participation in the water management subcommittee of the Columbia Basin Inter-Agency Committee, and Bureau representatives continued to assist in developing an over-all operating plan. Engineering data was reviewed and summarized for the Interstate Compact Committee, which had been operating informally since 1950 but which Public Law 572, Eighty-second Congress, second session, now authorizes.
Construction.—As the Columbia Basin project entered its nineteenth year of construction, it was 58 percent completed. The total investment was $439,854,000 with $318,847,000 yet to be expended to complete facilities for irrigating the project’s 1,029,000 irrigable acres. The highlight of the year’s activities was the initial delivery of water to the first block of project lands. Arrival of the long-awaited water was marked by an 11-day celebration sponsored by the State of Washington. The ceremonies, particularly the “Farm-In-A-Day” (in which an 80-acre piece of sagebrush was in 1 day transformed into a fully developed farm, including a house and farm buildings) drew national attention.
Fiscal year 1952 was a testing year, in which water was made available for approximately 927 farms in 6 irrigation blocks. It was the beginning of a 7-year program, which is aimed at completing facilities for irrigating 500,000 acres or roughly one-half the project.
Among the major structures completed during the year were the Grand Coulee pumping plant, the second and third sections of the East Low Canal, spillway bucket repairs, and riverbank protection. At the end of the year contracts were let to build laterals and other project structures in blocks which will receive first irrigation water in 1954. Seven other contracts, covering laterals that will deliver first water in 1953, were nearing completion at the year’s end.
The second of the huge irrigation pumps was put into operation in July 1952 and two other units were close to completion at the end of the fiscal year.
Another significant event of the year was the completion of the last three of eighteen 108,000-kilowatt generators at Grand Coulee Dam, bringing the total installation to 1,974,000 kilowatts, largest in the world.
At the close of the fiscal year, Hungry Horse project was 86.5 percent complete on the basis of expenditures.
All major phases of construction at Hungry Horse continued on or ahead of schedule, with the first major project goal—1,000,000
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 119
acre-feet of usable storage in the reservoir—reached at year’s end. Hungry Horse powerhouse construction pointed toward first power delivery from the first and second 71,250-kilowatt generators on October 1 and December 1.
Concrete placement totaled more than 1,306,000 cubic yards, bringing the total yardage in place on July 1, 1952, to 2,865,000. The completed project will contain about 3,000,000 cubic yards of concrete. Mass placement was due to be completed in October 1952. The prime contract is expected to be completed by the end of fiscal year 1953, 5 months ahead of schedule.
First major construction work on Palisades Dam in eastern Idaho was started in June 1952 under a $29,180,346 prime contract. A contract for excavation of power and outlet tunnels, which will be used for diversion of the Snake River, was awarded the previous December. At the end of the year construction activities were gaining momentum, the prime contractor being engaged in constructing his camp, clearing, stripping of borrow and stockpile areas, building a bridge and haul roads, and relocating highway and Forest Service roads.
All principal features at Anderson Ranch Dam of the Boise project were completed. The second 13,500-kilowatt generator was placed in operation on July 25, 1951.
On the Payette division of the Boise project, emergency repairs were made on Black Canyon Dam, involving drilling drainage holes to reduce uplift pressures and construction of a concrete apron at the toe of the overflow spillway. In the Cascade Reservoir area, the relocated state highwTay was completed except for surfacing. Reservoir clearing continued with completion schedule for early fiscal year 1953.
On the Deschutes project, clearing of Wickiup Reservoir neared completion. Construction on the North Side pumping division of the Minidoka project, Idaho, was limited to completion of six observation wells to determine the effect of puniping on the water table. On the Roza division of the Yakima project, 2,000 feet of main canal was lined, and rehabilitation of Kachess Dam outlet works channel was completed. Rehabilitation of the spillway at Keechelus Dam is scheduled for early in fiscal year 1953.
Operation and maintenance.—Operation and maintenance activities in region 1 were highlighted by a record gross crop value and initial delivery of water to the Columbia Basin project.
Crops valued at $230,462,400 were produced in 1951 on 2,035,039 acres under cultivation in the region. The previous high gross of $225',235,236 was made in 1946. The average 1951 gross per acre return was $113.25.
Approximately 927 farms were ready to be served for the first time on the Columbia Basin project by summer 1952, and water became
120 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
available in 1951 to irrigate 120 new farms on the second unit of the Payette division, Boise project, and 144 on the Roza division, Yakima project. The latter two new land areas totaled 18,686 acres. Some 87,000 acres of land were to be served on the Columbia Basin project in 1952.
Five sales of Government-acquired land were held on the Columbia Basin project, making available 53 part-time farm units and 121 full-time units. The latter sales drew 12,022 applications. Farm unit layouts have been completed on 7,250 acres of irrigable lands to be opened to homesteading soon on the North Side pumping division, Minidoka project. This includes land currently under agricultural lease that is served by 11 wells and land which will be irrigated by five new wells authorized for construction in fiscal year 1953.
Creation of a fifth “development” farm on the Columbia Basin was begun. Cooperative settler assistance programs were continued in Oregon, Washington, and Montana in accordance with the Bureau’s policy of cooperating with land-grant colleges and universities. Amendatory repayment contracts were made effective with four irrigation districts of the Boise project (Boise-Kuna, Big Bend, Nampa-Mericlian, and Settlers). In addition, a contract was completed with the Okanogan district for rehabilitation work on Conconully Dam. Congress approved contracts with the Frenchtown and Owyhee proj -ects. Negotiations on amendatory contracts were continued with the Payette division of the Boise project, Roza division of the Yakima project, North unit, Deschutes project the Riverside district of the Boise project.
The New York irrigation district of the Boise project made final payment on its construction cost obligation on Arrowrock Dam in May 1952 and Sunnyside Valley irrigation district of the Yakima project completed pay-out of its obligation to the Government in June 1952.
Power.—The Bureau’s six hydroelectric plants in region 1 established a new record generation of 14,812,858,340 kilowatt-hours during the fiscal year. Gross revenues from power operations amounted to $12,324,321.
Grand Coulee Dam’s nameplate capacity was increased to 1,974,000 kilowatts with the installation of the last 108,000 kilowatt units of the presently authorized plant. A world’s record peak load of 2,226,000 kilowatts was carried in December 1951 and generation for the year was also a record—14,465,350,000 kilowatt-hours. A monthly world’s record was established in August—1,358,714,000 kilowatt-hours.
Installation of the second unit at Anderson Ranch Dam’s power plant in Idaho was completed. The unit is rated at 13,500 kilowatts.
ANNUAL REPORT OF BUREAUS AND OFFICES 121
Production from that plant, together with that from the 8,000-kilo-watt Black Canyon, 1,500-kilowatt Boise River, and 5,000-kilowatt Minidoka unit 7 plants, totaled 245,943,100 kilowatt-hours, and gross revenues totaled $703,055.
Gross revenues for the 8,400-kilowatt Minidoka 1—6 plant amounted to $459,093. This plant generated 76,100,300 kilowatt-hours. The 2,400-kilowatt Prosser plant of the Yakima project produced 25,465,450 kilowatt-hours to earn $62,172.
Region II, Headquarters, Sacramento, Calif.
General investigations .—Planning work continued on 6 basin surveys, 13 project investigations, one study of an existing project, and one advance planning study.
Regional director’s reports were completed on the Trinity River Division; Sacramento Canals unit, Sacramento River Division; North Fork Kings unit, Kings River Division; and Santa Maria project. Definite plan reports on Cachuma project, Klamath Straits unit, and Solano project were transmitted to the Commissioner. A fourth definite plan report covering the Sly Park unit was completed in draft form. Final investigation reports on Pine Flat Power unit, Kings River Division, and Clikapudi unit, Sacramento River Division, were scheduled for completion early in fiscal year 1953, proposed drafts having been finished in 1952.
In addition to these reports, work was accomplished on a variety of hydrologic, geologic, engineering, and economic investigations for the over-all Central Valley Basin and subdivisions, including Upper American River Basin; Feather River Basin; Black Butte unit, Stony Creek Division; Folsom Canals unit, American River Division; Upper San Joaquin Division; San Luis Division; and San Francisco Bay Division.
In the Klamath River Basin a comprehensive survey is continuing in which Reclamation is cooperating with the Fish and Wildlife Service and the Bureau of Indian Affairs, and a Butte Valley project investigation was started. A Santa Ynez Basin survey also is continuing.
A special study was prepared for inclusion in the report on drought conditions in the Southwest.
Substantial progress was made in 1952 in the following investigations with reports scheduled for completion in the 1953 fiscal year: Pajaro River Basin; Sacramento Canals power plant unit; Stony Gorge power unit; Union Valley unit, American River Division.
Construction.—The most significant accomplishment of the year in region 2 was the first integrated operation of the Central Valley
122 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
project made possible by completion of initial features of the Delta Cross Channel, Tracy pumping plant, Shasta-Tracy transmission line, and the final reach of the 117-mile-long Delta-Mendota canal.
On the CVP two sizable construction contracts were awarded during the year: for the 162,000-kilowatt Folsom power plant at $5,772,959 and for Nimbus Afterbay Dam and power plant of 13,500-kilowatt capacity at $6,067,353. Construction of Folsom power facilities is being closely coordinated with construction of Folsom Dam by the Corps of Engineers so that power generation may begin in fiscal year 1955.
In the Shasta-Keswick area construction activities during 1952 were limited to completion work. Construction of a road on the west side of Shasta Reservoir will proceed in fiscal year 1953 under terms of a contract between the Bureau and Shasta County.
The Columbia and Mowry pumping plants and delivery systems above Mendota-Pool were virtually completed at the close of the fiscal year.
Major attention during fiscal year 1952 centered on the construction of Friant-Kern canal distribution systems. The first unit has been finished for the Southern San Joaquin municipal utility district system and is in operation, with construction well along on the second and third units. The first and second units of the Lindmore irrigation district system are completed and in operation with work nearing completion on the third. The first unit for Exeter and the system for Lindsay-Strathmore are more than 80 percent complete, and construction is well under way on the Ivanhoe system. Plans and specifications have been prepared for Stone Corral and are under preparation for Saucelito, Delano-Earlimart, and Unit 2 of Exeter irrigation district. These are scheduled to be under construction in fiscal year 1953.
On the Cachuma project the Goleta section of South Coast conduit was completed and placed in interim operation utilizing water supply from Tecolote tunnel. At the end of the fiscal year construction of Lauro Dam was 72 percent complete; Tecolote tunnel was 80 percent excavated; Cachuma Dam was 62 percent complete with considerable amount of concrete placed in the spillway, and embankment placing being accelerated to complete closure before the next rainy season. When construction contracts are awarded in fiscal year 1953 for two regulating reservoirs and three lateral systems, the entire Cachuma project will be under construction.
New construction contracts were awarded during the fiscal year on Klamath project covering earthwork and structures in N canal area, Tule Lake sump, and outlet structure for pumping plant No. 6, 99 percent complete; and Lost River channel improvement, upper Langell Valley and W-l lateral, 24 percent complete; and pumping plants
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 123
R and S, 17 percent complete. Work on lower Lost River channel improvement and North Main dike being completed and total contact over 90 percent complete.
Operation and maintenance.—The first integrated operation of the initial features of the Central Valley project in August 1951 was under the direction of the CVP operations office. Working as a unit for the first time, storage and canal systems, pumping and power plants operated for the benefit of the area in supplying irrigation, municipal, and industrial water, power, storage of floodwaters and controlled releases to limit salt-water intrusion.
Recreational use of reservoirs increased at Shasta and Millerton lakes of the CVP and on the Orland and Klamath projects.
Sixteen temporary contracts for water service along the San Joaquin River and Friant-Kern and Delta-Mendota canals were handled. Negotiations were carried on for proposed amendatory contracts with Delano-Earlimart and Saucelito irrigation districts, and were approved as to form by the Secretary.
A temporary municipal and industrial water-service contract was approved for the Friant-Kern canal and negotiations begun toward permanent municipal and industrial water service from the Friant-Kern and Delta-Mendota canals.
Two temporary water-service contracts were executed on Cachuma project. A distribution system repayment contract was executed in April with the Goleta County water district and a similar proposed contract has been approved as to form by the Secretary.
One repayment contract was executed on the Klamath project. This is the first of a program for consolidating individual water-rights contracts and marketing additional rights to districts along the fringes of the project.
Fifteen recordable contracts covering 11,982 acres of excess land were executed under terms of Reclamation law.
Objectives for fiscal year 1953 on the CVP include completion of contract negotiations with the remaining districts in the Friant-Kern and Delta-Mendota canal service area, and in the Kings River area. In the Klamath project the program includes completion of repayment contracts with the Tule Lake division, P Canal area district, Poe Valley improvement district, and several amendatory contracts. In the Sacramento Valley district the objective will be negotiation of water service contracts with several irrigation districts whose formation is now being considered.
Land classification and land use studies were completed on approximately 900,000 acres. This work consisted of agricultural surveys and crop mapping for the purpose of determinations of beneficial use of water for water-rights investigations, determination of water
226396—53---9
124 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
requirements for water sales contracts, and land studies for preliminary investigation and definite plan reports.
Power.—Fiscal year 1952 was marked by the begining of service under terms of the transmission and exchange (wheeling) contract with the Pacific Gas & Electric Co. By the end of the year service was being furnished by wheeling to 12 preference customers and to 1 project load.
In December 1951 a new sale and interchange contract with the P. G. & E. became effective. The significant feature of this contract is that the company agrees to provide limited amounts of energy for firming up the hydroelectric output of the CVP.
Total revenues received from sale of power during 1952 totaled $9,894,306.39 for the sale of 2,514,851,476 kilowatt-hours.
The Tracy-Contra Costa 69-kilovolt transmission line was completed and placed in service in November.
The CVP radio network was completed, operating criteria developed and tentative expansion studies were made to include future projects.
Local power requirements of defense installations, municipalities, irrigation districts, and other preference customers are such that the sell-out point of CVP power is being rapidly approached. Because of rapidly expanding civilian and defense requirements, discussions have been held with the Colorado River Commission and the city of Los Angeles for possible service to those areas. Successful completion of present negotiations will preclude further service to new customers unless additional sources of supply are developed.
RegionalII, Headquarters, Boulder City,'Nev.
General investigations.—Field forces completed diamond drilling, geologic exploration, and surveys of the mile 39.5 dam site in Marble Canyon on the Colorado River. Power and design studies on potential Bridge Canyon Dam were continued.
On the basis of Bureau investigations, the Congress appropriated funds to the Navy for construction of a second barrel to the San Diego aqueduct. As agreed with the Navy, the Bureau will design and construct the second barrel.
Construction.—Davis Dam project construction continued in its final stages. The spillway stilling basin and excavation in the tailrace, contracted last fall, are scheduled for completion in fiscal year 1953. The transmission system as originally planned is practically complete and requires only minor additions to substations, installation of supervisory control, and other work needed to facilitate operations. In the operation and maintenance area at Phoneix, repair shops, ware
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 125
house additions, and headquarters building are nearing completion and installation of utilities and area improvements is under way.
Installation of two Hoover Dam power plant generating units, A—1 for the State of Arizona and A-9 for the State of Nevada, was virtually complete.
On the Gila project the 18^>-mile Wellton-Mohawk canal, its three large pumping plants, and substantial reaches of the Mohawk and Wellton branch canals were completed. Construction continued on the Coachella Valley underground concrete pipe distribution system. Rehabilitation and betterment work continued on the Salt River project ; completed were a canal pumping plant for replacement, the first stage of rehabilitation of Stewart Mountain Dam, and extensive areas of concrete canal and lateral lining.
Operation and maintenance.—Region 3 farms irrigated by Reclamation works in 1951 produced an all-time record crop value of approximately $205 million on 871,548 acres, exceeding the previous record set in 1948 by 20 percent. At the close of the fiscal year temporary water deliveries were being made at canal side to approximately 9,000 acres on the Wellton-Mohawk division, Gila project. Within a few years some 75,000 acres on the division will be served by the canal system. A $42 million repayment contract, signed at Yuma by Under Secretary of the Interior Richart D. Searles acting for the Government, was executed with the Wellton-Mohawk irrigation and drainage district in March 1952. On May 1, 1952, Commissioner Michael W. Straus turned the first water onto Wellton-Mohawk lands as a feature of Arizona’s Golden Jubilee celebration.
Twenty-seven farms, comprising 4,030 acres of homestead land on the Yuma Mesa division, Gila project, were opened to entry. A public drawing for the farms, involving 4,111 veterans who had filed applications, was held in Yuma, Ariz., on June 3, 1952.
The California headworks and abutment of Imperial Dam, the desilting works, the first 20 miles of the All-American Canal, and the first 50 miles of the Coachella Canal were accepted as completed by the Imperial irrigation district on May 1, 1952, for operation and maintenance. This completes the full turn-over of the dam and canal facilities contemplated by the Government’s contracts with that district.
Indirective of Reclamation’s indirect benefits are the estimated Federal tax payments in 1951 of $90 million from Maricopa County and $8.5 million from Yuma County, Ariz. A report on local irrigation accomplishments of the Yuma and Gila projects indicated that the local indirect benefits are 1% times the direct benefits.
On July 1,1951, the Yuma County Water Users’ Association assumed the care, operation, and maintenance of works on the Valley division,
126 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Yuma project, in accordance with the terms of the transfer contract executed June 15, 1951.
Following a recommendation of the Reining report, the administrative separation of Boulder City, Nev., municipal operations from the Boulder Canyon project was authorized by Secretarial Order No. 2650 and effected as of July 1, 1952. In November 1951 at the city’s first municipal election, voters selected representatives to serve on the special committee to assist in the choice of a city manager and on the advisory council to work with the city manager. Each committee was to include seven members—four elected by the voters and three designated by the Bureau of Reclamation, other governmental agencies in Boulder City, and the power allottees, respectively. Harold N. Corbin, former city manager of Porterville, Calif., was appointed city manager and entered on duty May 19,1952.
Power.—Reclamation hydroelectric power plants on the Colorado River at Hoover, Davis, and Parker Dams, and at Siphon Drop on the Yuma project, generated 7y3 billion kilowatt-hours of energy. This topped the earlier record output set in fiscal year 1944. The Colorado River plants furnished 36 percent of all electricity used in southern California, southern Nevada, and Arizona during the fiscal year.
Arizona’s two new units in the Hoover power plant, A-3 and A-4, will furnish that State with its 18 percent allocation of Boulder Canyon project power. In a Reclamation Golden Jubilee ceremony on April 30, 1952, Under Secretary of the Interior Richard D. Searles pressed a button in the Hoover power plant to place A-4 on the line. Nevada’s unit A-9, placed in service early in 1952 and supplemented by service from N-7, provides the State with its allocation of Hoover power, also 18 percent. Other Hoover units, the first of which went into commercial production in 1936, furnish power to California allottees.
The Davis Dam power plant generated 1,364,000,000 kilowatt-hours of energy during the fiscal year—its first full year of operation. On the Davis transmission system, Maricopa, Cochise, and Pilot Knob substations were placed in service. The Wellton-Mohawk pumping plant substations, the 34.5-kilovolt lines serving them, and the second transformer bank at Coolidge were also placed in service.
Water releases through the turbines at Hoover, Davis, and Parker Dams were stepped up early in 1952 to draw down Lake Mead in anticipation of a record April through July runoff. Special contracts were negotiated for the sale of additional energy thereby generated at the Davis and Parker power plants, and over a billion kilowatt-hours of secondary energy were generated at the Hoover power plant.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 127
As a result of cooperative planning by the Bureau, the Arizona Power Authority, and the Arizona Public Service Co., the latter will construct a new steam plant near Red Rock, Ariz. Energy from this privately owned plant will be transmitted under a wheeling agreement to major load centers through Bureau facilities. Planning and design work for the additional facility construction required to meet wheeling agreement terms have begun.
River control.—*Colorado River dredging continued along the designed channel alinement opposite Needles, Calif. The Needles-to-Topock channel was opened a year ago and within 24 hours was carrying about 90 percent of the river’s flow. Within a week the water surface elevation of the river opposite Needles had dropped about 3% feet, making it about 6 feet lower than the high river elevation late in 1944 during which the lower part of that city was inundated. « ' .
Colorado River levee construction near Yuma, Ariz., progressed materially. A part of this work is being done under provisions and requirements of the Mexican Water Treaty of 1944.
The 1952 spring runoff on the Colorado River of 14 million acre-feet exceeded the maximum recorded spring flow at the Grand Canyon gaging station by 1% million acre-feet. The previous high recorded flow was 12% million acre-feet in 1929. The normal runoff for the period of record is 9.6 million acre-feet.
Region IV, Headquarters, Salt Lake City, Utah
General investigations.—Planning engineers completed definite plan reports for the $70,000,000 Weber Basin project, Utah, and for the 5,000-kilowatt Deer Creek power plant, of the Provo River project, Utah, as well as an authorizing report for the Gooseberry project, Utah—the latter completing a group of 11 reports for as many participating projects recommended by the States of the upper Colorado Basins for initial development in connection with the Colorado River storage project reported in fiscal year 1951. A status report was also prepared on the South San Juan project, New Mexico, showing its relationship to the potential Shiprock Indian project and providing basic information useful in the selection of the most favorable plan for development of New Mexico’s 11.25 percent allocation of water from the San Juan River.
Soils scientists completed a detailed land classification for the Eden project, Wyoming, and the Rock Springs, Wyo., area office also completed some appendices to the Eden project definite plan report delayed by policy problems during fiscal year 1951.
128 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Fiscal year 1953 planning objectives include early completion of a definite plan report on the July 3, 1952, authorized Collbran project, Colorado, and continued detailed investigation of the Eden project. Work will be continued, with the aim of completing reports in some instances, on the Fruitgrowers Dam project extension, Colorado; Bear River, Utah and Idaho; Washoe, Nev.; Cliffs Divide, Colo.; Sublette, Wyo.; San Miguel, Dolores, and Animas-La Plata project, all in Colorado; and Pack Creek, Utah.
Construction.—Contractors accomplished about 80 percent or $4,728,000 of a $6,032,000 program during fiscal year 1952, as compared with 83 percent of a $7,444,000 goal the previous year. The accomplishment included completion in December 1951 of the final feature of the Aqueduct division, Provo River project, Utah, namely the 40,000,000-gallon Terminal Reservoir. The aqueduct supplies Salt Lake City with storage water from Deer Creek Reservoir, 41 miles distant. Duchesne tunnel was “holed through” on December 10, 1951. The entire invert of the tunnel was concreted by June 12, 1952. Except for construction of a Deer Creek power plant and additional Provo River channel revisions, the project was essentially completed.
Award of a $500,000 contract for work on Eden canal accelerated construction activities on the Eden project, Wyoming, where the contractor had completed 86 percent of the Big Sandy Dam and Dike by the end of the fiscal year. The first schedule of construction on the Means canal was 40 percent completed at the end of the fiscal year.
The Eighty-first Congress approved resumption of construction on the Fire Mountain canal extension, Paonia project, Colorado, and work was scheduled to start about October 1952. The contractor completed three siphons on the High Line canal of the Grand Valley project, Colorado, under the rehabilitation and betterment program.
Earth slides, caused by excessive moisture in the vicinity of Jackson Gulch Reservoir of the Mancos project, Colorado, necessitated relocation of the center line of a portion of the inlet canal as well as replacement of access roads. The fiscal year 1953 program called for placement of additional concrete covers along the slough section of the canal and other preventive maintenance measures to retard and possibly reduce damage from future occurrences of this nature.
Under the S. & M. C. program, Government forces placed a test and demonstration canal lining in reaches of the Yellowstone feeder canal, Moon Lake project, Utah, where excessive leakage has occurred; elsewhere construction forces initiated channel improvement work on the Badger Wash, Grand Valley project, Colorado.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 129
Initiation of construction on the $70,000,000 Weber Basin project, enabled by a $1,350,000 “new start” appropriation by the Eighty-first Congress, will be region 4’s major construction objective during the first half of fiscal year 1953. The initial undertaking was to be excavation of the 3.3-mile Gateway tunnel through the Wasatch Mountains directly east of the Hill Field Air Base near Ogden, Utah.
Operation and maintenance.—Twenty operating projects in region 4 reported a 1951 gross crop value of $39,167,419 from 532,714 acres of irrigated land, an average of $73.52 per acre as compared with a $58.70-per-acre figure from 545,485 acres the previous year.
Fiscal year 1952 accomplishments of operation and maintenance technologists included: classification of approximately 4,600 acres of land in the Pyramid Lake Indian Reservation in cooperation with the Bureau of Indian Affairs; cooperation with local interests in coping with emergency floods caused by the record winter snowfall, particularly in northern Utah and western Nevada; cooperative work on lower cost canal lining; December 21, 1951, notice to the South Ogden Conservation District that the additional works to be constructed for the district were completed and that the $6,801 first installment of the $272,062 construction cost would be due and payable March 1, 1953; December 27, 1951, notice to the Metropolitan water district of Salt Lake City that, in addition to the aqueduct, the district would be responsible for operation and maintenance of the Terminal Reservoir, effective April 1, 1952; receipt of $310,000 from the Metropolitan water district of Salt Lake City as the first installment on excess costs of the Aqueduct division, Provo River project, Utah; issuance of notice on May 2, 1952, to the Provo River Water Users Association officially transferring to the association the operation and maintenance of the Provo Reservoir canal and the Weber-Provo diversion canal enlargement.
Power — Electrical engineers further advanced investigations and studies on seven projects with power-development possibilities as follows: Colorado River storage, 1,622,000 kilowatts; central Utah, 61,000 kilowatts; Washoe, 60,000 kilowatts; Bear River, 27,500 kilowatts; Weber Basin, 5,400 kilowatts; Provo River, 5,000 kilowatts; and Sublette, 94,000 kilowatts. They also completed the power sections of the definite plan report for the Weber Basin project and the Deer Creek Power Plant of the Provo River project, and started work on the power aspects of the Collbran Project Definite Plan Report. Cofisiderable work was also accomplished in connection with network analyzer studies for the potential over-all regional power system.
In fiscal year 1953 studies will be continued on the foregoing projects and, in addition, investigations will be conducted on the power
130 ☆ annual report of the secretary of the interior
possibilities on the Animas-La Plata, Dolores, and San Miguel projects in southwestern Colorado, and the Cliffs Divide project in northwestern Colorado.
Region V, Headquarters, Amarillo, Tex.
General investigations.—Final drafts of reports on the Washita River Subbasin and unfavorable report on the Fort Gibson project, Oklahoma, were completed. Preliminary draft of the Brownwood project report, Texas, was distributed to Federal and State agencies and the Commissioner. An interim report on the San Juan-Chama project, Colorado-New Mexico, was forwarded to the Commissioner. Field drafts of an unfavorable report on the Balmorhea project, Texas; Definite Plan Report (vol. I) on the Vermejo project, New Mexico; and Definite Plan Report (vol. IA) on Initial Stage Channel Rectification on the Middle Rio Grande project were received in the regional office. Reports on Reconnaissances of the West Texas project and Nueces River Power project, Texas, were completed for regional use. Investigations of the Arkansas-White, Red River Basins continued. Preparation of a report summarizing reconnaissance of the Gulf Basin was initiated. Collection of data on the Pecos River Basin continued. Initiated advance planning on the Canadian River project, Texas. Objectives for fiscal year 1953 include early submittal to Commissioner of volume I of Definite Plan Reports on Vermejo project and Initial Stage Channel Rectification of Middle Rio Grande project; completion of Bureau’s contribution to the Comprehensive Report on the Arkansas-White, Red Basins; submittal to the Commissioner of report on the power phase of the lower Nueces River project, and an unfavorable report on the Balmorhea project; completion of field drafts of Canadian River Project Definite Plan Report, volume I, and of feasibility report on the power phase of that project, completion of field draft of Middle Rio Grande Project Definite Plan Report (vol. IB: Drainage) ; completion of a summary report on the Gulf Basin; completion of a program report on the San Juan-Chama project and initiation of feasibility studies upon approval of the program report; continuation of essential records on the Pecos River Basin.
Construction.—In fiscal year 1952, the asphalt membrane lining, a section of Altus canal, was completed, as well as the earthwork and structures on Altus laterals, drains E, A-l 162, and F (extension) of the W. C. Austin project, Oklahoma. The Platoro Dam, San Luis Valley project, Colorado, and the Socorro-Albuquerque transmission line, Belen-Willard transmission line, and Belen Substation, Rio Grande project, New Mexico, were also completed during the year. All Rio Grande project transmission facilities are expected to be com
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 131
pleted early in fiscal year 1953, except for Albuquerque metering equipment. Addition of overhead ground wire is subject to approval by authorities. Channelization of the Middle Rio Grande project was started and will continue through fiscal year 1954. Award of second channelization contract was delayed by Budget Bureau action. The first construction contract for Vermejo project, New Mexico, is expected to be let by February 1953. Contract was awarded for exploratory drilling, Sanford Dam site, Canadian River project, Texas.
Operation and maintenance.—Seven projects are in operation. Three are fully operated by the Bureau; two by water users; one is a W. C. U. project operated by water users; and one Warren Act contractor. Operation of the W. C. Austin project, Oklahoma, will be transferred to the water users October 1, 1952. The Bureau also operates Alamogordo and Platoro Dams. All project crops were good in 1951 despite severe water shortages in the Rio Grande Basin. On the seven projects, 294,408 irrigated acres produced a total gross crop value of over $63,000,000, an average of $214 per acre. Water shortages continue on the Rio Grande and Carlsbad projects, and a shortage is developing on the Tucumcari project. Maintenance and replacement programs, particularly on older projects, were accelerated. A repayment contract with the Middle Rio Grande Conservancy District for project rehabilitation was completed, and a basis was established for negotiation of a contract with the Vermejo Conservancy District, New Mexico. The rehabilitated Fort Sumner project was placed in full operation. Platoro Dam and Reservoir, San Luis Valley project, Colorado, was ready for operation but will not be used for irrigation storage until next season. An active soil-and moisture-conservation program on Federal lands under Bureau jurisdiction was in progress on the Rio Grande and Tucumcari projects, Alamogordo Reservation and McMillan Reservoir delta area. The program includes salt-cedar control, water-conservation studies, and construction to protect land and structures from effects of torrential flood flows and erosion. The soil- and moisture-conservation program will be expanded, particularly on the Rio Grande project with the Picacho Arroyo control works under construction.
Power.—Total energy sales in 1952 on the Rio Grande project were 107,842,909 kilowatt-hours, of which 17,404,621 kilowatt-hours were sales of energy produced by the hydro generating plant at Elephant Butte Dam, N. Mex., and 90,438,288 kilowatt-hours were sales from purchased power. Actual runoff in Rio Grande watershed was far below early estimates. This continued low-water condition at Elephant Butte Reservoir has caused generation of electrical energy to remain below normal. The Rio Grande Power System has increased to 495 miles of 115-kilovolt transmission line with completion of 77
132 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
miles of line from Socorro to Albuquerque, a newly constructed substation at Albuquerque, 53 miles of line from Belen to Willard, with a newly constructed substation at Willard.
Region VI, Headquarters, Billings, Mont.
General Investigations.—Investigations to obtain material for basin reports were carried forward on 25 divisions. No basin reports were submitted in fiscal year 1952, but the reports for Cannonball and Clarks Fork divisions are scheduled for completion in fiscal year 1953, with the former to be submitted to the Commissioner before the close of the year. Definite-plan reports for Jamestown, Missouri diversion, Moorhead, Nickwall and Charley Creek, Rapid Valley and Sadie Flat units, and the revised reports for Hanover and Cartwright units were submitted to the Commissioner. None of the reports had been approved at the close of the fiscal year. The report for Cartwright unit recommended that activities be postponed due to the low benefit-cost ratio. In fiscal year 1953, the reports for Bluff, Boysen, Canyon Ferry, Helena Valley, Kaycee, Seven Sisters, Shoshone Extensions, Sidney and Stipek units and Riverton project (Third division), plus the revised reports for Rapid Valley and Crow Creek units, are scheduled for completion and submission to the Commissioner.
Construction.—The following construction was completed by contract during the fiscal year: Prime contract for Boysen Dam power plant and relocation of Chicago, Burlington & Quincy Railroad, relocation of the Chicago, Burlington & Quincy footbridge and clearing of the reservoir area, Boysen unit; extension of Wyoming canal and laterals, fencing along Muddy Creek, roads and bridges and construction of tetrahedrons along Five-Mile and Muddy Creeks, moving and erecting residences for operation and maintenance camp, some canal lining work on Pilot and Wyoming canals and riprap protection at Pilot Butte Power Plant, Riverton project; C. J. Coulee Crossing and lining portion of Heart Mountain canal, Shoshone project; Shadehill Dam and damtender’s residence, Shadehill unit; power plant at Angostura; residence for development farm, Oahe unit; relocation of county road and clearing reservoir areas, Keyhole unit; reconstruction and relocation of county road, Dickinson unit; fencing and cattle guards, Heart Butte unit; Circle, Wolf Point, Savage, Havre, Shelby, and Rudyard Substations, towers and hutments for radio relay station, moving buildings to Havre Substation, Fort Peck project; lining portion of Vandalia south canal, Milk River project; warehouse, chain-link fence and clearing part of reservoir area, Canyon Ferry unit; portion of Tiber Camp, Lower
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 133
Marias unit; Garrison-Voltaire, Devils Lake-Lakota, Jamestown-Valley City, Voltaire-Rugby-Devils Lake-Carrington-Jamestown, Garrison-Fort Peck Tie and Alcova-Boysen transmission lines, Transmission division; and Rugby, Devils Lake, Carrington (except for installation of current transformer), Leeds (substantially), Bisbee (substantially), Lakota (substantially) and Thermopolis Substations, access road and chain-link fence for Bismarck Substation, Transmission division.
Construction continued during the fiscal year on the following contract work carried over from fiscal year 1951: Canyon Ferry Dam and Power Plant; irrigation facilities, Angostura unit; Keyhole Dam and relocation of State Highway No. 14, Keyhole unit; Fort Randall-Gregory-Winner, Sioux Falls-Brookings, Armour-Fort Randall Tap-Gavins Point Tap, Huron-Armour, Gavins Point Tap-Sioux Falls, Brookings-Watertown, Watertown-Groton-Huron, Rapid City-Midland, Canyon Ferry-East Helena, Glendive-Williston, and Thermopolis-Lovell 115-kilovolt transmission lines; Bismarck -De Vaul and Garland-Lovell 69-kilovolt transmission lines; Fort Randall-Oahe-Mobridge-Bismarck, Garrison - Washburn - Bismarck and Bismarck-Jamestown 230-kilovolt transmission lines; first-stage construction on Sioux Falls, Watertown, Huron, Woonsocket, and Mount Vernon Substations; and Lovell, Washburn, Bismarck, Jamestown, Rolla, Forman, Edgeley, and Valley City Substations.
Construction contracts were awarded in fiscal year 1952 and will be completed in future fiscal years for the following: residences at Angostura Dam; relocating Chicago & North Western Railroad, completion of power plant and line connections to the switchyard, Boysen unit; clearing land above Winston Bridge and to head of reservoir, Canyon Ferry; irrigation facilities for Fort Clark unit; Jamestown Dam; water supply system for Shadehill Development Farm; moving Chester Camp to Tiber Dam site, Lower Marias unit; lining portions of Pilot and Wyoming canals, retaining wall for Pilot Butte Power Plant, structures for Wyoming laterals (station 1606-2560), and pervious fence for Muddy Creek streambank revetment, Riverton project; Heart Mountain Camp restoration and drains, Shoshone project; Lovell-Yellowtail 115-kilovolt transmission line; first-stage construction of Armour, Beresford, Brookings, Flandreau, Groton, Tyndall, and Summit Substations; Bonesteel, Gregory, Midland, Philip, Wall, Wicksville, Winner, Custer Trail, De Vaul, Fort Clark, and Dawson County Substations; and extra bay at Williston Substation. In addition, specifications were issued for the Fort Randall-Sioux City 230-kilovolt transmission line, drains for the North Pavillion area on Riverton project and Hay Coulee Siphon on Milk River project.
134 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Construction of all of these items under contract will be completed in fiscal year 1953 except for the following: Canyon Ferry Dam and Power Plant; clearing land to head of reservoir, Canyon Ferry unit; Jamestown Dam; and Fort Randall-Oahe-Mobridge-Bismarck and Fort Randall-Sioux City 230-kilovolt transmission lines. An additional 7,100 acres of land will be irrigated (Angostura, 4,000 acres; Fort Clark unit, 2,100 acres; and Shoshone project, 1,000 acres at camp area) and 15,000 kilowatts of power will be available from Boysen unit. Keyhole Dam will supply supplemental water to 55,708 acres on the Belle Fourche project.
In addition, in fiscal year 1953, major construction contracts scheduled for award include: Tiber Dam, Lower Marias unit; Missouri diversion dam; Pactola Dam, Rapid Valley unit; irrigation facilities for Crow Creek and Heart Butte units; Oahe-Midland and Fort Randall Tap-Fort Randall 115-kilovolt transmission lines; Crow Creek, Jamestown (addition), Grand Forks, Sioux City, Fargo, Rapid City, Weaver and Circle (addition which will be completed in fiscal year 1953) Substations; and second-stage construction of Sioux Falls, Flandreau, Brookings, Watertown, Summit, Groton, Huron, Woonsocket, Mount Vernon, Armour, Tundall, and Beresford Substations.
Operation and maintenance.—The 12 operating projects in region 6, receiving a full water supply from Bureau works, produced crops in 1951 worth $19,733,619 from a net area under cultivation of 455',548 acres. The Bureau delivered supplemental water to an additional 7,101 acres, from which the gross crop value was $226,973.
During the fiscal year, a repayment contract was executed by the United States with the Fort Clark irrigation district. Lower Yellowstone irrigation districts Nos. 1 and 2 executed amendatory repayment contracts. Congress authorized execution of amendatory contracts with the Glasgow and Malta irrigation districts of the Milk River project and the Midvale irrigation district of the Riverton project. An amendatory contract was executed with the Willwood irrigation district of Shoshone project. Also, amendatory contracts among the United States and Buffalo Rapids irrigation districts Nos. 1 and 2 and the Buffalo Rapids Farm Association were executed. A contract was executed in December with the city of Dickinson for operation of Dickinson Dam and Reservoir. Negotiations continued for development of a municipal water service contract with the city of Rapid City for water from the proposed Pactola Reservoir. Also, negotiations are continuing on development of a repayment contract with the Heart Mountain division of Shoshone project.
The Hui on, Redfield, Mandan, Bowbells, and Riverton Development Farms were in operation during the fiscal year. Field activities on the Shadehill Development Farm were started, but the farm will not be in complete operation until August 1952.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 135
Power.—During the year, 616 miles of 115-kilovolt transmission lines (Glendive-Miles City, Havre-Shelby, Alcova-Boysen, Boysen-Thermopolis, Garrison-Voltaire, Voltaire-Rugby, Rugby-Devils Lake, Devils Lake-Carrington, Carrington-Jamestown, Devils Lake-Lakota, and Jamestown-Valley City transmission lines), 43 miles of 69-kilo-volt transmission lines (Leeds-Rolla) and 10 substations (Beulah, Miles City, Havre, Rudyard, Shelby, Thermopolis, Devils Lake, Rugby, Carrington, and Leeds), with a total capacity of 141,500 kilovolt-amperes were energized. In addition, Angostura Power Plant, supplying 1,200 kilowatts, was put into operation.
Thirty-five sale-of-power contracts and two memorandums of understanding were executed during the fiscal year. Total power revenues for fiscal year 1952 were $2,220,612, with generation of Federal hydroelectric plants in region 6 for which the Bureau markets the power amounting to 583.9 million kilowatt-hours. Comparable amounts for fiscal year 1951 were $1,550,736 and 430 million kilowatt-hours. The increases are due to the installation of an additional 35,000-kilowatt unit at Fort Peck and the start of production by Angostura Power Plant.
In fiscal year 1953, approximately 60 miles of 69-kilovolt, 905 miles of 115-kilovolt, and 163 miles of 230-kilovolt transmission lines are scheduled for energizing. Also, substations amounting to a capacity of approximately 200,000 kilovolt-amperes will be ready for use. Capacity of existing substations will be increased by about 20,000 kilovolt-amperes, and first-stage construction will be completed on approximately 12 substations whose ultimate capacity will be 385,000 kilovolt-amperes.
Region VII, Headquarters, Denver, Colo.
General investigations.—The investigation program for fiscal year 1952 included commitments for the completion of 10 reports, plus the Kirwin Definite Plan Report, which was added during the year. Of the 11 commitments, 7 were completed. These included the Acquisition of the North Platte Water Users Interests in the power system, the Missouri River Basin Power Survey, the Lower Platte River Basin Report, and definite-plan reports for the following units: Narrows, Sargent, Glendo, and Kirwin. The Niobrara River Basin preliminary report and the definite plan reports for Colorado-Big Thompson project, Bostwick. division, and La Prele unit were not completed due to the imposition of additional work such as adjudication of water rights, requirement for additional data on land classification, emergency flood studies, and some local opposition to proposed development.
136 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Commissioner’s proposed report for the Fryingpan-Arkansas project (formerly the Gunnison-Arkansas) was signed on August 27, 1951, approved and adopted by the Secretary, and sent to the President on October 19,1951. These actions resulted in a tremendous demand from the people for immediate authorization, and it was placed before both houses during the last session of Congress.
Construction.—Construction contractors generally were not able to comply with their optimistic estimates of performance due to the difficulty of securing materials and equipment occasioned by limitations imposed by the DEPA and by the strike by steelworkers’ unions. However, construction of irrigation and generation facilities scheduled was successfully prosecuted during the year and will result in increased capacity in future years.
Construction of the Narrows and Glendo Dams has again been delayed because of inability to resolve all problems with State and local groups. There were 96 different construction contracts in effect during the fiscal year representing a total estimated value of $89,000,-000, of which $33,000,000 were completed during the fiscal year and on which $26,000,000 were earned by the contractors during the year. Of 251 major actions scheduled for completion, 218 were completed.
Completed contracts during the year included: Five contracts on the Superior canal, one on the Courtland canal, earthwork and bridge abutments for the Trenton Dam railroad relocation, development of Bonny Reservoir public-use area, Cedar Bluff Dam, Olympus, Pole Hill, and Rattlesnake tunnels, Carter Lake pressure tunnel, Windsor canal, and 24 contracts for transmission lines, substations, and other power features.
New contracts awarded during the year included the Franklin South Side pump plant canal and laterals, the Trenton Dam railroad bridge superstructures and road relocation, one contract each on the Cambridge canal and Cambridge laterals, foundation for the Kirwin Dam, Willow Creek pumping plant and canal, Pole Hill canal and penstocks, Rattlesnake Dam, Flatiron penstocks, Carter Lake pressure conduit, St. Vrain supply canal and tunnels, Flatiron section of the Horsetooth feeder canal, the Alcova power plant, Alcova Government housing and community facilities, Flatiron-Fort Collins-Cheyenne tap, Estes-Pole Hill 115-kilovolt transmission line, Fort Collins substation, Hanna-Sinclair and the Seminoe-Bairoil 34.5 transmission lines, Bairoil substation, Guernsey tap line, Sinclair substation and Julesburg rural substation. Irrigation districts under contract with the Government performed $730,000 worth of rehabilitation and betterment work on the North Platte project.
Operation and maintenance.—Full irrigation to some 7,000 acres of new land and a supplemental supply to 206,000 acres was provided by the completion of project works during the year. Court confirma
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 137
tion of the Kansas-Bostwick repayment contract and the Mirage Flats contract have been obtained. The total crop value of the region’s irrigated lands was $87,308,829 for the calendar year 1951, of which $14,342,533 was from land receiving a full supply of irrigation water and $72,358,242 was from land receiving a supplemental supply of wTater from Reclamation w7orks.
Power.—The 1952 schedules did not predict an increase of generating capacity. However, progress was made on generating facilities which will increase the region’s capacity in future years, principal of these are the Alcova power plant on the Kendrick project and the Pole Hill and Flatiron power plants on the Colorado-Big Thompson project. Some difficulties in obtaining materials for power construction were experienced during the year. The seven hydroelectric power plants in the region with a generating capacity of 149,300 kilowatts generated 554,490,000 kilowatt-hours of electrical energy during the fiscal year which were sold to municipalities, REA cooperatives, industrial plants, and public utilities for a gross revenue of $3,293,119.01.
Alaska District, Headquarters, Juneau, Alaska
General Investigations.—A report on Swan Lake, a 13,500-kilowatt hydroelectric power project near Ketchikan, Alaska, was favorably submitted by the Commissioner to the Secretary for action. At the end of the fiscal year the report was being reviewed by interdepartmental agencies before sending to the Bureau of the Budget. The power plant would supply 71,000,000 kilowatt-hours of firm energy and 8,800,000 kilowatt-hours of nonfirm energy to the power deficient Ketchikan area. Also in southeast Alaska, field investigations were initiated on Blue Lake project near Sitka. Not only would the project serve the city of Sitka, the Mount Edgecumbe Hospital, and the vocational training school of Alaska Native Service on nearby Japon-ski Island, but would also serve a proposed wood-pulp industry with both electric energy and industrial process water. Project studies are scheduled for completion in fiscal year 1953. In the Fairbanks area, Wickersham project investigation was held up pending completion of topography. This project has been shelved until the alternate Devil Canyon project in Susitna River basin is more thoroughly investigated. Susitna River basin studies were concluded after 3 j ears of field work. A report, to be issued in August 1952, will disclose several low-cost power potentialities that could be developed to serve the entire railbelt from Seward to Fairbanks.
C onstruction.—Eklutna, the only Bureau of Reclamation project under construction in the Territory of Alaska was approximately 20
138 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
percent complete on June 30, 1952. It is located 34 miles north of Anchorage. A transmission line is being constructed northward to serve Matanuska Valley, the city of Palmer, and several coal mines. A transmission line under construction southward will serve Elmendorf Air Force Base, Fort Richardson, the city of Anchorage, and adjacent areas.
The percent completion at the end of the fiscal year for major construction items was as follows: 12 permanent residences, 30 temporary residences, streets, and utilities 96 percent complete; warehouse 99 percent complete; 4^-mile tunnel, intake structure, alterations to existing dam, surge tank, and penstock excavation, 22 percent complete; Eklutna-Palmer 115-kilovolt transmission line 62 percent complete; and Eklutna-Anchorage 115-kilovolt transmission line 9 percent complete. Total expenditures to June 30, 1952, were $6,620,488. In fiscal year 1953 appropriation of $13,000,000 was made available by Congress for continuing construction. All major construction contracts have been awarded with the exception of the Anchorage substation scheduled for award in September 1952. The power shortage in the area is so critical, work is being expedited so at least one 15,000-kilowatt generator will be producing energy in April 1954, although the entire plant of 30,000 kilowatts probably will not be finished until September 1954.
An Appraisal Board was appointed by Secretary Chapman, with the approval and concurrence of the Department of Justice, to determine the value of the small existing Eklutna power plant now owned by the city of Anchorage. The Board prepared a report on its findings, and early in fiscal year 1953 an offer will be made to the city of Anchorage to acquire its interest in these facilities for operation in conjunction with the Bureau’s Eklutna project.
Operation and Maintenance.—On May 23, 1952, Under Secretary Searles transferred operation and maintenance responsibilities of Knik Arm steam power plant from the Alaska Railroad to Bureau of Reclamation. The plant being built in Anchorage by the Alaska Railroad and Chugach Electric Association will have 11,200 kilowatts of capacity and is scheduled for completion in November 1952. The power plant personnel will comprise operating, maintenance, and administrative personnel. A personnel ceiling of 36 has been requested to facilitate this new activity.
DIVISION OF WATER AND POWER
Reginald C. Price, Director
During most of fiscal year 1952, the Division of Water and Power functioned as a staff agency in the office of the Under Secretary of the Interior. The principal duties of the Division of Water and Power are to assist in establishing and clarifying departmental policy and to provide expert technical advice in the filed of water and power developments.
The principal power marketing agencies of the Department are the Bureau of Reclamation, which also reclaims the arid and semi-arid lands of the West and produces electrical energy at some of its own projects; the Bonneville Power Administration; the Southwestern Power Administration; and the Southeastern Power Administration. These agencies market power produced at projects of the Bureau of Reclamation and the Corps of Engineers of the Department of the Army in excess of project requirements.
The Department continued to market power under policies laid down by Congress. These policies require that preference shall be given to public bodies and cooperatives and that power shall be sold at rates which will encourage the most widespread use at the lowest possible rates consistent with sound business principles. During fiscal year 1952, Interior Department agencies marketed 30,404 million kilowatt hours 'for which $79,476,536 were received in revenues at an average price of 2.61 mills per kilowatt hour marketed. The attached table prepared on a consolidated basis shows for fiscal year 1952 the installed capacity of plants whose power is marketed by Interior Department agencies, the net energy generated by these plants, the energy marketed, and the gross revenues for marketed power.
During the year the Department, through the Division of Water and Power, reviewed 19 reports of the Corps of Engineers of the Department of the Army concerned primarily with flood control and navigation; 12 reports of the Department of Agriculture concerned
226396—53----10
139
140 ☆ annual report of the secretary of the interior
primarily with run-off and water flow retardation; and 9 reports of the Bureau of Reclamation concerned primarily with irrigation, power, and municipal and industrial water supply. Total construction cost to the Federal Government of these Federal projects was estimated at over 1 billion dollars. The Department also reviewed, through the Division of Water and Power, 48 applications for power permits and licenses referred for comment to the Department by the Federal Power Commission.
Members of the staff of the Division of Water and Power represent the Department on the Energy Conversion and the Benefits and Costs subcommittees of the Federal Inter-Agency River Basin Committee, and the Interdepartmental Radio Advisory Committee.
The Division of Water and Power coordinated the efforts of Geological Survey, Bureau of Reclamation, Bureau of Indian Affairs, Fish and Wildlife Service, Bureau of Land Management, and National Park Service in the preparation of an analysis of the drought situation in the Southwest. This report, published by the Department in December 1951, evaluated the effect of the drought on the local economy and on the Department’s programs, summarized the steps which had been taken to alleviate the situation, and outlined recommendations which, if adopted, would tend to increase or conserve vital water supplies.
Technical assistance was given the Office of Territories in connection with their plans and proposals for the expansion of electric facilities in the Virgin Islands, Alaska, and the Pacific Islands. The Division’s technicians also gave substantial advice and assistance to the Department of Justice in connection with two cases pending before the United States Supreme Court involving the use of public lands under the jurisdiction of the Secretary of the Interior for the construction of transmission lines by private power companies.
During fiscal year 1952, approximately 190 radio frequencies were assigned to various offices and agencies of the Department. At the end of fiscal year 1952, the Department had over 5,000 fixed stations operating on about 250 different frequencies.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 141
POWER MARKETING DATA, FISCAL YEAR 1952
1 • ......
BONNEVILLE POWER ADMINISTRATION
Paul J. Raver, Administrator
FINANCIAL RESULTS OF OPERATIONS
Excellent water conditions during the fiscal year ending June 30, 1952, and a continuation of heavy demands for power from defense industries and distributors combined to boost gross revenues of the Columbia River power system to a new peak of $40,180,146, an increase of $3,991,118 or 11 percent over the previous year. Net revenues, after repayment of all expenses for operation, maintenance, administration, marketing, depreciation, and interest were $15,890,642, a gain of $1,395,090 or 9.6 percent over 1951.
The net revenues for 1952 would have been $311,147 greater except for an important change in accounting policy adopted by the Bonneville Power Administration for 1952 to reflect in its accounts the share applicable to its activities of the estimated costs to the Federal Government of the civil-service retirement system. As indicated in the summary table of revenues and expenses, an adjustment was also made for the estimated retirement system costs for prior years in the amount of $1,451,593, including compound interest on prior years’ charges, reducing the net results for the year carried to accumulated net revenues to $14,439,049. In addition to these pension cost charges against net revenues, the new accounting policy increased the capital investment or plant account by $2,645,782 consisting of $541,904 for 1952 and $2,103,878 for prior years. The grand total adjustment, made only in the accounts of the Bonneville Power Administration and not in the accounts of the two generating projects, was $4,408,522.
Net revenues carried to accumulated surplus net revenues were $14,439,049 in 1952 after the prior years’ pension charges adjustment, and brought the total net as of June 30, 1952, to $83,578,662. The Administration anticipates further increases in gross operating revenues in 1953 but a decline in net revenues. New projects, Hungry Horse, Albeni Falls, and Detroit, will be in partial operation in fiscal
143
144 A ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
year 1953. The added generation will contribute gross revenues, but will reduce net revenues since these projects have been constructed at higher costs than the existing dams and they will be only partially completed. Moreover, costs generally for labor and supplies have risen in recent years. However, no increases have been made in the Administration’s basic power rates since their adoption in 1938.
TABLE I—Columbia River power system—condensed summary of revenues and expenses
Fiscal year 1951 Fiscal year 1952 Total to June 30, 1952
Operating revenues . - _ _ _ $36,189,028 $40,180,146 $265, 253, 885
Expenses of operation, maintenance, etc Provision for depreciation - _ .
8, 657,494 r 6,496, 777 6, 532,009 7,196 9,367, 657 7,147, 815 7, 608, 214 165, 818 70,846, 950 44, 788, 565 63,317,674 1, 270,441
Interest expense _ - . .. -.
Miscellaneous deductions, net . Total deductions -
21, 693, 476 24, 289, 504 180, 223,630
Surplus net revenues from power operations Adjustment for prior years’ pension costs
14,495, 552 15,890, 642 1,451, 593 85,030, 255 1 1,451, 593
Amount carried to accumulated net revenues
14,439, 049 83, 578, 662
1 Includes $1,117,173 for direct charges to operation and maintenance plus $334,420 interest expense. Hence, cumulative expenses of operation, etc., shown above as $70,846,950 become-$71,964,123 and the cumulative interest expense figure of $63,317,674 becomes $63,652,094.
Summary of Revenues
Revenue trends by customer categories are summarized in table II. Aluminum with 33.29 percent and other industries, 11.57 percent, accounted for nearly one-half or 45.86 percent of gross for 1952. Publicly-owned utilities ranked second with about one-third or 32.29 percent and privately owned utilities followed with about one-fifth or 21.22 percent.
Sales to the aluminum industry decreased slightly $147,069 or 1.1 percent, due principally to a brief curtailment of operations at the Reynolds plant at Longview for rehabilitation purposes necessitated by an expansion program. Other industrial sales were up $875,220 or 23.2 percent, representing increased usage by Chromium Mining and Smelting Corp, and the Atomic Energy Commission plus a new customer, Victor Chemical Works.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 145
TABLE II — Revenues by class of customer through fiscal year 1952
146 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Sales to publicly owned utilities gained $3,025,116 or 30.4 percent. This gain resulted in large part from general growth in the regional power requirements plus a few special factors such as increased sales of about $900,000 to City Light of Seattle, largely as a result of the city’s acquisition of properties of Puget Sound Power & Light Co. Sales to privately owned utilities remained almost unchanged in total, but increased sales to companies other than Puget were offset by the transfer by the latter of its Seattle properties to the city of Seattle.
Repayment of Federal Investment
All funds required for construction of plant, for working capital costs and materials and for miscellaneous assets are obtained from congressional appropriations, directly or indirectly, except for a small amount obtained from power sales through a continuing fund available to insure continuous operation or to meet emergencies. All receipts from sales or other sources are returned to the Treasury, except for the small amounts transferred to the continuing fund. Interest at 2% percent per year is computed on the net balance and is added to and becomes a part of the gross investment of the Federal Government. Details of the interest accumulation are given in table III. Table IV summarizes the Federal investment.
TABLETIII.—Columbia River power system—Summary of interest1 on Federal investment as of June 30,1952
Interest during construction—to be returned during repayment period as part of the
Federal investment:
Transmission system--------------------- $3, 012, 802. 81
Bonneville Dam project__________________ 2, 331, 652. 95
Columbia Basin project------------------ 9, 718, 739. 70
Subtotal---------------------------------------------
Interest on costs of Columbia Basin project allocated to future river regulation—to be returned as part of repayment of future down-stream projects---------------------------------
Interest charged to operations—repaid currently:
$15, 063,195. 46
10, 318, 658. 93
Transmission system_____________________$21, 923, 366. 93
Bonneville Dam project__________________ 16, 033, 343. 59
Columbia Basin project------------------ 25, 695, 383. 95
Subtotal.
63, 652, 094. 47
Gross interest accumulation.
_ 89, 033, 948. 86
1 Computed at the rate of 2% percent per year.
Receipts of $251,845,393 have repaid all the current expenses for operation, maintenance, interest, and miscellaneous items and have left a remainder of $123,005,866 in repayment of the capital investment. This repayment has reduced the net unpaid Federal invest
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 147
ment to $410,857,174 and represents the return to the Treasury of 23 percent of the gross capital investment of $533,863,040, consisting primarily of electric utility plant which is shown in table V. The repayment is substantially greater than required to meet scheduled return of capital costs.
TABLE IV.—Columbia River power system—Summary of Federal investment and repayment as of June 30,1952
Gross investment
Repayments
Net investment
Investment in expenses of operation, maintenance, etc.:
From congressional appropriations—direct...___________
From congressional appropriations—indirect1___________
From power sales receipts—continuing fund_____________
Total for operation, maintenance, etc_______________
Investment in interest expense 2__________________________
Total current expense_______________________________
Investment in capital costs (plant, working capital, etc.):3 From congressional appropriations—direct_________________
From congressional appropriations—indirect:
Allotments from PWA funds__________________________
WPA expenditures___________________________________
Other 1____________________________________________
Interest on Federal investments 2_____________________
From power sales receipts—continuing fund_____________
Total capital investment of the Federal Government__
Total current expense and capital costs_____________
$62, 221,180
2, 790, 049
176, 204
65,187, 433 63, 652, 094 $65,187, 433 63, 652, 094 0 0
128, 839, 527 128, 839, 527 0
452, 827,165 43, 200, 800 6. 674,130 4, 692, 691 25, 381, 854 1, 086, 400
533, 863, 040 123, 005, 866
662, 702, 567 251, 845, 393
410,857,174
410, 857,174
i Goods and services received from, net of amounts furnished to, other Federal agencies without transfer of funds.
2 The Columbia River power system does not pay interest from its appropriations but imputes interest expense at 2)4 percent per year and returns receipts to the Treasury in repayment of such costs.
3 Consists of utility plant of $515,602,079, cash (including a $500,000 balance in the continuing fund), materials, etc.
TABLE V.—Columbia River power system—Summary of plant accounts as of June 30,1952
Total Alloc Nonpower ation Power
Bonneville Power Administration. . ... . ... $249,039, 489 86, 773, 504 445, 222, 773 $249,039,489 59, 507, 231 207,055,359
Bonneville Dam project .. . $27, 266, 273 238,167,414
Columbia Basin project ...
Total. .. ....
781,035, 766 265,433, 687 ’ 515,602,079 44, 623,044
Less combined reserve for depreciation .. _
Total less reserve ...
470,979,035
1 As of June 30, 1952, the gross Federal investment in power plant and other power capital items was $533,863,040 consisting of the $515,602,079 investment in plant (dams, power plants, transmission facilities, etc.) plus cash, materials, supplies and miscellaneous. Of the gross capital investment, $123,005,866 (23.0 percent) had been repaid to the U.S. Treasury from cash receipts after meeting all expenses for operation, maintenance, and interest, leaving an unpaid balance of $410,857,174.
148 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
On an individual project basis, the return of the power capital investment has been as follows:
Gross power capital investment Repaid as of June 30, 1952 Net power investment
Bonneville Power Administration Bonneville Dam project Columbia Basin project Total _ - $255, 557, 049 59, 874, 490 218, 431, 501 $67, 552, 561 18, 699, 654 36, 753, 651 Percent 26.4 31.2 16.8 23.0 $188, 004. 488 41,174, 836 181, 677, 850
533, 863,040 123, 005, 866 410, 857, 174
The foregoing data on repayment of the investment are based on the certified cost accounts maintained in accordance with the Federal Power Commission uniform system of accounts. On a statutory repayment basis, results are the same for the Bonneville Power Administration and Bonneville Dam, but different for the Columbia Basin project since in the case of the latter (1) power revenues must pay operation and maintenance costs of Grand Coulee Dam and power plant allocated to irrigation, (2) interest expense is computed at 3 percent rather than 2% percent, and (3) other differences such as the exclusion of interest during construction in the pay-out accounts of the Columbia Basin project. Although final data are not available, the additional costs for expenses and interest to be paid from power revenues were approximately $2,001,000 for operation and maintenance and $4,838,000 for interest to June 30,1952.
SUMMARY OF OPERATIONS
Energy Production
Power generated at Bonneville and Grand Coulee power plants for the Administration exceeded 18.5 billion kilowatt-hours of electric energy during fiscal year 1952. This was more than 60 percent of all powTer produced in the Pacific Northwest during the year. Power produced during the fiscal year brought total production from the two Columbia Biver plants since July 1939 to 115.6 billion kilowatt-hours and reflected an increase of 12.6 percent over fiscal year 1951.
New System Peak
A new system peak was recorded between 5 and 6 p. m., December 31, 1951, with a coincidental demand on Bonneville and Grand Coulee plants of 2,784,000 kilowatts, a 10-percent increase over the previous fiscal year’s maximum demand of 2,535,000 kilowatts, occurring during June 1951.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 149
1942 1943 1944 1945 1946 1947 1948 1949 1950 1951 1952
150 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE VI — Generation at Bonneville and Grand Coulee plants for Bonneville Power Administration, fiscal years 1939-52
[Thousands of kilowatt-hours]
Fiscal years ending June 30
Bonneville Grand Coulee Total genera-generation generation tion for BPA
1939-.---------------------------------------------------------
1940______________________________________-........—-----------
1941__________________________________________________________-
1942___________________________________________________________
1943____________________;______________________________________
1944___________________________________________________________
1945___________________________________________________________
1946___________________________________________________________
1947___________________________________________________________
1948___________________________________________________________
1949___________________________________________________________
1950___________________________________________________________
1951___________________________________________________________
1952_________.-------------------------------------------------
Total____________________________________________________
34,874
208,426
894,177
1,807, 309
2,801,480
3, 488,874
3,391,128
2, 674, 834
3, 695, 255
3, 991,860
3,868, 558
3, 689,309
3, 793, 276
4, 462, 935
38,802, 295
7,455
741,844
2, 816,956
5, 750, 950
5, 660, 446
3, 561, 329
5,058, 482
1 6,894,047
1 9,057, 230
1 10,451, 524
i 12, 679,108
J 14,092, 466
1 76, 771,837
34,874
208, 426
901, 632
2, 549,T53
5,618,436
9, 239, 824
9,051, 574
6, 236,163
8, 753, 737
10,885, 907
12,925, 788
14,140,833
16, 472,384
18, 555,401
115, 574,132
1 Includes energy transferred for Bureau of Reclamation.
Since the fall of 1946, maximum system demands have continuously exceeded the nameplate rating of installed generators. Energy production by years at Bonneville and Grand Coulee plants is shown in table VI, with peak demand and energy data in chart 1. Prepared on a quarterly basis the chart shows clearly the general trends of Bonneville Power Administration system growth and development.
Energy Receipts and Deliveries
Bonneville Power Administration’s transmission grid forms the backbone of the interconnected transmission system of public and private utilities in the Pacific Northwest. As a result electric energy receipts and deliveries on Bonneville’s transmission system cover many complex transactions in addition to receipts from Bonneville and Grand Coulee generation, and deliveries by sales.
The integrated transmission grid makes possible the fullest utilization of power facilities in the area through diversity in peaking and water capabilities and diversity of system load conditions. Substantial quantities of energy are received and delivered as transfers from other utilities.
Transactions also involve storage by the Administration in non-Federal reservoirs as well as storage by non-Federal utilities in the Grand Coulee reservoir. Disposition of energy includes deliveries from storage in Grand Coulee or to storage in other reservoirs, energy transfers for the Bureau of Reclamation from Grand Coulee, energy used by the Administration and energy losses in transmission and transformation.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 151
Table VII, electric-energy account, summarizes energy receipts and deliveries.
TABLE VII.—Electric energy account, fiscal year ended June 30,1952
Energy received (thousands of kilowatt-hours) :
Energy generated for Bonneville Power Administration:
Bonneville_______________________________________________
Grand Coulee_____________________________________________
Total--------------------------------------------------
Power purchased and interchanged in___________________________
Total received_____________________________________________
Energy delivered (thousands of kilowatt-hours) :
Sales_________________________________________________________
Power interchanged out________________________________________
Used by Administration________________________________________
Total delivered--------------------------------------------
Energy losses in transmission and transformation______________
Losses as percent of total energy received__________percent___
Maximum demand on Bonneville and Grand Coulee plants (kilowatts) :
Dec. 31,1951, 5-6 p. m. Pacific standard time________________
Load factor, total generated for Bonneville Power Administration____________________________________________percent—
4, 462, 935
114, 092, 466
118, 555,401
1,119,425
19, 674, 826
17, 022, 998
11, 076, 574
19, 376
18,118, 948
1, 555, 878
7.9
2, 784, 000
75.9
1 Includes energy transferred for Bureau of Reclamation.
Sales Exceed 17 Billion Kilowatt-Hours
Energy sales to customers of the Bonneville Power Administration exceeded 17 billion kilowatt-hours during fiscal year 1952, an increase of 12.9 percent over the previous year. Energy losses in transmission and transformation of power were 1.6 billion kilowatt-hours, or 7.9 percent of total energy received on the system.
Critical water conditions existing last fall made curtailment of power to aluminum plants and other large industries necessary, with some curtailment during peaking periods being necessary during 8 months of the year. As a result of a brief shutdown at the Longview Reynolds plant for construction, and critical water conditions, 1 percent less energy was sold to aluminum plants than during the previous fiscal year. Deliveries to all other classes of customers showed increases with the largest being in deliveries to public utilities, an increase of 41 percent. Firm energy deliveries to private utilities increased 6 percent; industries other than aluminum, 37 percent; and Federal agencies 17 percent.
Composite Average Rate 2.41 Mills
The Administration has delivered 107,480,705,000 kilowatt-hours of energy at a composite average rate of 2.41 mills per kilowatt-hour during the 14 years of operation ending June 30, 1952. Sales to publicly owned utilities for this period were 18.5 billion kilowatt-
152 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
hours at an average rate of 2.80 mills. Privately owned utilities received 26.7 billion kilowatt-hours at an average rate of 2.37 mills, and industries 62.3 billion kilowatt-hours at an average rate of 2.31 mills. Power sales to the aluminum plants initially established in the Pacific Northwest to meet World War II production needs and expanded to meet current requirements, were 52.2 billion kilowatt-hours at an average rate of 2.20 mills. Sales to industries other than aluminum including sales to Federal agencies were 10 billion kilowatt-hours at an average rate of 2.91 mills. Since 1942 fhe proportion of energy sales delivered to aluminum plants with high-load-factor usage of electric energy, has been decreasing, resulting-in a tendency toward higher average mills per kilowatt-hour. Increasing load factors developed by other customers made possible by favorable stream flows during the past fiscal year except for a short period last fall, have counterbalanced this tendency in fiscal year 1952 to give 2.31 mills per kilowatt-hour, as compared to 2.37 and 2.38 mills per kilowatt-hour for the previous two fiscal years. The same set of rate schedules, based on $17.50 a kilowatt-year, is available to all customers, but the average rate varies according to the customer’s system load conditions and the rate schedules best adapted to those load conditions.
Electric energy sales by class of customer for each of the 14 years’ operation are shown in table VIII. Detail of energy deliveries to these four classes of customers is shown in chart 2. The relative size and growth of energy sales to aluminum plants, other industries, privately owned utilities, and publicly owned utilities is shown in the chart while detail by customers of energy sales during fiscal year 1952 is shown in table IX.
TABLE VIII—Electric energy sales by class of customer, fiscal years 1939-52
[Thousands of kilowatt-hours]
Fiscal years ending June 30 Industry Publicly owned utilities Privately owned utilities Total
Aluminum Other industries1
1941 and prior 2 1942 522,982 1, 845, 249 3, 588, 848 5, 453,893 4, 667,381 2,492, 985 4, 212,413 4,902,465 5, 665, 746 5.863,465 6, 544, 703 6,471, 694 4,829 79,155 507,196 1, 022, 477 964, 724 799, 378 626, 688 646,913 881,454 1,023, 830 1, 537, 580 1, 941,968 35,242 142,491 435, 289 727, 642 823, 822 635, 531 1,044, 784 1, 560, 754 2, 079, 290 2, 840, 021 3,413, 487 4, 803,357 536, 555 357, 704 739,076 1,467,304 2,057, 203 1,9C2, 990 2,377, 887 3,180, 993 3,343, 983 3,318, 719 3, 582, 586 3, 805,979 1,099, 608 2, 424, 599 5, 270,409 8,671,316 8, 513,130 5, 830, 884 8, 261, 772 10, 291,125 11,970,473 13,046,035 15,078,356 17, 022, 998
1943
1944
1945
1946
1947
1948
1949
1950 .
1951
1952
Total to June 30, 1952
52, 231, 824 10,036,192 18, 541, 710 26, 670, 979 107, 480, 705
1Includes Federal agencies.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 153
TABLE IX.—Energy deliveries to customers of the Bonneville Power Administration, fiscal year ended June 30, 1952
CUSTOMERS
Publicly owned utilities:
Municipalities:
Energy deliveries for year1 (kiloicatt-hours)
Bandon, Oreg___________________________________________ 8,352, OOO
Canby, Oreg____________________________________________ 8, 064, 000
Cascade Locks, Oreg____________________________________ 7,382, 400
Centralia, Wash------------------------------------------- 6, 683, 000
Cheney, Wash_____________________________________________ 10, 400, 287
Drain, Oreg____________________________________________ 6,948, 000
Ellensburg, Wash_________________________________________ 25, 939, 680
Eugene, Oreg_____________________________________________ 64, 712, 639
Forest Grove, Oreg--------------------------------------- 27, 547, 488
Grand Coulee, Wash_______________________________________ 18, 993, 600
McCleary, Wash___________________________________________ 12, 849, 600
McMinnville, Oreg________________________________________ 40, 284, 300
Milton, Oreg_____________________________________________ 12, 432, 000
Monmouth, Oreg____________________________________________ 7, 946, 370
Seattle, Wash__________________________________________ 874,328,172
Springfield, Oreg________________________________________ 12, 955, 200
Tacoma, Wash___________________________________________ 820,503,000
Total municipalities (17)______________________________ 1,966,321,736
Public utility districts:
Benton County public utility district No. 1------------------ 75, 599,654
Central Lincoln public utility district______________________ 82, 602, 400
Chelan County public utility district No. 1__________________ 245, 608, 818
Clallam County public utility district No. 1_________________ 65, 566,136
Clark County public utility district No. 1___________________ 314, 633,300
Clatskanie public utility district___________________________ 11, 959, 200
Cowlitz County public utility district No. 1_________________ 303, 073, 084
Douglas County public utility district No. 1_________________ 57, 586, 700
Ferry County public utility district No. 1___________________ 568, 504
Franklin County public utility district No. 1---------------- 53, 412, 000
Grant County public utility district No. 2___________________ 120, 291,240
Grays Harbor County public utility district No. 1____________ 181, 082, 088
Kittitas County public utility district No. 1________________ 5, 074, 500
Klickitat County public utility district No. 1_______________ 36, 988, 278
Lewis County public utility district No. 1_______________’___ 88, 478, 770
Mason County public utility district No. 3___________________ 88, 504, 800
Northern Wasco County public utility district________________ 6, 998, 400
Okanogan County public utility district No. 1________________ 66,149, 583
Pacific County public utility district No. 2_________________ 53, 295,145
Pend Oreille County public utility district No. 1____________ 33, 573, 301
Skamania County public utility district No. 1________________ 16, 448, 800
Snohomish County public utility district No. 1_______________ 446, 597,194
Tillamook public utility district____________________________ 37, 556, 200
Wahkiakum County public utility district No. 1_______________ 9, 823, 671
Total public utility districts (24)____________________ 2,401,471,766
See footnote at end of table.
154 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE IX.—Energy deliveries to customers of the Bonneville Power Administration, fiscal year ended June 30, 1952—Continued
customers—continued
Energy deliveries for year 1
Cooperatives: (kilowatt-hours)
Benton Lincoln Electric Cooperative----------------------- 64, 069, 710
Benton Rural Electric Association------------------------- 22, 752, 973
Big Bend Electric Cooperative----------------------------- 15, 783, 232
Blachly-Lane County Electric Cooperative------------------ 8, 610, OOO
Central Electric Cooperative------------------------------ 7,397,560
Chelan County Electric Cooperative------------------------ 600, 600
Clearwater Valley Light and Power Association------------- 23,336,300
Columbia Basin Electric Cooperative----------------------- 4, 772,400
Columbia County REA--------------------------------------- 11, 780, 950
Coos-Curry Electric Cooperative--------------------------- 8, 346, 000
Douglas Electric Cooperative------------------------------ 22,194, 632
Eastern Oregon Electric Cooperative_______________________ 1, 033, 800
Hood River Electric Cooperative--------------------------- 8, 944, 800
Idaho County Light and Power Association------------------ 5, 914,350
Inland Empire REA----------------------------------------- 46, 840, 300
Kootenai County REA_______________________________________ 7,692,730
Lane County Electric Cooperative-------------------------- 27,983,712
Lincoln Electric Cooperative—Montana---------------------- 1, 912, 800
Lincoln Electric Cooperative—Washington___________________ 11, 806, 039
Missoula Electric Cooperative----------------------------- 3, 328, 544
Nespelem Valley Electric Cooperative---------------------- 4, 924, 000
Northern Lights___________________________________________ 7,133,440
Okanogan County Electric Cooperative---------------------- 2, 458, 750
Orcas Power and Light Co---------------------------------- 2, 502, 720
Pend Oreille Electric Cooperative_________________________ 4, 642,107
Ravalli Electric Cooperative------------------:----------- 3, 845, 880
Salem Electric Cooperative-------------------------------- 27, 776, 800
Sandy Electric Cooperative-------------------------------- 2, 035, 836
Stevens Co. Electric Cooperative-------------------------- 15, 956, 000
Tanner Mutual Power and Light Association_________________ 243, 099
Umatilla Electric Cooperative----------------------------- 15, 961, 555
Wasco Electric Cooperative-------------------------------- 16, 739,122
West Oregon Electric Cooperative-------------------------- 11, 803, 355
Total cooperatives (33)__________________________________ 421,124, 096
Other: •
Oregon State College---------------------------------------- 18, 720
Vanport Extension Center____________________________________ 621, 720
Vera irrigation district No. 15----------------------------- 13, 798, 400
Total other (3)_______________________________________ 14,438,840
Total publicly owned utilities-------------------------------------- 4, 803, 356, 438
See footnote at end of table.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 155
TABLE IX.—Energy deliveries to customers of the Bonneville Power Administration, fiscal year ended June 30,1952—Continued
customers—continued
Energy deliveries for year 1
Privately owned utilities: (kilowatt-hours)
British Columbia Electric Ry. Co--------------------------- 61, OOO
California Oregon Power Co_________________________________ 13, 721, 781
Montana Power Co___________________________________________ 39, 990, 261
Interconnected Pool2_______________________________________ 599, 558, 284
Mountain States Power Co___________________________________ 174, 785, 928
Pacific Power and Light Co.—Astoria---------w----------------------------
Pacific Power and Light Co.—-Astoria and main system------- 721,120, 000
Portland General Electric Co_______________________________ 1, 445, 932, 000
Puget Power and Light Co----------------------------------- 238, 597, 000
Washington Water Power Co.-Pacific Power and Light Co--------------------
Washington Water Power Co---------------------------------- 273, 557, 000
Washington Water Power Co.—Kootenay Lake___________________ 298, 656, 000
Total privately owned utilities (8)------------------- 3, 805, 979, 254
Federal agencies (12)--------------------------------------- 919, 699, 041
Industries:
Aluminum:
Aluminum Co. of America:
Vancouver plant--------------------------------- 1,479,768,269
Wenatchee plant_________________________________ 3,132, 000
Kaiser Aluminum & Chemical Corp.:
Spokane Aluminum Fabrication____________________ 225, 287, 505
Spokane Aluminum Reduction---------------------- 2, 477, 028, 973
Tacoma Aluminum Reduction_______________________ 441, 662, 981
Reynolds Metals Co.:
Longview plant__________________________________ 486, 391, 240
Troutdale plant--------------------------------- 1, 358, 422, 548
Other:
Carborundum Co______________________________________ 88, 410, 000
Crown Zellerbach Corp_______________________________ 111, 462, 045
Electro Metallurgical Co____________________________ 129,113, 528
General Services Administration_____________________ 311, 413, 575
Keokuk Electro Metals Co____________________________ 131, 030,104
Pacific Carbide & Alloys Co------------------------- 37, 653, 931
Pennsylvania Salt Manufacturing Co__________________ 134, 596, 084
Rayonier Corp_______________________________________ 22, 364, 628
Victor Chemical Works_______________________________ 56,225,425
Total industries (16)_______________________________ 7,493,962,836
Total sales of electric energy (113)3____________________ 17,022,997,569
1 Includes energy deliveries carried on exchange accounts.
2 Includes Mountain States Power Co., Pacific Power & Light Co., Portland General Electric Co., Puget Sound Power & Light Co., and Washington Water Power Co.
3 112 customers as of June 30, 1952 ; service to 1 customer discontinued during year.
226396—53——11
156 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Rate Schedules Summarized
A sales summary for fiscal year 1952, classified by rate schedules, is shown in table X. Over three-fourths of energy sales during the fiscal year were made under the C schedule at an average rate of 2.09 mills. This is the kilowatt-yea]1 rate for firm power delivered anywhere from the transmission system and is also used with special measured demand provisions for sales of interruptible power. Sales are generally made under this rate to industries operating at high load factor and to utilities having substantial generating facilities. Other sales were made principally under the E schedule to utilities purchasing all or substantially ah of their power requirements from the Administration. Sales under the F schedule were made to the utilities and industries requiring power at low load factor use and under the H schedule for dump, exchange, or experimental purposes.
During an emergency at Grand Coulee on March 14, the Administration purchased steam generated power. The bulk of this power was resold at cost, 8.61 mills per kwh, to Bonneville customers and the remainder was used to satisfy the Administration’s firm commitments.
Customers Served
Customers served by the Administration at the end of the fiscal year totaled 112, including 76 public-owned distributors of power, 16 industrial customers, 12 Federal agencies, and 8 privately owned utilities. Five customers were added during the year—the Orcas Power & Light Cooperative, Aluminum Co. of America at Wenatchee, Victor Chemical Works at Silver Bow, the United States Indian Service, and a radio station of the United States Navy. Service to Oregon State College was discontinued.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 157
IB BILLION
158 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE X.—Electric energy sales by rate schedules, fiscal year ended June 30,1952
Rate schedule Energy (thousands of kilowatt-hours) Revenue 1 Mills per kilowatt-hour
C-3, C-4: Industries . . .. .. .. 7, 881, 460 $16, 291,322 2.07
Utilities - - __ -- - 5,148, 515 10, 937, 770 2.12
Subtotal - _ . 13,029, 975 27, 229,092 2.09
F-2, F-3, F-3: Industries Utilities- - 250,325 84, 321 895, 966 341, 854 3.58 4.05
Subtotal . . - - _ 334, 646 1, 237,820 3.70
A-4: Utilities- - 21,108 2, 512,147 1,125,122 70,025 3. 32
E-3, E-4: Utilities _ . . ... 7, 973,051 3.17
Experimental steam, H-2, H-3, and exchange (industries and utilities) - - - - - 2, 835, 843 2. 52
Total sales. . . . .. 17,022, 998 39,345, 831 2.31
Reconciliation with accounting records 180. 601
Other electric revenues-- _ 653, 714
Total operating revenues. ___________ 40,180,146
1 Sales statistics include billing adjustments or revisions made subsequent to close of accounting records.
Note.—Major features of rate schedules:
C-3, C -4: Kilowatt-year rate for transmission firm system power.
F-2, F-3, F-4: Demand energy rate for firm power.
A-4: Kilowatt-year rate for at site firm power.
E-3, E-4: Demand energy rate for firm power for resale to ultimate consumer.
Experimental: Energy rate of 2.5 mills for developmental purposes.
H-2, H-3: Energy rate for dump, emergency, or breakdown service.
Exchange: Gross exchange account deliveries at dump energy rate.
Interruptible: Billed under C-4 and F-4 schedules with special measured demand provisions.
Low Rates Stimulate Power Use
All long-term wholesale contracts with distributors of Bonneville power contain provisions regarding resale rates and principles of operation to insure distribution for the benefit of the general public, and particularly domestic and rural consumers. The direct relationship of increased use of electric energy to the influence of lower rates is well illustrated in table XI. This shows the trends from 1938 to date on the average use and price for residential, home, and farm service in the Pacific Northwest as compared with the national average.
Added Generating Capacity
Energization of the final unit in the right powerhouse at Grand Coulee during the year, completed the 18 generator installation and increased the combined Bonneville-Grand Coulee nameplate rating to 2,462,400 kilowatts, with a maximum peak generating capability of 2,724,000 killowatts.
Federal projects existing, under construction, authorized, or recommended by the Corps of Engineers, Bureau of Reclamation, and the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 159
Bonneville Power Administration are shown in table XII. Complete development of these multipurpose projects will provide a total of 27.3 million acre-feet of storage space for flood control and over 12 million kilowatts of peaking capability needed to meet the region’s power requirements.
Non-FederaS Additions
A few additions were made to non-Federal utility generating facilities during the year. The Idaho Power Co. completed its C. J. Strike plant with an installed capacity of 81,000 kilowatts, California Oregon Power Co. completed the Fish Creek plant, and Portland General Electric Co. added a 5,000 kilowatt unit at station M. In addition to these hydro installations, the Montana Power Co. completed the F. W. Bird steam plant with a nameplate rating of 60,000 kilowatts. Additions presently planned by the non-Federal utilities during the next 3 years are shown in table XIII.
TABLE XI.—Residential and rural service—average use per customer and average price per kilowatt-hour
Calendar year Kilowatt-hours per customer Price per kilowatt-hour
United States total Oregon and Washington United States total Oregon and Washington
• Cents Cents
1938 902 1,410 4.02 i 2. 65
1939 953 1,467 3.87 i 2. 55
1940 - 1,006 1,589 3. 74 2. 27
1941 - 1,044 1,776 3. 65 2.08
1942 1,088 2,024 3. 57 1.94
1943 1,135 2,279 3.50 1.84
1944 - 1,225 2,504 3.41 1.74
1945 - 1,305 2,801 3. 32 1. 69
1946 1,418 3,219 3.13 1.58
1947 _ 1,546 3,696 3.00 1.49
1948 . 1,674 4,160 2. 92 1.41
1949 - 1,806 4, 503 2. 87 1.38
1950 - 1,951 4,867 2.81 1.36
195i 2,137 5, 205 2. 74 1. 34
i Partially estimated from State commission data. Source: Edison Electric Institute.
160 ☆
ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
TABLE XII.—General specifications—Existing, authorized and recommended projects—Installations and capabilities correspond to a coordinated system of operation of all plants shown
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 161
o
w
s
J »
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 169
amperes with forced cooling, chart 7. Additional static capacitors, with a capacity of 116,150 reactive kilovolt-amperes, were installed, bringing the total on the system to 742,550 reactive kilovolt-amperes. A new 50,000 kilovolt-ampere synchronous condenser wTas energized, bringing the total system capacity of this type of equipment to 407,500 kilovolt-amperes.
The major addition to the Administration’s high voltage transmission grid was the completion of the 230-kilovolt line between Midway and Detroit, tying in the previously constructed facilities between Grand Coulee Dam and Midway and Detroit Dam and J. P. Alvey substation, providing a direct 230-kilovolt transmission circuit between Grand Coulee Dam and the west central Oregon area. Because of delays in delivery of the transformers at Detroit and Alvey, this circuit was placed in service initially at 115 kilovolts with plans for energization at 230,000 volts early in fiscal year 1953.
Increased transmission capacity required to carry power away from Grand Coulee Dam was provided by the energization of the Grand Coulee-Columbia line No. 4 and the Grand Coulee-Midway line No. 3. Additional service to the Puget Sound area was made possible upon completion of the Snohomish-Arlington and Snohomish-Bothell 230’-kilovolt lines. A second line constructed between Olympia and Shelton increased the capacity available to the Olympic Peninsula.
Major substation additions during fiscal year 1952 include an additional 250,000 kilovolt-ampere transformer at the Glenn H. Bell substation, Spokane, a 250,000 kilovolt-ampere transformer replacing a 66,666 kilovolt-ampere transformer at the Columbia substation, and a new 100,000 kilovolt-ampere transformer at the Oregon City substation.
New Construction in Progress
Major construction activity under way during fiscal year 1952, and scheduled for completion in fiscal year 1953, was concentrated in the western Montana area, with construction contracts in progress on lines connecting Hungry Horse Dam and Anaconda to the main 230,000 volt grid by way of Spokane. Extension of the transmission system further down the power-short southern Oregon coastal area was pushed forward with construction contracts awarded for a 115,000-volt line between Bandon, Port Orford, and Gold Beach, scheduled for completion early in 1953 fiscal year.
Extensive right-of-way clearing operations were under way in fiscal year 1952 prior to construction of high voltage lines between McNary Dam and Troutdale, Columbia and Olympia, and a line to Klamath Falls in southern Oregon.
170 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Special Projects and Engineering Advances
The second installation of series capacitors on the system was placed in service during fiscal year 1952 at the Rocky Ford compensation station on the Grand Coulee-Midway 230,000-volt line No. 3, increasing the capacity of this line by 33 percent. Successful use of series capacitors at Rocky Ford, and at the previously energized Chehalis installation, justifies further use of this device on other transmission lines, thereby increasing the capacity of these circuits and improving their operating characteristics. An additional installation will be placed in service early in fiscal year 1953 and studies are in progress to determine the most beneficial locations for future applications of this equipment.
Contracts were awarded for two 400,000-kilovolt-ampere 230,000-300,000 volt autotransformers scheduled to be installed in December 1954 on the Grand Coulee-Olympia transmission line. These transformers are the first pieces of such high voltage level equipment placed on order since the decision of the Administration to study and adopt transmission voltages higher than 230,000 volts. Studies continued throughout the year and plans are being made for future circuits to be operated at 300,000 and 345,000 volts.
Use of higher voltage transmission is expected to result in considerable economic savings because of the increased loadings possible on a single circuit, with the resultant savings in the number of transmission circuits required, especially in lines which traverse the difficult and costly construction terrain of the Cascade passes. The engineering staff believes use of higher transmission voltages will provide the basic solution to some of the problems inherent in the nation’s largest transmission system.
RECOMMENDATIONS
Inasmuch as operations from the inception of the Federal power program in the Pacific Northwest to June 30,1952, have produced net revenues of $83,600,000 after providing for all expenses for operation, maintenance, administration, marketing, etc., interest and depreciation, the Administration has not found it necessary to increase the basic wholesale rate level since its adoption in 1938 despite the very general and substantial increase in all types of cost during the war years and the post war period. Beginning with fiscal year 1953 and continuing for many years, new dams, constructed at higher cost levels than those of the existing dams, will be placed in operation. The Administration anticipates that as the result of the addition of these higher cost power supplies to the system, together with higher costs generally for goods and services, some increases in the wholesale
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 171
power rate level may be required at the next rate adjustment date, December 1954. The Administration recommends that financial policies, which have been substantially unchanged from the rather arbitrary principles adopted originally for the existing projects, underlying the fixing of rate levels be reviewed critically prior to a determination of the changes, if any, that may be required in rates in 1954. The following specific recommendations are submitted for immediate consideration:
1. The Administration recommends that all costs incurred by the Government as a whole for the benefit of the Federal power program in the Pacific Northwest, regardless of whether such costs are met from the appropriations of the power agencies or from the appropriations of other Federal agencies, be reflected in the power cost accounts to the extent such costs are material and are susceptible of reasonably accurate determination by direct analysis. Costs incurred from appropriations other than those made directly to the power agencies included interest, claims paid by the Bureau of Employees' Compensation, the civil service retirement system costs, and goods, rents and other services supplied by the General Services Administration or other Federal agencies. The power accounts have always reflected some of these costs, principally interest, but not all of them.
2. The Administration recommends that the 50-year period heretofore comprising the general standard for the repayment of the power investment be modified to conform more closely to generally accepted electric utility practice with respect to the recovery of capital costs. The present 50-year limitation is extremely conservative—much more so, in fact, than the standard followed in the private electric utility business—and presumably reflects the opinion that the possibility of economic obsolescence precludes looking ahead more than 50 years at any time. However, the application of the 50-year limitation on an individual project rather than on a system basis produces an illogical result inasmuch as it leads to the conclusion that the earlier dams terminate their economically useful life much sooner than the later dams that may be completed several years after the earlier ones. Any obsolescence factor, except for special conditions such as the silting of reservoirs, applies to the entire electric operation rather than to individual projects in the system. Accordingly, as a minimum modification of the repayment period, the maximum economic life should be established and reviewed from time to time for the entire power system operation and upon each revision of the estimate the total unpaid investment at that time should be scheduled for repayment over the remaining years in the assumed life period for the system. Under this plan it would still be possible, nevertheless, to provide that the repayment period would never be extended, as of
226396—53----42
172 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
any given time, more than 50 years in the future or beyond the economically useful life of the system or any project.
3. The Administration recommends that all revenues and costs of the power system, including nonpower costs to be returned from power revenues, be pooled on a system basis and that the present authority for such pooling be clarified by appropriate Executive or departmental order or by legislation if necessary. Such a policy is in accordance with the basic marketing and operating principles of the controlling statutes which require the sale of the power at the lowest possible rates consistent with sound business principles and the sale of power so as to encourage the most widespread use.
4. The Administration recommends the development and adoption by Executive or departmental order, or by legislation if necessary, of basic principles to govern the allocation of the joint costs of multiple purpose projects. Such allocations are an important prerequisite to the determination of power rate levels, but at best they are based on arbitrary procedures inasmuch as joint costs are, by definition, those that cannot be assigned directly to a single function. Accordingly, the simplest and most direct techniques or joint cost allocation should be the most acceptable.
5. The Administration recommends that legislation be sought to place the financing of the capital and operating costs of the power program on a businesslike basis. As of June 30, 1952, the capital investment in multipurpose dams and reservoirs, power plants, irrigation works, and the transmission system in the Pacific Northwest approached $1 billion (including completed projects and those under construction), of which the major portion is directly chargeable to commercial power operations or is to be returned to the Treasury from commercial power revenues. Estimates for the next several years indicate that an additional investment of approximately $350 million per year will be required in dams, reservoirs, power plants, navigation locks, flood-control facilities, irrigation works and the transmission facilities, if proposed program schedule is to be maintained. The traditional method of financing through annual congressional appropriations may very well be inadequate to meet this fund requirement.
SOUTHWESTERN POWER ADMINISTRATION
Douglas G. Wright, Administrator
In the fiscal year 1952, Southwestern Power Administration received $4,630,712 in appropriations for carrying on its over-all program; $3,375,000 was earmarked for the construction program, of which $600,000 was appropriated for the liquidation of previous contract authorizations; and $1,255,712 was allotted to the operations and maintenance program. Congress also authorized the Administration to take over the jurisdiction and control of the 15-mile Denison-Payne 132-kilovolt transmission line without transfer of funds.
ENERGY PRODUCTION
Adverse water conditions prevailed over the drainage areas of two projects under jurisdiction of the Administration. Rainfall over the the drainage area of Denison project was 25 percent below normal and in the Norfork project watershed rainfall was 10 percent below normal. In the Narrows basin rainfall was 10 percent above normal. Net generation from the three reservoir projects was as follows:
Kilowatt-hours
Denison________________________________________________ 142, 560, 000
Narrows_______________________________________________ 42, 526, 920
Norfork_____________________________________________________ 338, 925, 200
ENERGY DELIVERIES
Gross revenue from sales by the Administration during the year amounted to $2,635,193.60, and net revenue, after payment of purchase of power, interchange and service charges, totaled $2,567,311.54. By the end of the fiscal year, wholesale electric power and energy generated by the hydroelectric facilities under the marketing jurisdiction of the Administration were being sold to 18 rural electric coopera
173
174 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
tives, 11 municipalities, 5 private utility companies, and 1 United States military installation.
Net revenue from sales to preferred customers totaled $883,571.27, and to private utility companies $1,683,740.27 for power and energy delivered through the year.
The Administration delivered wholesale service to preferred customers directly over its own lines and also through the facilities of the Texas Power & Light Co., Southwestern Gas & Electric Co., Public Service Co. of Oklahoma, and Oklahoma Gas & Electric Co.
NEW POWER CONTRACTS
Reynolds Metals Co.
Southwestern Power Administration and the Arkansas Power & Light Co. negotiated a triparty contract with the Reynolds Metals Co. under which wholesale electric service will be furnished to the latter for the production of aluminum in Arkansas. The Administration will provide 150,000 kilowatts of peaking capacity and a monthly average of 30,000,000 kilowatt-hours to Arkansas Power & Light Co. The company, in turn, will deliver an estimated 80,000,000 kilowatt-hours per month to the Reynolds plant at approximately 110,000 kilowatts capacity.
Preferred Customers
Ten existing rural electric cooperative contracts were amended to increase contract demands a total of 3,675 kilowatts.
Nine new contracts were executed to serve customers under the Oklahoma contract. These include 7 municipalities with a total contract demand of 2,675 kilowatts, the partial load of one rural electric cooperative in the amount of 400 kilowatts, and the military installation of Fort Sill, Okla., with a contract demand of 4,000 kilowatts.
Contracts were executed for power to be delivered by the Southwestern Gas & Electric Co. for the account of the Administration in serving four rural electric cooperatives with a total demand of 4,065 kilowatts,.
Contracts were executed for electric service to be furnished by the Administration through the leased facilities of generating and transmission cooperatives to four municipalities with a total demand of 2,600 kilowatts.
At the end of the fiscal year 74 percent of the primary energy of the hydroelectric projects was being sold to preferred customers.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 175
CONTRACT NEGOTIATIONS
During the fiscal year, the Southwestern Power Administration has been negotiating an electric-service agreement with 12 private utility companies operating in the Southwest, This agreement is now before the Department of the Interior for study and recommendations.
The electric-service agreement is similar to the agreement between the Government and the Public Service Co. of Oklahoma and the Oklahoma Gas & Electric Co., and covers sale, exchange, purchase, and delivery of electric power and energy. The proposed agreement provides for the integration of part of the power and energy produced at Government-owned hydroelectric projects with power and energy produced by the plants of the utility companies. Under the proposed agreement, the capacity of hydroelectric projects would be used for supplying part of the peak loads in the area, while the companies would supply thermally produced power and energy for the off-peak loads of certain of the Government’s customers. The proposed agreement further provides that the transmission facilities of the companies can be utilized to serve loads of the preferred customers of the Government.
The following is a list of the 12 companies presently negotiating with the Government:
Arkansas-Missouri Power Co. Arkansas Power & Light Co. Central Louisiana Electric Co., Inc. The Empire District Electric Co. Gulf States Utilities Co.
Kansas City Power & Light Co.
Louisiana Power & Light Co.
Missouri Power & Light Co.
Missouri Public Service Co.
Missouri Utilities Co.
Southwestern Gas & Electric Co. St. Joseph Light & Power Co.
PERSONNEL
Total employment in the Administration at the close of the fiscal year was 300 full-time employees. Two hundred and twenty-six are serving under permanent or probational appointments; 62 under indefinite appointments; and 12 under excepted appointments. One hundred and forty employees have veterans’ preference including 134 men and 6 women. Forty-seven employees are under the benefits of the Social Security Act and 253 have Retirement Act benefits.
SUPPLY AND PROCUREMENT
Total expenditures for supply contracts, open-market transactions, and purchase orders for the fiscal year amounted to $351,037 (exclusive of contracts for transmission lines, substations, and equipment.). Responsibility for the maintenance of property records was defined in
176 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
a general order issued by the Administration covering real property and equipment. Procedure for opening bids and awarding contracts was established by general order and delegations of authority to execute contracts were given.
NEW ACCOUNTING SYSTEM
During the year, the Administration has made a complete revision of its accounting system and on-site audit procedures have been approved. The system and related procedures were worked out in conjunction with representatives of the General Accounting Office, Department of the Interior, and this Administration. The manual covering the procedures prescribed under the new accounting system has been submitted through the Department to the Comptroller General for review and approval in accordance with the Budget and Accounting Procedures Act of 1950, and has been approved by the Comptroller General.
LITIGATION
Southwestern Power Administration has been concerned with significant litigation during the fiscal year 1952 as follows:
Kansas City Power & Light Co. et al. v. Oscar L. Chapman, Secretary of the Interior et al. (Civil No. 4276-50, U. S. District Court, District of Columbia). This is a suit instituted by the Kansas City Power & Light Co. and nine other private utility companies in the southwestern area against the Secretaries of the Treasury, Agriculture, and Interior, the Administrators of Rural Electrification Administration and Southwestern Power Administration, for injunctive and declaratory relief primarily to enjoin the defendants from advancing, transmitting, lending, giving, or disbursing moneys to certain federated cooperatives in Missouri, Northwest Electric Power Cooperative, Central Electric Power Cooperative, and Sho-Me Power Corp., for the construction of the electric facilities or in furtherance of any of the projects described in the complaint. The cause is at issue and stands for trial October 13,1952.
No. 12095.—After the filing of the suit mentioned above, the Kansas City Power & Light Co. and five other private utility companies listed as plaintiffs in the District of Columbia suit filed a complaint before the Public Service Commission of Missouri against the Northwest Electric Power Cooperative and Douglas G. Wright, as Administrator of Southwestern Power Administration, to require the cooperative to obtain a certificate of convenience and necessity for its generation and transmission system in the State of Missouri, and to require Douglas
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 177
G. Wright as Administrator of SPA, to comply with the rules and regulations of the Public Service Commission of Missouri with respect to the sale and transmission of electric power and energy in the State of Missouri, which is now pending on motion to dismiss filed by both the cooperative and the Administrator.
United States v. Arkansas Power and Light Co. (No. 1370 L. R. Civil, U. S. District Court, Eastern District of Arkansas). This is an action for damages for breach of contract arising out of the energy sales agreement between the Government and the company of date February 20, 1945, through the failure of defendant to effectuate the $150,000 annual reduction called for by the contract. The case was heard during the period January 14 through January 17, 1952, and on March 20, 1952, the court entered judgment dismissing the Government’s complaint with prejudice for want of equity and reforming the contract by striking the date February 20, 1945, and substituting a date October 31, 1944, the date upon which the November 1944 rate schedules were approved. The Government filed its notice of appeal on May 1, 1952, and the appeal was docketed on July 28, 1952, in the United States Circuit Court of Appeals for the Eighth Circuit.
ARKANSAS-WHITE-RED BASINS INTER-AGENCY COMMITTEE
During the year, representatives of SPA participated with officials of other departments, bureaus, and agencies in plans and studies for the development of the Arkansas, White, and Red River Basins.
SPA SYSTEM
Southwestern Power Administration now maintains and operates approximately 980 miles of transmission line as shown on the system map (chart I). During the fiscal year, two substations, two switching stations, and approximately 18 miles of 66-kilovolt lines were added to the system. On June 28, 1952, the Norfork-Bull Shoals-Mansfield line and the Mansfield temporary substation were energized to supply power to Sho-Me Power Corp.
In fiscal 1953, four new projects will be added to SPA’s system (Bull Shoals in Arkansas, Fort Gibson and Tenkiller Ferry in Oklahoma, and Whitney in Texas). These will provide an initial capacity of 273,200 additional kilowatts for electric service to the Administration’s wholesale customers in the Southwest. Eighteen miles of 66-kilovolt line will be completed in 1953. Three switching stations, four substations, an extension to a substation, 15 unit substations, and approximately 15 miles of 66-kilovolt lines will be under contract in 1953.
178 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
SOUTHEASTERN POWER ADMINISTRATION
Charles W. Leavy, Administrator
POWER RESOURCES
Installed generating capacity almost doubled during the fiscal year 1952:
Project Basin Kilowatts of installed capacity
Beginning of year End of year
Allatoona Dale Hollow Center Hill Wolf Creek 1 Total Etowah (Ga.) .. Cumberland (Ky.) do do 74,000 36,600 135,000 74,000 36,600 135,000 180,000
245,600 425,600
1 90,000 kilowatts additional capacity to be installed by August 1952.J
Projects under construction moved closer to initial operation:
Project Basin Operation of first unit Ultimate capacity in kilowatts
Clark Hill.... John H. Kerr Philpott Jim Woodruff Cheatham Buford ...... Total Savannah (Ga.) Roanoke (Va.) do Appalachicola (Fla.) Cumberland (Tenn.) Appalachicola (Ga.) October 1952 do January 1953 July 1954 May 1955 December 1956 280,000 204,000 14,000 30,000 36, 000 86,000
650,000
Planned projects were more specifically defined as future power sources:
Project Basin Operation of first unit Ultimate capacity in kilowatts
Old Hickory Carthage Gathright., ... Celina Lower Cumberland Hartwell .’ Howell Mill Shoals Upper Columbia Cumberland (Tenn.) do i James (Va.) Cumberland LKy.-Tenn.) Cumberland (Ky.) Savannah (Ga.-S. C.) Coosa (Ala.) Appalachicola (Ala.-Ga.) April 1955 November 1956 December 1956 February 1957 July 1957 December 1957 do December 1958 100, 000 92,000 34, 000 64,800 130,000 180, Q00 200,000 97,500
Total — 898,300
179
180 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
POWER SALES AND REVENUES
Power generated at the Dale Hollow, Center Hill, and Wolf Creek projects was sold to the Tennessee Valley Authority; that generated at the Allatoona project was sold to the Georgia Power Co. Revenues for the fiscal year amounted to $5,257,128, a greater amount than the total of revenues collected for all previous years combined. Total revenue collected by the Southeastern Power Administration for all years was $9,045,178.
BUDGET AND STAFF
The Congress appropriated a total of $518,500 for the agency to carry out all activities during the fiscal year. The appropriation was divided into a $318,000 allowance for transmission-line construction and a $200,000 allowance for agency operation and maintenance. Thirty-three persons were employed by the agency at the beginning of the year. There was a gradual recruitment during the year of 23 additional employees, so that the year was concluded with a total working force of 56 employees assigned to all activities.
PROGRAM ACCOMPLISHMENTS
Continuing Studies and Collection of Data
Some progress was made in conducting the extensive hydrologic, economic, and engineering study upon which the proper transmission and disposal of power depends. Work was done to determine operating characteristics of projects, opportunities for integration among projects and river basins, and quantities and kinds of power to become available under widely varying conditions. Firming energy requirements for the projects were studied, and rate-structure determinations were made as allocations of costs to power were developed. Performance definitions were established for transmission facilities required to accomplish integrated operation of projects and delivery of power to purchasers. Data specifying the nature and extent of preference agency loads was collected. Systematic continuation of these longterm tasks was frequently interrupted as the agency’s small staff was required to solve the numerous problems raised in arranging for the sale of power which awaits immediate disposal.
There was during the year a resolution of cost uncertainties at the Clark Hill project which allowed the rate for Clark Hill power to be reduced to a monthly demand charge of 75 cents per kilowatt and an energy charge of 4 mills per kilowatt-hour.
ANNUAL REPORT OF BUREAUS AND OFFICES -ft 181
Contract Negotiations
Wheeling and firming arrangements continued to be discussed with the private utility companies of the Southeast. Contract negotiations proceeded throughout the year with Virginia Electric & Power Co. and agreement was reached on a contract for the sale, wheeling, and firming of power to be generated at the John H. Kerr project. It was agreed that two-thirds of the power (114,000 kilowatts of dependable capacity and 43,000 kilowatts of nondepenclable capacity) will be placed on the company’s system; it was agreed that the company will wheel up to 60,000 kilowatts of power for sale by the Southeastern Power Administration to preferred agencies in Virginia and North Carolina; and it was agreed that the company will sell to Southeastern fuel-generated energy to firm the output of the project during periods of low water so that continuous deliveries can be made to serve the needs of preferred agencies. When the year ended, negotiations were at an advanced stage for the sale of power to 16 of the preferred agencies for whom service is provided under the arrangement.
A written agreement in the form of a memorandum of understanding was executed with the Seminole Electric Cooperative, of Florida, which committed Southeastern to deliver 7,500 kilowatts of Jim Woodruff power when the project is interconnected with another Federal reservoir project. Contracts envisioned by previously executed memoranda of understanding with the Alabama Electric Cooperative and the South Carolina Public Service Authority were in the process of negotiation as the year ended.
Construction
To carry out contractual obligations to deliver Clark Hill power to the Greenwood County Electric Power Commission, construction was begun on 41 miles of 115 kilovolt transmission line from the project to a point of delivery in the vicinity of Greenwood, S. C. When the year ended, design work for the line was approximately 85 percent complete, land acquisition was approximately 33 percent complete, clearing of right-of-way was approximately 20 percent complete, and contracts had been awarded for a major portion of construction materials.
■
■
■
DIVISION OF MINERALS AND FUELS
Larry E. Imhoff - Director
Reorganization Plan No. 3 of 1950, among other things, provided for an additional Assistant Secretary of the Interior. Pursuant to approval of this Plan, Secretarial Order No. 2602, dated December 1, 1950, assigned responsibility for supervision of the Mineral Resources area of the Department to an Assistant Secretary and established within his office a Division of Minerals and Fuels. The agencies over which the Assistant Secretary for Mineral Resources exercises secretarial direction are the Bureau of Mines, Geological Survey, Defense Minerals Exploration Administration, the Division of Geography and the Oil and Gas Division.
The principal functions of the new Division of Minerals and Fuels are (1) to furnish technical staff assistance to the Assistant Secretary for Mineral Resources, (2) to assist in the development, coordination and management of programs for this area, (3) to review, evaluate and make recommendations on the development and utilization of minerals and fuels, and (4) to assist the Assistant Secretary in supervising and coordinating the execution of these programs by the Bureaus and other agencies. The Division also maintains liaison with other staff units within the Secretariat and with other agencies of Government on matters pertaining to minerals and fuels.
The President’s Materials Policy Commission
On January 22, 1951, the President constituted the Materials Policy Commission for the purpose of studying the materials problem of the United States and its relation to the nations of the free world; the report of the Commission, “Resources for Freedom,” was published during June 1952. The Division of Minerals and Fuels participated upon a continuing basis with Commission staff in undertaking this
183
184 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
exhaustive study. Members of the Division staff were assigned to the Commission on both a full and part time basis to assist in certain phases of the Commission’s work. This included consultation on technical as well as policy matters. The Division also carried the responsibility of coordinating all the Department’s efforts, correlative to the Commission’s work, within the minerals agencies supervised by the Assistant Secretary for Mineral Resources.
Defense Minerals
On October 19, 1951, following the establishment of the Defense Materials Procurement Agency, the Assistant Secretary for Mineral Resources was assigned the responsibility of supervising those defense exploration functions remaining within the Department of the Interior. Subsequently, the Division of Minerals and Fuels, working with the Bureau of Mines, the Geological Survey, and other officials within the Department, formulated and implemented a plan of organization to carry out exploration functions. The Division has continued to review’ exploration policies and programs and render advice to the Assistant Secretary.
Stockpiling
The Assistant Secretary serves as the Department’s representative on the Interdepartmental Stockpiling Committee of the Munitions Board and as the delegate of the Secretary in discharging the Secretary s joint responsibilities, with the Munitions Board, of determining the composition of the stockpile. The Division of Minerals and Fuels provides the alternate to the Assistant Secretary in this capacity, the alternate member having primary responsibility for marshalling and coordinating staff assistance w’ithin the several minerals agencies. The Division of Minerals and Fuels and the Munitions Board staff recently undertook a comprehensive review’ of stockpiling policy in cooperation with the other agencies represented on the Stockpile Committee.
Basic Data
The present knowledge of the country’s mineral resources represents only a small part of that required for a comprehensive and reliable appraisal of our mineral wealth. Therefore, a continuing need is one of expanding and directing wisely topographic and geologic mapping activities. The Division of Minerals and Fuels has been working closely w’ith the Budget Bureau, the Geological Survey and other
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 185
concerned agencies in developing an improved procedure whereby requirements for such data can be adequately expressed and the subsequent work programmed upon a realistic priority basis.
Economic Studies
The Division of Minerals and Fuels has assumed the leadership in reviewing certain mineral resource problems, both domestic and foreign. Much of this work is done in collaboration with other federal agencies and is of a highly classified nature.
Minerals Taxation
The Division of Minerals and Fuels in collaboration with the Bureau of Mines has undertaken an analysis of all tax measures affecting the minerals industries. The purpose of this work is to establish a factual basis for policy evaluation of present and proposed tax measures in terms of their effect upon the various segments of the minerals industry.
■
BUREAU OF MINES
John J. Forbes, Director
Contributing fully to the national defense program and at the same time strengthening and expanding the foundation of mineral wealth that supports our economy, the Bureau of Mines carried on its many-sided activities with vigor during fiscal year 1952. With the Korean conflict as yet unresolved and after more than a year of defense effort, it was apparent that the emergency and its ever-increasing demands for minerals and mineral fuels might extend indefinitely.
Even without an emergency, our consumption of many minerals would exceed the domestic supply. New uses for minerals are being discovered; our population is growing steadily; and we are becoming increasingly dependent on foreign sources. With these facts clearly in mind, the Bureau persevered in research and development work to furnish new supplies of minerals and planned for future military and economic needs.
True mineral conservation can be achieved only by efficient extraction and utilization. Therefore, Bureau engineers and metallurgists devoted their energies to testing and improving mining equipment, investigating and evaluating mineral deposits, and developing new methods of ore concentration and beneficiation. Mineral-fuel reserves were appraised. Production methods were improved by informing industry of technologic advances. Statistical and economic data were collected on all phases of mineral production, supply, and consumption.
A diversified health and safety program remained a major Bureau activity and continued to prove effective in lowering costs and increasing production in the minerals and allied industries. The Bureau continued to advise and assist other Federal and State agencies and industry, and to aid many foreign countries under the various technical cooperation programs.
226396—53——13
187
188 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Vital problems received first consideration. Top priority was given efforts to increase the domestic supply of manganese, urgently needed by an expanding steel industry. From a low-grade ore deposit, the Bureau produced material acceptable for making ferromanganese. Production of spiegeleisen marked completion of the first step in moderate-scale experiments to develop an economic process for reclaiming manganese from open-hearth slag. Other experiments promised means of utilizing the vast manganiferous deposits of the Cuyuna range.
Other ferrous metals problems were studied. Research progressed on recovery of cobalt, nickel, and tungsten, and the St. Lawrence seaway, proposed for obtaining iron ore from Canada, was studied further.
Bureau mining engineers spent much time evaluating prospects for which Defense Minerals Exploration Administration assistance was sought and making monthly examinations of active projects. DMEA work occupied virtually the full time of those in one region. Commodity specialists in Washington also cooperated fully with DMEA and the Defense Materials Procurement Agency.
The Bureau participated in Interior’s long-range river-basin program, investigating and reporting on mineral resources in several project areas. Resources of 12 States in the Arkansas-White-Red River Basins and the Missouri River Basin were investigated, and reports were made on 25 commodities in the New England-New York area. Studies are beginning in four other areas.
Zinc and tin came in for concentrated study. A process for extracting zinc from oxidized ores reached the pilot-plant stage, and substantial amounts of tin were recovered from waste products for the Atomic Energy Commission.
Bureau investigations of uranium and thorium deposits also disclosed promising sources of columbium and tantalum, and have already resulted in actual production operations. Research was aimed at improving recovery processes and developing new uses for such rare metals as hafnium, germanium, gallium, and indium.
The Bureau reached the final step in a long-range study to produce aluminum from domestic aluminum silicate deposits and thereby minimize dependence on foreign bauxite. Studies were continued on beneficiation of domestic low-grade bauxite, and research progressed on the metallurgy of lightweight magnesium-lithium aluminum alloys.
Although its process for making metallic titanium is now com mercial, the Bureau is constantly working to improve production techniques and equipment design. Special high-purity titanium sponge was produced for use at the Watertown Arsenal, and prototypes of weapons were made from titanium for Army Ordnance field tests.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 189
By its own process the Bureau supplies the Atomic Energy Commission with zirconium, a remarkable new metal not yet produced commercially in volume. This metal is highly resistant to corrosion and can withstand high temperatures. During the year, the Bureau increased production of ductile zirconium sponge for AEC and completed a new purification plant. A purification-reduction step was developed, which will increase the plant’s capacity by at least 50 percent with little additional equipment.
Sulfur, fluorine, mica, and talc received special Bureau attention. Several possible sulfur sources were investigated, and tests were made to develop economical methods of separating fluorine from phosphate rock. Synthetic mica flake was made into sheets which promise to replace strategic mica for many uses, and substitutes were developed for block steatite talc.
The Bureau’s inventory of coking-coal reserves was continued vigorously. Known minable reserves were determined for 4 counties, and investigations are proceeding in 12 other counties in 5 States. Reports on cleaning coals to meet metallurgical standards were completed for four counties in Pennsylvania and three in Kentucky.
The Anthracite Research Laboratory at Schuylkill Haven, Pa., was enlarged by completion of a new wing. Bureau activities in the anthracite region ranged from experiments with new mining methods to gasification tests on breaker refuse. Methods of increasing recovery in steeply pitching anthracite beds were demonstrated, and a study of launder screens for cleaning anthracite fines gave design data for a pilot test unit.
Through intensive research and development, the Bureau continued to prepare for a synthetic liquid fuels industry based on coal or oil shale. At the new gas-synthesis coal-to-oil demonstration plant at Louisiana, Mo., three successful runs were completed during the year, producing mostly gasoline and Diesel fuel and proving the technical feasibility of the Bureau’s modified Fischer-Tropsch process. Coalhydrogenation operations at Louisiana produced over a million gallons of middle oil and about 600,000 gallons of gasoline which was tested satisfactorily in military equipment. Laboratory and pilotplant tests at Bruceton, Pa., and Morgantown, W. Va., furnished valuable information on coal-to-oil processes. Late in the year, ground was broken for a new $2.6 million experiment station at Morgantown.
At Rifle, Colo., a Bureau process that eliminates the need for cooling water in retorting oil shale was ready for demonstration-scale tests, and construction was begun on a 300-ton-a-day plant. The oil-shale refinery at Rifle continued to produce satisfactory Diesel fuel. New facilities made production of shale-oil gasoline possible. Modified drilling methods at the Experimental Oil-Shale Mine effected
190 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
savings in mining costs. Research progressed at Laramie, Wyo., on high-temperature retorting of oil shale.
For years the Bureau has pioneered in scientific and technologic research on petroleum production and refining. Published reports of Bureau investigations help the industry to increase recovery and improve refining techniques. During the year, engineering studies were published on oil fields in four States, and research progressed on drilling muds, oil-well spacing, electrical well logging, and experimental well shooting. The Bureau’s first report on secondary-recovery operations in California was one of 11 published on this type of operation. Over 160 samples of crude petroleum from fields in the United States and abroad were analyzed.
The Bureau produced its billionth cubic foot of helium in 1952. Increased demand for this inert gas forced the Bureau to operate three plants and produce over 130,000,000 cubic feet during the year. Preparing for even heavier demands, the Bureau intensified its search for new sources of helium-bearing natural gas.
Over 1,600 tests were made of permissible and special explosives and hazardous chemicals. Research was continued on blasting methods, ignition of firedamp, and the physics and chemistry of detonations. The Bureau determined the explosive characteristics of numerous flammable liquids and gases and completed an exhaustive study of explosion hazards in hospital operating rooms.
Five major coal-mine disasters claimed 157 lives and boosted the Nation’s coal-mine fatality rate to 1.06 per million man-hours exposure for the calender year 1951. Comparison with the 1950 fatality rate of 0.90 emphasized the need for stronger measures and intensified effort in the fight to make United States coal mines safe. The Orient catastrophe, which killed 119 men shortly before Christmas, 1951, was the worst mine disaster since 1928. It underlined the need for corrective action and prompted the Congress to draft the new Federal Coal Mine Safety Act, which became law on July 16, 1952. The Bureau now has authority to control specific conditions that may cause a disaster. Falls of roof and haulage accidents caused between 75 and 80 percent of all coal-mine fatalities during the past 2 years; the Bureau will continue to combat them through its program of research, investigation, and training.
Advice on roof-bolting techniques was given to many mine operators, and by the close of the fiscal year a short coal-mine roof control course had been attended by over 146,000 persons. The Bureau approved a Diesel-electric shuttle car for use in noncoal mines and also approved 76 complete electrical units for use in gassy coal mines. Thousands of samples of mine atmosphere, gas, and dust were analyzed.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 191
The Bureau’s safety-training program received widespread recognition in October 1951, when the first national first-aid and mine rescue contest in 21 years was held in Columbus, Ohio. Teams from all over the country, trained in Bureau safety methods, competed for honors in what has been termed “the greatest safety show on earth.” The Bureau’s accident-prevention courses and motion pictures on safety were attended by thousands of persons during the year.
Federal coal-mine inspectors made 8,693 regular mine inspections, and the Bureau published their reports and notified those concerned of all existing hazards. Many special analyses of injury data were prepared for industry and for Federal and State agencies.
At the close of the fiscal year, the Bureau had controlled 19 fires in inactive deposits and begun the attack on 4 others. So far, over 120,000,000 tons of coal have been saved from destruction, and 94,500,-000 tons more will be saved by projects begun in 1952. At current market prices, about $645,000,000 worth of coal has been saved at a cost of less than 1 cent a ton. Attacking the mine-water problem in the Pennsylvania anthracite region, another menace to coal reserves, the Bureau made studies of 93 barrier pillars and estimated costs of a possible drainage system.
The Bureau continued to collect and work toward the improvement of a broad range of Statistical data on mineral production and consumption, for the benefit both of the Government and private industry. Statistical data on supply and requirements of individual minerals were analyzed with a view to achieving a sound economic basis for allocating Bureau funds and personnel to commodity research and development programs. Studies of mineral taxation were completed, and work was begun on the first complete mailing list of mineral producing and using establishments in the United States. Research was continued on many phases of the interdepartmental “input-output” project, designed to predict the effects of mobilization plans on the Nation’s economy.
Mobilization and procurement problems greatly increased demands for information on foreign mineral supplies. The Bureau continued to furnish information on world production, consumption, and trade in minerals, as well as on United States imports and exports of metals and mineral raw materials.
Participating fully in the Government’s foreign technical cooperation programs, the Bureau sent personnel on technical missions to several foreign countries. Many of these missions already have proved beneficial by advancing the economy of the countries concerned and strengthening the mineral supply available to the United States.
By training scientists and engineers from friendly countries in its laboratories and making it possible for them to see American industry
192 ☆ annual report of the secretary of the interior
at work, the Bureau has done much to increase cooperation among the nations of the free world. During the year, the Bureau provided training for 43 foreign nationals sponsored by various Federal agencies and international organizations. Plans are being made to expand this program during the next fiscal year.
MINERAL DEVELOPMENT
Bureau of Mines research and investigation on metals and non-metallic minerals in 1952 was directed toward expansion of supplies to meet defense production requirements, essential civilian needs, and accelerated strategic stockpiling. Long-term requirements were not overlooked, however, since the emergency might last for years, with a continuing need for replenishing reserves now being depleted at abnormally high rates.
The Bureau’s broad program of investigation and research in mining and metallurgy was carried on during the year in laboratories, in pilot and demonstration plants, and at various field stations throughout the Nation. The aim was to improve methods and processes, develop new ones, and otherwise contribute to efficient utilization of our mineral resources.
The Defense Minerals Administration was abolished early in the year, but its successors, the Defense Minerals Exploration Administration and the Defense Materials Procurement Agency, called for continuance of the Bureau’s advisory and consultant services. Bureau mining engineers and metallurgists served on field teams throughout the year, examining mines and prospects and testing ores to determine the worth of ventures for which DMEA and DMPA assistance was sought. Commodity specialists in Washington also collaborated with employees of these two agencies in program development and supplied basic technical, economic, and statistical data.
The President’s Materials Policy Commission called on the Bureau’s commodity specialists and professional consultants for data and advice in preparing its Resources for Freedom report. The Bureau proved to be the leading source of basic data and technologic guidance on minerals. Long-established services to the Munitions Board, the Emergency Procurement Service, and the Office of International Trade, continued undiminished. To provide industry and Government with information needed in defense mobilization, the Bureau continued to expand its mineral statistical services. Reports were issued more frequently, and data were collected on new phases of industrial activity. The National Production Administration joined in sponsoring new canvasses, which filled gaps in the Bureau’s presentation of basic mineral information. Staff members assisted the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 193
International Materials Conference in its search for a practicable and politically acceptable basis for allocating selected strategic metals and minerals among the free nations. The Bureau represented the United States on one of the international commodity committees and cooperated in the preparation of background data for all of them.
The main contract of the Leadville, Colo., drainage tunnel was completed in February 1952, leaving only small repair and improvement operations for succeeding months. This work added 5,250 feet to the 6,600 feet completed earlier. Connections were made to three mine shafts, and private exploration and mining activities are in progress in the unwatered areas.
Manganese program,.—During the year, the Bureau’s manganese research and investigation program was pursued intensively to find new sources of this critical material to meet the requirements of expanded steel production in the United States. It included investigations of ore deposits, tests of new beneficiating processes for low-grade ores, and development of methods to reclaim manganese from steel-furnace slag.
As authorized by Congress, a pilot plant was built at Boulder City, Nev., to run tests on low-grade ores from the Artillery Peak, Ariz., manganese deposits; the results of early experiments showed that material acceptable for making ferromanganese could be produced. At Minneapolis, Minn., the Bureau began construction of a pilot plant to test methods of recovering manganese from the extensive manga-niferous ores of the Cuyuna range. This action was based on enocuraging results of laboratory tests of the ores.
At Pittsburgh, Pa., the Bureau conducted experiments to reclaim manganese from steel-furnace slag, building and operating a pilot plant and reporting satisfactory results. A material called spiegeleisen was produced in the first step of a three-step operation, and an oxidizing furnace to be used in the second step was nearing completion. Further experiments in recovering manganese from slag were carried out at the College Park Station (Md.) ; in a rotary-kiln test, the recovery of manganese from slag was 79 percent.
Among the potential manganese deposits being investigated was the extensive area in Aroostook County, Maine, where Bureau engineers and metallurgists were preparing progress reports on the work done in that section.
Other ferrous metals.—The Bureau’s iron-ore projects were planned to insure that the supplies would be adequate to meet the steel-expansion program. Further studies made in connection with the proposed St. Lawrence seaway emphasized the need for obtaining large tonnages of iron ore from the Quebec-Labrador deposits.
Research on recovery of cobalt, nickel, and tungsten from domestic ores progressed during the year. Smelting tests in electric furnaces
194 ☆ annual report of the secretary of the interior
indicated the feasibility of producing ferronickel from low-grade nickel ores at Riddle Mountain, Oreg. Comprehensive surveys covering all phases of the cobalt and nickel industries were completed and published as volumes of a series sponsored by the National Security Resources Board.
Nonferrous metals.—Continued research on a caustic-leach electrolytic zinc process for treating oxidized ores has renewed the interest of private industry, and a cooperative pilot-plant study is scheduled. Research continued successfully on recovery of pure metals and standard engineering alloys from secondary materials; several processes were tested. Considerable progress was made in developing manganese-copper alloys of high damping capacity for machine components where quiet operation is important.
The Bureau undertook fundamental research on the physical, chemical, and electrical properties of fine particles (slimes) lost in ore dressing. Particular attention was given to the loss that occurs in concentration of certain tin ores.
In a specially designed plant, constructed and operated by the Bureau at Albany, Oreg., substantial quantities of tin were recovered from waste products and returned to the Atomic Energy Commission as pure metal.
Comprehensive reports on zinc and antimony were completed and issued on behalf of the National Security Resources Board.
A Bureau staff member attended the sixth session of the International Tin Study Group at Rome; he later was a member of a United States mission that visited tin producing and marketing operations in Malaya.
Rare and precious metals.—Of the many metals that occur in nature, some have definite and important uses, and others have limited or unknown application. Both groups are scarce; collectively, they are the rare metals.
The first group includes uranium, thorium, columbium, tantalum, selenium, and beryllium. To aid in the search for uranium and thorium, the Bureau, under a contract with the Atomic Energy Commission, has investigated about 40 alluvial deposits in the South and West. These investigations have resulted in actual production operations in several areas. In some areas the investigations also disclosed promising quantities of columbium and tantalum. In others studies are being made, in conjunction with industry, to improve processes for recovering beryllium, columbium, and tantalum from pegmatite deposits. The Bureau, in cooperation with the AEC, helped to test and evaluate some 7,500 samples of ore believed to contain uranium.
A second group of rare metals includes hafnium, germanium, zirconium, gallium, and indium. Bureau metallurgists are studying
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 195
ways to recover hafnium from zirconium ores and germanium from zinc concentrates. Research is proposed to discover and develop new uses for gallium and indium. The low melting point and lower vapor pressure at very high temperatures of gallium suggest that, despite its corrosiveness, it may be used efficiently as a heat-exchange medium in atomic-energy plants.
Light metals.—Rapidly expanding aluminum production and increasing dependence on foreign bauxite make utilization of domestic aluminous materials increasingly important. At Laramie, Wyo., the Bureau soon will begin operation of an experimental alumina plant to demonstrate the practicability of producing alumina from anorthosite rock and from other domestic aluminum silicate deposits. This is the final step in a long-range Bureau study to develop industrial processes for producing aluminum from raw materials other than bauxite. The Laramie plant has been renovated, and construction necessary to operate it as an independent unit was approaching completion during the third quarter of 1952. This project is designed to make a complete technologic and economic appraisal of the alkaline-sinter processes based on operation of industrial-scale equipment.
Research on direct carbothermic production of aluminum-silicon alloys from clay, in cooperation with a privately owned smelting company, resulted in production of 31,000 pounds of aluminum-silicon alloy of various grades. This was used as a master alloy in producing commercial alloys. As a result, the company intends to construct a small smelter for producing aluminum-silicon alloys in Lane County, Oreg. A study of methods for beneficiating domestic low-grade bauxites by selective removal of objectionable impurities, especially silicon, was continued, with a simultaneous study on recovery of valuable constituents, such as titania and columbium.
Knowledge of the properties of magnesium alloys will increase the uses of this metal and permit its substitution for more expensive and more critical ones. The Bureau is investigating the physical metallurgy of manganese alloys, particularly lightweight magnesium-lithium-aluminum alloys, to develop and improve melting and alloying techniques and heat treatments.
All titanium-metal sponge produced commercially in the United States is obtained by using modifications of a Bureau process, which is commercially feasible but expensive. Bureau research is directed toward improved production techniques and equipment design, production of purer metal, development of fabrication techniques, and a knowledge of the properties, alloys, and compounds of a metal. In cooperation with the Department of Defense, special high-purity sponge was produced for use at the Watertown Arsenal, and prototypes, such as mortar base plates, flash suppressors, and muzzle brakes,
196 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
were fabricated from titanium and delivered to Army Ordnance for field tests. The Bureau analyzed for compliance with Federal specifications all samples of titanium sponge submitted for purchase by the General Services Administration.
Nonmetallic minerals.—The Bureau expanded its work on sulfur during the year to help solve the serious problems of a shortage of this commodity. As information on the sulfur resources of the United States is sketchy and scattered, studies were begun to provide for each region a comprehensive report showing sulfur resources and prospects of development. Field and laboratory investigations were conducted on a Minnesota sulfide deposit and on several other possible sulfur sources.
The Bureau continued its field and laboratory investigation of mineral construction materials in the Alaska rail-belt area.
Because of the growing demand for fluorine, the Bureau continued its research, including laboratory and pilot-plant tests, on economical methods of separating fluorine from phosphate rock. One method tested uses water vapor and heat to recover both fluorine and vanadium. Further work is planned, with various types of furnaces and with fluidization techniques. A number of fluorspar deposits were also investigated. Research was continued on development of hard borides and carbides, needed for high-temperature abrasives and as substitutes for industrial diamonds. Various raw materials were tested to determine their utility in producing mineral wool. Development of relatively small but high-grade asbestos deposits in Arizona is being encouraged, and other promising areas, especially in California, are being examined. Research on asbestos synthesis was continued, and a comprehensive volume on asbestos, prepared by the Bureau for the National Security Resources Board, was published.
The Bureau has made considerable progress in developing and test-ting raw materials and fabricated mullite-type refractories to replace imported kyanite and equivalent materials. Siliceous bauxite from domestic sources holds promise as an economical material for mullite refractories. Future work planned is the discovery of domestic rawmaterials sources and their most effective utilization in mullite-type refractories. The Bureau is a participant in interagency and industry committees dealing with problems of strategic mica supply; at the Bureau’s request, the National Academy of Sciences is preparing reports on electrical testing of mica and on the potentialities of reconstituted mica and synthetic mica. Nearly 5 years of the Bureau’s synthetic-mica program, in cooperation with the Navy, has been completed, but the project will be continued under Army Signal Corps funds, supplemented by Bureau allotments. It has been demonstrated that synthetic mica flake can be disintegrated and reconstituted to
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 197
form large sheets, which promise to replace the best quality of strategic mica in many applications.
To reduce United States dependence on foreign sources of block steatite talc, substitutes have been developed. Final tests and evaluation are not complete, but preliminary results are promising. Pressed steatite blocks were made, using various binders, and various methods of beneficiating off-grade talcs were tried. As a byproduct of synthetic-mica research, the Bureau has developed an ultra-low-loss machinable dielectric from hot-pressed synthetic mica.
Miscellaneous research on minerals.—Searching for new methods to increase the effectiveness of fundamental research on minerals, the Bureau developed techniques whereby the fluorescent, X-ray spectrograph can be used as a routine analytical tool with an accuracy that surpasses optical spectrographic methods.
Application of thermodynamics to mineral and metallurgical problems has revealed the general pattern of chemical and physical processes and permits prediction of their course. Accordingly, the Bureau continued to measure and correlate thermodynamic properties of metals and nonmetallic minerals.
Research on fundamental variables and operating techniques of diamond and core drilling was continued during the year. Performance tests on various orientations of diamonds in diamond-set bits were made, and the relationship and orientation of cutting edges and facets to rock penetration and bit wear were studied.
In the application of physics to mining problems microseismic instruments were developed by the Bureau and used to measure stresses and strains in the wall and roof rock of two iron mines and one copper mine in Michigan and of a zinc-lead mine in Oklahoma. Study of the physical properties of various types of rock helped to determine effective roof-bolting procedures and will provide data on which mining methods and allied techniques can be based. In cooperation with the Corps of Engineers, a series of underground explosives tests was made to determine damage resulting from blasting.
Research on mineral-dressing techniques promised improvements that will increase recoveries and simplify difficult mineral-separation problems.
RIVER-BASIN ACTIVITIES
Under the Department’s river-basin program, the Bureau is carrying on mineral-resources investigations in several project areas. Planned in cooperation with the States and other Federal agencies, Interior’s long-range program is aimed at wise development and
198 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
utilization of all resources in the several river basins of the United States.
Arkansas-dYhite-Red River Basins.—A survey of mineral industry and mineral resource potential is progressing in the Arkansas-White-Red River Basins of Kansas, Missouri, Oklahoma, Colorado, New Mexico, Arkansas, Texas, and Louisiana. Eleven reports have been submitted for use in preparing a resources-development plan for the basins, and nine others are nearly complete. Bureau engineers made detailed studies of mineral resources and industries in the Washita River subbasin and began similar work in the Ouachita.subbasin.
Missouri River Basin.—To insure proper utilization of the Missouri River Basin’s resources, the Bureau is investigating mineral occurrences and studying their development and use. Reports were presented on chromite resources, ferrous metal, and bentonite deposits in Montana, Wyoming, and South Dakota, pegmatites in Colorado, and mineral resources of the North and South Platte River Basins, western Kansas, the Powder River Basin, and four Montana counties. Studies were progressing on the mineral resources of eastern Kansas and on nonmetallic minerals in several Missouri counties.
Data on mines and ore deposits in the Black Hills of South Dakota were compiled and summarized, and effects of blasting on green concrete at the Oahe Dam site were studied.
New England-New York survey.—Surveys and 25 commodity reports were made on mineral resources and mineral industry of the New England-New York area. When complete, these reports will cover over 50 commodities, important in the area’s economy.
Other river basins.—Work is also being started in Alaska, the Pacific Northwest, Colorado-Great Basin, and California.
FUELS AND EXPLOSIVES RESEARCH
Speciod services.—The President’s Materials Policy Commission called on the Bureau’s fuels specialists for data and advice in preparing its report on Resources for Freedom, particularly with respect to changing patterns of fuel consumption and technological developments. The data prepared by the respective fuels specialists also were used extensively by other governmental groups and private organizations, particularly the defense agencies, for basic information regarding the operations and outlook of the mineral fuels industries of the United States and fuels production and requirements abroad.
Coal and Coal Products
Coad mining and investigations.—Operation in bituminous-coal mines of various types of American and British continuous coal
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 199
mining machines was studied. In a cooperative test of an imported German coal planer, the planet cut coal from a longwall face of a test panel and simultaneously loaded it on a conveyor belt. This machine increased percentage recovery of coal, increased production per man-shift, and reduced costs and material. Studies of pillar extraction with mechanical equipment continued, and two methods of increasing production and recovery in thick, steeply pitching anthracite beds were successfully demonstrated.
Known minable reserves of coking coal were determined for 4 additional Pennsylvania, West Virginia, and Kentucky counties, and data are being obtained for 12 other counties in those States, Maryland, and Tennessee.
Coal preparation.—Reports on the possibilities of cleaning coals to meet metallurgical standards were completed for four counties in Pennsylvania and three in Kentucky. Many coals in these counties can be upgraded for metallurgical use by appropriate washing.
A simple device was developed for continuously measuring the density of liquids used in heavy-medium coal-washing plants, and a study of launder screens for cleaning anthracite fines gave design data for a pilot test unit.
Coking, gasification, drying, and combustion studies.—Carbonizing tests indicated that coals from western counties in Virginia would make good metallurgical coke if blended with small amounts of low-volatile coal. Other coals from Kentucky, Alabama, West Virginia, and Pennsylvania showed good carbonizing properties; but, in general, the coking qualities were improved by blending with other coals.
The first unit of the initial commercial application in this country of the Bureau-developed fluidized process for upgrading low-rank coals to produce char for power generation and coal chemicals for industrial use was completed at Rockdale, Tex. Fluidized drying and carbonizing tests in the Bureau’s pilot plant yielded chars for power generation and tars and coal chemicals from noncoking fuels ranging from sawdust to the best of the subbituminous coals.
Gasification tests on anthracite-bone coal-breaker refuse showed that, while gasification was possible, specially designed equipment would be needed to handle the large volume of ash. Investigation of waste combustion in incinerators developed a vortex design that minimizes smoke and emission of particulate matter.
Services to the Government.—Bureau advisory services continued to aid Federal agencies in improving efficiency of fuel-burning equipment, lowering over-all costs, and selecting proper fuels. Research continued on preventing corrosion and deposits in boiler-plant airpreheaters ; 42 different Federal agencies were assisted on 152 special problems.
200 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Over 1,223 tipple samples were collected at 440 coal mines for the Federal coal-purchasing service and Bureau research work. In all, 12,070 analyses of coal, an increase of more than 10 percent over last year, were reported to various Federal agencies. Over 11,200 samples of boiler water were analyzed, and recommendations for treatment made. Many Federal plants were visited, and assistance was given on special boiler-water problems. Bureau research to determine cheaper chemicals for preventing return-line corrosion has saved thousands of dollars on the cost of chemicals for this purpose.
Smoke-abatement consulting service was given to seven cities, and work continued on an international problem of air pollution in the Detroit River area.
Stream-pollution investigations solved a sulfuric-acid-disposal problem arising from coal-pile drainage at Bainbridge Naval Training Center, Md., at a cost $200,000 less than that of other proposed solutions. The pollution difficulties of a magnesium plant operated by the General Services Administration are being studied.
Coal economics.—During the year, the Bureau’s statistical and economic data on coal, coke, and coal chemicals have provided the Defense Solid Fuels Administration with information fundamental to operations of the defense-emergency programs for these commodities. Studies were made of trends and casual factors in production, consumption and exports. Changes in fuel-energy consumption patterns and factors influencing these changes were analyzed. The work program also included assembling and interpreting highly complex data for forecasting requirements necessary to provide adequate fuel supplies to meet needs of both military and civilian economy.
SYNTHETIC LIQUID FUELS
Significant progress was made with new processes developed by the Bureau in synthesizing oil from coal-derived gas and for retorting oil shale. Industry and other Government agencies became interested in applying synthetic-fuel developments, especially coal gasification, to the production of pipeline gas from coal, synthetic ammonia for fertilizer, and industrial chemicals. During the year, a survey by an independent engineering firm substantially supported many of the items in the Bureau’s cost estimates on coal hydrogenation.
Oil from coal.—Three complete runs were made in the first year of operation of the newly completed gas-synthesis demonstration plant at Louisiana, Mo., producing chiefly gasoline and Diesel fuel. Capable of producing from 50 to 80 barrels of liquid product daily, the plant proved the technical feasibility of the Bureau’s modified Fischer-Tropsch process. Conversion rates were satisfactory, and the oper
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 201
ability of the equipment and apparent durability of the catalyst were demonstrated.
Three extended liquid-phase runs were made on Western Kentucky No. 11, Illinois No. 6, and Lake De Smet, Wyo., coals, and one vaporphase run was made on distillate from Western Kentucky coal. Over a million gallons of middle oil has been produced, and about 600,000 gallons of gasoline of acceptable octane rating has been tested satisfactorily by the Military Establishment. Experience gained in the demonstration plant has been invaluable in developing new equipment and processes and in providing data to improve the economics of coalhydrogenation operations.
In laboratory and pilot-plant research at Bruceton, Pa., coal-to-oil advances were made in producing liquid fuel from synthesis gas and by hydrogenation of coal. An autoclave study of coal hydrogenation indicated that this complex reaction may be considered a two-step process in which coal is first converted to asphaltene and then to oil. Tests on upgrading shale-oil coker distillate by hydrogenation to produce jet fuel and Diesel oil meeting military specifications indicate merit for economical large-scale application.
In the synthesis-gas laboratories at Morgantown, W. Va., continuity of operation of a pressure gasifier neared realization, and a number of short runs showed a high capacity of synthesis gas produced per unit of generator volume. Ground was broken late in the fiscal year for a new $2.6 million experiment station to be ready for occupancy in fiscal year 1954.
Good-quality gas was produced during most of the 10-month operation of the third experiment on the underground gasification of coal concluded on May 7 at Gorgas, Ala., in cooperation with the Alabama Power Co. A new technique, known as the electrolinking process, eliminated underground work in the third test. Interest in this work heightened as the Bureau and the Alabama Power Co. cosponsored the First International Conference on Underground Gasification of Coal during the year.
Oil from oil shale.—Investigation of the Bureau of Mines gas-combustion process progressed from the pilot-plant to demonstration-scale stage during the year at Rifle, Colo., and construction was begun on a 300-ton-a-clay plant to be completed during fiscal year 1953. Good yields are obtained from this relatively simple and continuous process for retorting oil shale, which also provides low-B. t. u. gas for all of the necessary heat and eliminates the need for exterior heat-exchange equipment and cooling water. Tetraethyllead blending facilities added to the oil-shale refinery made it possible to produce shale-oil gasoline suitable for Bureau vehicles, and shale-oil Diesel fuel continued to give satisfactory service. Refining operations showed that
202 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
conventional thermal refining techniques can be adapted to the processing of shale oil. Detailed cost estimates for a nominal 250,000-barrel-a-day industry-scale oil-shale plant indicated economic operation using either recycle thermal cracking or a mild hydrogenation process.
By using rotary instead of percussion drilling at the Oil-Shale Experimental Mine, Rifle, Colo., higher drilling rates were achieved and savings effected in bit and drill-rod costs and in labor and in power. Analysis of cuttings gathered from wells drilling in oil-shale formations in Colorado, Utah, and Wyoming provided added data for determining the extent, depth, and thickness of oil-shale deposits in the Rocky Mountain States.
Progress in research on high-temperature retorting of oil shale at the Oil-Shale Experiment Station, Laramie, Wyo., resulted in the installation of large bench-scale equipment for testing oil-shale fines by an entrained-solids process. High-temperature retorting offers the advantage of producing aromatic materials that can be used to upgrade shale-oil gasoline and for manufacture of chemicals.
PETROLEUM AND NATURAL GAS
Petroleum and natural-gas production.—The Bureau has completed its part of cooperative engineering and geologic studies in Scurry and adjacent counties of Texas under an agreement with the Geological Survey and the Petroleum Administration for Defense. Six reports are or soon will be completed supplying data concerning the fields and the availability of petroleum and natural gas. Special aid was given the Navy Department in its exploratory drilling in Naval Petroleum Reserve No. 4, Alaska.
Engineering studies relating to the Missouri, Arkansas, and Washita River Basin projects continued, and Bureau engineering reports were published on oil fields in West Virginia, Pennsylvania, Texas, and Oklahoma. Studies of drilling muds, oil-well spacing, electrical well logging, and experimental well shooting are progressing, and encouraging laboratory tests on plugging of highly permeable sands with chemical smoke were carried out. Cooperative projects on gas-condensate fluids and research on the flow of natural gas in high-pressure, high-velocity pipelines are nearly completed.
Fostering improved secondary recovery in the Appalachian and Mid-Continent areas, the Bureau published 11 reports, including its first report on secondary-recovery operations in California.
Petroleum chemistry and refining ; thermodynamics.—Analytical and research data on properties and combustion qualities of crude oils and petroleum fractions have been obtained. A publication sum
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 203
marized present knowledge of the sulfur content and sulfur compounds in crude petroleum, and 162 samples of crude petroleum from the United States and foreign countries were analyzed. Over 200 crude oils have been analyzed for their content of nitrogen and the results published.
The effects of additives and of synthetic atmospheres on the combustion of Diesel fuels were determined. Storage instability and incompatibility of more than 3,500 samples of fuel oils and Diesel fuels are being studied. Twenty pure organic sulfur compounds were prepared and are for sale to other laboratories as standards for calibrating analytical instruments and for other important uses. Results of Bureau wartime research on aviation gasolines were published, and the availability of aircraft fuels was studied. Studies of oil-soaked sand deposits in Utah indicated that good yields of oil could be recovered and that the deposits represent about 2 billion barrels of oil reserves. New methods and apparatus for analyzing petroleum fractions have been developed. Thermodynamic data for engineering and laboratory research were made available for over 20 organic compounds.
Petroleum, and nautral-gas economics.—During 1951 new records were established in nearly all phases of the petroleum industry. Crude-oil production was 10 percent above the previous record, that of 1948. Runs to stills also were up 14 percent from 1950, the previous record year; imports of crude oil and products were slightly below 1950; exports were up 39 percent. Domestic demand for all products was 8 percent greater than in 1951. Wells completed during 1952 represented an increase of 2 percent over 1951.
Proved recoverable reserves of crude petroleum increased 2,200,-000,000 barrels during 1951 to 27,468,031,000 barrels. Almost 2 barrels of crude oil were added for each barrel produced. Expropriation of the Anglo-Iranian Oil Co. by the Government of Iran in June 1951 removed from the world supply some 650,000 barrels per day of crudeoil production and 500,000 barrels of refining capacity. By rearrangement of supplies and adjustment of refining activity throughout the world, the immediate impact of this action was minimized. Increased production, principally in other Middle East countries, offset the Iranian loss almost entirely. New European refining capacity plus maximum use of existing capacity compensated for much of this loss. Drilling must be increased even more to meet the continually rising demand. A goal of 80,000 producing wells set for the 18 months ending December 31, 1953, may not be reached because of reduced manufacture of drilling equipment and material, owing to the steel strike.
226396—53----14
204 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
HELIUM
The Bureau produced over 130,000,000 cubic feet of helium for Federal agencies and private customers in 1952, an increase of more than 30 percent over the previous year. Demand for helium by non-Federal customers reached an all-time high of 40,000,000 cubic feet. The most important use of helium by private industry continued to be its employment in helium-shielded arc welding.
The Navajo helium plant at Shiprock, N. Mex., remained in standby status, but preliminary plans are being made to reactivate it in 1953. Also, renewed emphasis is being directed toward finding and investigating new sources of helium-bearing natural gas. Additional production facilities will be needed in 1954 or 1955 if the demand for helium continues to increase at the present rate.
The Bureau continued its research aimed to improve the production, distribution, utilization, and conservation of helium. One important development in 1952 was the use of liquid nitrogen at subatmospheric pressure as a coolant in the purification cycle.
EXPLOSIVES AND EXPLOSIONS RESEARCH AND TESTING
Explosives research.—The Bureau made 1,659 tests of permissible and special explosives and hazardous chemicals during the year. Five permissible explosives were put on the inactive list, and one was transferred from the inactive to the active list, leaving 174 on the active list. About 3 percent less permissible explosives was used in coal mines than during the previous year, and the ratio of black blasting powder to permissibles (less than 10 percent) was the lowest in history.
Understanding of the mechanism of ignition of firedamp by stemmed and unstemmed explosive charges has been advanced. Safer and more efficient stemming materials have been sought for use with permissible explosives. Research has been completed on the hazards of short-delay multiple blasting of coal. Research on blasting methods has continued, and fundamental research progressed on the physics and chemistry of detonations.
As part of the Bureau’s search for more efficient and stable primary explosives, a number of promising nitramines and substituted nitroguanidines were synthesized and tested.
Gas- and dust-explosion research.—Continuing its efforts to eliminate dust-explosion hazards, the Bureau tested 80 different dusts. The effects of various dusts in venting dust explosions were considered. Related fundamental research has improved understanding of the mechanism of the propagation of dust explosions. Research on rock dusting in coal mines was continued.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 205
The Bureau determined the explosive characteristics of a number of flammable liquids and gases and studied the causes of several industrial explosions on the scene. Investigation of the ignition and explosive hazards of certain aircraft fuels, both as vapors and as sprays, has continued. A study of the inerting effects of certain gases on the flammable limits of these fuels has been initiated. An extensive study of explosion hazards in hospital operating rooms was completed.
Progress is continuing in fundamental research on ignition and flame propagation, and the experimental technique of measuring burning velocity has been improved. Studies of combustion instability of appliances resulting from the substitution of one fuel for another have benefited the fuel-gas industry.
SAFETY AND HEALTH ACTIVITIES
Research, investigation, training, and inspection of individual coal mines are the means by which the Bureau promotes safe and healthful conditions in the mineral industries. With passage, shortly after the close of the fiscal year, of the new Federal Coal-Mine Safety Act, the Bureau assumes even greater responsibility in future than in the past. However, the excellent relations that have been established with State mining departments and mine operators’ and workers’ organizations and the experience gained during 41 years of health and safety work offer a reasonable expectation of continued success in this field of endeavor.
Work on primary hazards.—Between 75 and 80 percent of the fatalities and about 45 percent of all injuries in American coal mines during the past 2 years have been caused by falls of roof and coal or by haulage accidents. In line with its policy of concentrating upon the hazards that are most serious at any given time, the Bureau continued its vigorous campaign to solve roof-control and haulage problems.
An outstanding result of the Bureau’s roof-control work is the rapidly increasing use of steel roof bolts as a substitute for wooden timbers in mine-roof support. Since 1947, when the Bureau first began sponsoring their use in coal mines, roof bolts have proved so economical and effective that their use has spread quickly. To date, 562 coal mines and 73 noncoal operations are using them. Services of Federal coal-mine inspectors trained in roof-bolt installation are in constant demand by the industry.
Torquemeter and pull tests to determine the holding strength of various types of roof bolts were made in mines in 12 different States during the year. Other roof-support work by the Bureau included a time study in a Pennsylvania mine to gather data on the efficiency of current methods, a study of roof movement along a pillar section
206 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
of a West Virginia mine, field tests to determine the effectiveness of various roof paints as roof-control agents, and laboratory tests to discover the state of strain in specimens of rock taken from mines where roof bolts are used.
A short coal-mine roof-control course for mine workers and officials, initiated in 1951, was continued and has so far been attended by over 146,000 persons.
To reduce haulage accidents, which comprise about 25 percent of all coal-mine fatalities, the Bureau in April 1951 introduced a short course in coal-mine haulage safety. The course is given by coal-mine inspectors in half-hour lectures at the close of each Federal inspection. To date, 80,624 haulage employees and other mine personnel have attended these lectures.
Information gained in Bureau investigations of all coal-mine fatalities is condensed and published semiannually to furnish the facts needed for planning more effective accident-prevention programs.
Tests of equipment.—During the year the Bureau continued to test mining electrical machines and appliances to make sure they are constructed to minimize electric shock and gas- and dust-ignition hazards. It investigated Diesel-powered mine locomotives and equipment to determine their safety for use underground and, under Bureau Schedule 24, approved a Diesel-electric shuttle car, the first piece of Diesel equipment approved by the Bureau for use in noncoal mines.
The Bureau also approved 76 complete electrical units for use in gassy coal mines, indicating the increasing demand for permissible mining equipment and roof-bolting drills.
Special investigations were conducted to aid the Navy Department in reducing fire and explosion hazards resulting from the use of electrical equipment on vessels and aircraft where gasoline fumes are present-
IleaLth studies.—During the fiscal year, the Bureau’s efforts to improve health conditions in the mineral industries centered on the study and evaluation of atmospheric conditions or contaminants. Analyses were made of nearly 14,000 samples of mine atmosphere and other gaseous mixtures, collected during inspections and investigations of coal, metal, and other types of mines, and tunnels. Results of these analyses aid in correcting existing hazards and provide information for controlling mine gases and dusts and improving mine ventilation.
Approximately 1,000 samples, collected in mines and industrial plants, were examined to determine concentration and particle size of air-borne dusts and the composition of dusts and dust-source materials. An investigation was conducted to determine the concentration of dust in the breathing zone of men drilling rock in coal mines, and a Bureau of Mines schedule was developed for approval of dust collectors used in rock drilling.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 207
Three new approvals and 25 extensions of approval were granted on respiratory protective devices, and numerous check tests were made on approved respiratory protective devices purchased in the open market.
Information on mine and tunnel ventilation, mine air conditioning, and various air-flow problems was supplied to industry and to other Government agencies. Publications on electrical accidents and dust and ventilation studies were issued during the year, and work continued on a bibliography of atmospheric pollution literature, for which 4,100 articles have been abstracted during the past 2 years.
Safely training.—Realizing that teaching supervisors and workers how to recognize dangerous conditions and practices and how to eliminate them is a potent remedy for accidents, the Bureau is constantly revising its training courses given at mines and plants during the past 41 years and adding new, specialized courses to those previously taught.
Since the Bureau’s revised coal-mine accident-prevention course for miners was introduced 5 years ago, 59,126 miners have completed it, and over 15,000 persons have completed the course for supervisors. Over 1,000 mining officials in 14 States studied the Bureau’s accidentprevention course for metal miners during the year, and 206 persons attended a course in safety instruction conducted in Texas and Canada for workers in the petroleum industry. During the year, 33,722 persons in the mining and allied industries were given a full course in first aid and 2,306 the course in mine rescue methods.
Demonstrations and lectures on the hazards of petroleum products and the explosibility of gas, coal dust, and other mineral substances were presented before 69,209 persons in many States, and an estimated 81,760 spectators witnessed the 49 first-aid and mine rescue contests in which Bureau safety personnel actively assisted.
The first national first-aid and mine rescue contest in 21 years was held in Columbus, Ohio.
Sound motion pictures showing safe methods of blasting and timbering in mines and safe operating procedures on oil-drilling rigs were seen by 38,514 persons during the year.
Coal-mine inspections.—During the eleventh year of Federal inspection of coal mines under Public Law 49, Seventy-seventh Congress, 8,693 regular mine inspections were made, increasing the number of inspections made under the law to 50,679. Comparison of injury rates before and after 1941, when the law became effective, reveals the competent work done by all concerned in achieving the principal objective of the law—reduction of coal-mine accidents.
The first 10 years of Federal inspection saw fatalities in the anthracite mines of Pennsylvania reduced 33 percent, the fatality rate 31 percent, nonfatal injuries 37 percent, and the nonfatal-injury rate 26
208 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
percent compared with the 10 years before the law went into effect. Comparable figures for the Nation’s bituminous-coal and lignite mines show that fatalities were reduced 11 percent, the fatality rate 20 percent, nonfatal injuries 6 percent, and the nonfatal-injury rate 16 percent.
Records show that, since Federal inspection began, 2,055 coal mines have adopted systematic roof-support plans, 1,208 have stopped using dangerous black blasting powder, 2,302 have installed new main fans, and 939 began using water to allay dusts. In addition, preshift examinations for gas were begun in 2,366 mines, 1,548 mines were rock-dusted for the first time, 1,363 banned smoking, and 1,219 stopped the use of open lights.
Despite these improvements, seven major coal-mine disasters occurred between January 18, 1951, and June 30, 1952. The Orient disaster, which killed 119, prompted the Congress to approve legislation that gives Federal inspectors authority to control dangers that may cause a major catastrophe. When the President signed the bill on July 16,1952, the new Federal Coal Mine Safety Act, Public Law 552, Eighty-second Congress, became law.
The Bureau’s plans for 1953 include continuation of its educational program, continued investigation of all coal-mine fatalities and disasters, and administration of Public Law 552, as well as inspections under the new law.
Special investigations.—Investigations to determine the primary causes of mine explosions and fires are among the most important Bureau activities, because through these, knowledge of how to prevent the disasters that each year destroy lives and property is gained and passed on to industry and to other persons working for safety.
During the fiscal year, Bureau personnel investigated 34 mine explosions—5 of them major disasters—and 34 mine fires. Thorough investigations were made of numerous miscellaneous accidents.
The Bureau conducted 116 health and safety investigations. In these studies, mining practices, conditions, and equipment were examined, and samples of mine air and dust analyzed.
A cooperative study of the occurrence of mercury in pipelines from a California oil field was continued during the year.
In addition to tests of mine timber treated by conventional methods, a new procedure for impregnating living trees is being studied in Washington State.
Accident analysis.—Decentralization of accident-analysis work in accordance with the Bureau’s regional plan was nearly completed at the close of the fiscal year. Records, files, and equipment were transferred from Washington to the various regions, and regional personnel
ANNUAL REPORT OF BUREAUS AND OFFICES ft 209
were specially trained on procedure and outline of canvass work in gathering injury, production, and employment data.
Mounting interest in accident prevention prompted an increased demand for the Bureau’s reports on injury records in the mineral industries, and everything possible was done to issue them currently. Many special analyses of injury data were prepared for Federal and State agencies, mine operating companies, labor organizations, and mineral producers groups.
A record total of 1,010 plants enrolled in safety competitions for 1951. The Bureau sponsored and conducted the twenty-seventh national safety competition and the second national sand and gravel, competition, and also conducted competitions for several other national associations.
Control of fires in inactive coal deposits.—From 1949 to the close of the fiscal year, the Bureau of Mines had controlled 19 fires in coal deposits, not now being mined and begun the attack on 4 others. Of the fires already controlled, 11 were on the public domain in Colorado, New Mexico, and Wyoming, and 8 were on private property in Pennsylvania and West Virginia.
Over 120,000,000 tons of anthracite and bituminous coal have been saved from destruction by fire as a result of the Bureau’s fire-control program during the 3-year period 1949-51, and an additional 94,500,000 will be conserved by projects started in 1952. At current market prices, this coal would have an estimated value of $645,000,000 if mined. This saving has been accomplished at an estimated cost of less than 1 cent a ton.
The Bureau has a record of 52 additional coal-crop fires now burning in Wyoming, Colorado, New Mexico, and Utah. Only preliminary examinations have been made of most of these fires, and no estimate is available of the amount of coal imperiled. Some of the fires are on Federal land, some on State land, and some on private land. Surveys have been made of several large fires to permit control work as the weather and funds permit.
Anthracite flood prevention.—Bureau engineers continued to study the mine-water problem in the Pennsylvania anthracite region last year. Investigations of 93 barrier pillars in the Lackawanna Basin of the Northern field and of 81 barrier pillars in the Western Middle field of the anthracite region were completed and reports prepared as Bureau bulletins.
Investigations of barrier pillars in the Wyoming Basin of the Northern field and in the Southern field are proceeding. These investigations are concerned with the physical condition of each barrier pillar, its capacity to withstand hydrostatic pressure, and its relationship to the safety of men working in active mines-
210 ☆ annual report of the secretary of the interior
All available data from Federal, State, and private-company sources were correlated into one report to facilitate study of the acid-water problem and to indicate possible solutions.
A study of surface infiltration and its relation to pumping loads over the entire Lackawanna Basin indicates that surface diversion of rain water can afford only limited assistance.
Estimates of construction quantities and costs were made of a possible drainage system from Conowingo, Md., to above Scranton, Pa., to drain water from the Northern, Western Middle, and Southern fields. Diamond-drill cores were taken from holes along such a tunnel line to give some basis for cost estimates for shaft sinking and tunneling through this strata.
As part of a report to the Congress, estimates are being prepared of 12 different tunnel schemes that have been proposed during the past 10 years.
FOREIGN ACTIVITIES
Activities of the Bureau outside the United States and Alaska are carried on by a regional director (region IX) and his staff in Washington. This group is responsible for providing basic statistics, information, and analyses on foreign mineral supplies and for supervising the Bureau’s mining, metallurgical, and mineral-resource operations abroad.
With greatly increased demands for assistance from other defense agencies, the Bureau’s foreign minerals fact-finding services continued to help meet the problems arising from the rapidly growing dependence of United States economy on foreign sources of raw-material supply. Through its statistical units, the Bureau provides data on world production, consumption, and trade in minerals, as well as on United States imports and exports of metals and mineral raw materials. These data are published and distributed regularly in monthly, quarterly, and annual mineral market surveys and in the Minerals Yearbook. Careful surveillance of all available sources of statistical information and a world canvass by questionnaire insure maximum reliability of data.
Divided into five geographical sections—North America, Latin America, Europe, Africa, and Asia—the Bureau’s region IX maintains extensive files of data collected from innumerable sources, including the United States Foreign Service. The Bureau is responsible for technical supervision of mineral attaches in the Foreign Service and recruits staff, prepares instructions to foreign reporting officers and appraises the quality of reports and performance of minerals
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 211
attaches and other State Department foreign reporting officers. Despite the United States’ dependence on raw materials from abroad, the Government presently employs only five mineral attaches, and the Bureau has continued to advocate expansion in the minerals attache service.
During 1952, the Bureau expanded its participation in the Government’s foreign technical-cooperation programs, particularly the point 4 program administered by the State Department’s Technical Cooperation Administration. The Bureau’s success in this work stems from its insistence upon providing complete technical support for personnel abroad through consultation with specialized experts at home.
Cooperative foreign projects begun before and continued through the fiscal year included technical missions in Afghanistan, India, Nepal, Brazil, Colombia, and Mexico, all under the point 4 program. Work was continued also on an oil-shale project financed by the Brazilian Government.
Cooperating closely with United Nations organizations, the Bureau has detailed personnel to special assignments on U. N. mineral resources programs, and personnel also has been loaned to Mutual Security Agency. In 1952, Jordan joined the countries participating in point 4, and the Bureau undertook a project in Cuba for the Defense Materials Procurement Agency. The same or expanded point 4 programs are expected to continue during 1953, and the Bureau also plans to cooperate further with MSA and DMPA.
Technical missions range from general mineral surveys to practical, operational development to expand or initiate industrial activity for the economic benefit of the country, improve international relations, and eventually strengthen mineral supply to the United States.
Nepal has asked the Bureau’s cooperation in cataloging its mineral resources as an effort toward restoring an ancient mining industry in terrain probably never before explored by foreigners. In Bolivia, progress has been made in research on low-grade tin ores. Efforts of the Mexican Comision de Fomento Minero and the Bureau stimulated private investors to complete facilities to produce acid-grade fluorspar near Taxco, Mexico. Afghanistan has expressed appreciation for the Bureau’s guidance in expanding a badly needed coal industry, as well as for its prompt and effective response in extinguishing three coal-mine fires. Brazil had advanced in coal preparation, hopes soon to establish an oil-shale industry, and contemplates development of a phosphate deposit in cooperation with the Bureau. These examples typify accomplishments in foreign technical cooperation.
Another important phase of the Bureau’s international activities is the program under which foreign engineers receive specialized
212 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
advance training in the United States, usually at Bureau of Mines field stations. During the fiscal year, the Bureau trained 43 foreign nationals sponsored by TCA, U. N., MSA, and other organizations. This program was facilitated by industry’s willingness to permit visitors to observe equipment and operations at plants and installations throughout the country. Present indications suggest expansion of this important phase of technical cooperation.
MINERAL ECONOMICS
The Bureau broke new ground during the year by way of systematic analysis of minerals-policy problems, coordination and improvement of its machinery for gathering statistical data, and basic research in interindustry economics. This program was carried on by the newly established Office of Chief Economist.
Basic research on taxes by the Bureau helped pave the way for an Internal Revenue Code provision for “expensing” outlays on mineral exploration. Also completed were a fundamental reference study on mineral taxation in the United States and an initial comparative study of United States and Canadian tax structures.
The Bureau did important preparatory work for the United States trade-agreement negotiations with Venezuela and supplied a member of the United States negotiating team.
In order to develop economic criteria for the most effective use of Bureau research funds, economic review of planned Bureau programs for technical research and exploration was undertaken. Emphasis was placed on evaluating future supply and requirements for individual minerals.
Every effort was made to assist the President’s Materials Policy Commission by supplying statistical and economic data and analyses.
Close contact with other Government agencies was maintained throughout the year to assure coordination and prevent duplication of work on statistical canvasses. Arrangements were made to collect many of the data needed for the Defense Mobilization Program and, in cooperation with the Bureau of the Census, preliminary plans were laid for the 1953 Census of Mineral Industries. Proposed schedules and procedures for this and other 1953 censuses were reviewed to help insure statistics of the greatest possible usefulness to industry and Government.
Development of a unified establishment list was undertaken during the year. Arrangements were made to collect the various Bureau mailing lists for comparison with lists maintained by other agencies to set up a complete mailing list of all mineral producing and using establishments.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 213
Research continued on various phases of the interdepartmental “input-output” project designed to predict the effects of mobilization plans on the mineral industries. Detailed analyses were made to determine the amount of equipment that the Nation will require in 1952-55 in copper mining and milling, alumina, primary aluminum, and aluminum rolling and drawing, to meet the planned expansion program. “Planning factors” to measure mobilization demands have been computed for these and other industries. With the cooperation of the National Research Council and the Department of Defense, statistical equations were prepared to estimate requirements for a dozen critical materials.
PUBLIC REPORTS
As its organic act directs the Bureau of Mines to prepare and publish reports of inquiries and investigations, information on its activities is made available in printed and processed reports issued by the Bureau, and in articles published by technical societies. During the year, 630 manuscripts were approved and edited, compared with 589 during the fiscal year 1951.
Printed publications totaled 89, including 14 bulletins, 61 Minerals Yearbook chapters, and 14 miscellaneous items. There were 194 processed publications, including 111 reports of investigations, 29 information circulars, 15 Mineral Trade Notes and Supplements, 7 National Security Resources Board discussions of important minerals, and 18 miscellaneous reports. The remaining 347 manuscripts were prepared for oral presentation or for publication in technical journals. About $4,000 pages of manuscript were edited and 1,900 illustrations prepared for reproduction. The Senate hearings on the Interior Department appropriation bill were indexed for the tenth year, at the request of the Appropriations Committee.
Training films from the Bureau’s free loan library of motion pictures were shown 207,300 times, an increase of 7 percent over the 194,439 showings in the preceding fiscal year. Recorded attendance was 13,088,335, also a new record and up 4 percent from the previous year. In addition, an estimated 43,698,000 persons saw the films over television.
During the year 1,572 new copies of films were added to the loan library, and 1,371 copies were withdrawn from circulation because of obsolescence or wear. The last of the silent films were withdrawn at the close of the fiscal year; the library now is composed solely of 16-millimeter sound films, many of the newer ones in color.
Ten new film subjects were added to the library during the fiscal year: The Making and Refining of Stainless Steel; Oregon and Its
214 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Natural Resources; This Is Magnesium; Sulfur; Powering America’s Progress—A Modern Story of Bituminous Coal; California and Its Natural Resources (a revision of an earlier film) ; The Evolution of the Oil Industry (a revision of an earlier film) ; Washington and Its Natural Resources; Lead from Mine to Metal; and The Story of Lead.
Like others in the Bureau’s loan library, the films added during the year were sponsored by industrial concerns, which defrayed all costs incidental to production and provided the Bureau with copies for distribution to schools, colleges, training classes, the Armed Forces, business and civic groups, and other recognized organizations. No charge is made for the loan of films, but the borrower pays for transportation and for any damage other than ordinary wear and tear.
ADMINISTRATION SUMMARY
Emphasis on improvement of program and administrative functioning was continued.
To improve program guidance and reporting the progress of research and operations projects, a study was made of how these functions were being handled in the other governmental research agencies and in the larger industrial research laboratories. As a result of this study and of the Bureau’s particular needs, certain forms were developed, to be used in the field and in the Washington office, for submitting to the Director proposals for new projects or revision of old projects. Forms were also developed for the authorization of projects by the Director. Part 1 of a manual, describing the use of these forms and their flow through the Bureau organization, has been completed. A second part of the manual, describing the methods of making periodic reports of progress on research and operation projects, is in preparation.
Authority has been delegated to regional directors, regions I through VIII, to make appointments and status changes in positions in grades GS-1 through GS-11 and CPC-1 through CPC-10 which have been allocated and established. Some officials in charge of field stations under the jurisdiction of regional directors are authorized to make appointments and status changes in positions GS-1 through GS-7; CPC-1 through CPC-10; and all ungraded positions. Regional directors also have been authorized to allocate positions as following: Regions I, II, III, V, VI, up to and including grades GS-4 and CPC-5; region VII, up to and including grades GS-7 and CPC-9; and regions IV and VIII, up to and including grades GS-11 and all CPC grades.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 215
The Office of the Bureau Safety Engineer continued its work on improving the health and safety of employees. There are five full-time safety engineers and one full-time safety officer in four syntheticliquid-fuel plants; at each of three other stations, there are designated as safety officers two employees, who carry on these duties as well as performing their regular duties, and one full-time safety officer; at some of the field stations there are safety inspection committees whose chairmen have safety matters directed to them and who make regular reports. In February 1952, all regional directors were requested to designate a qualified person in each station as safety officer to function as such in addition to their regular duties. All Bureau of Mines groups have been requested to take an active interest in Federal Safety Council chapters within their areas. There are 84 of these so far chartered throughout the Federal service.
The injury-frequency rate, which is the number of lost-time injuries per million man-hours of work, was 12.1 for calendar 1951, the lowest of record. The severity rate, which is the number of days lost due to injuries per thousand man-hours of work, was 0.85—43 percent lower than the preceding 5-year average and 39 percent lower than for 1950. These accomplishments are encouraging, since both frequency and severity rates for industry increased, rather than decreased, during calendar year 1951.
In the operation of 1,045 motor vehicles for a total of nearly 6i/2 million miles, 34 accidents occurred in which Bureau of Mines operators were adjudged to have been at fault in 11 instances, other operators in 13 instances, and blame shared equally in 4 instances. Six persons were injured in these accidents, none seriously, and $1,291.37 in awards for damages was made under the Tort Claims Act. Total known or estimated property damage was: Government, $6,361; other, $2,788.
Four fires occurred in 1951 with a total estimated loss of $51,125, but $51,000 of this occurred out of hours in a building heated by gas and was due to a defective thermostatic control. No blame attaches to Bureau of Mines personnel in this major loss.
On June 30,1952, there were 4,843 full-time employees in the Bureau of Mines, distributed as follows:
TABLE 1.—Schedule and number of employees
GS CPC Ungraded Total
Departmental __ 765 3,023 10 299 1 745 776 4,067
Field
Total - _
3,788 309 746 4,843
216 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
PROPERTY
Property records of the Bureau of Mines, as of June 30, 1952, show accounts as follows:
Automobiles and trucks_______________________________________$1,995,438. 81
Canvas and leather goods_____________________________________ 21, 618.32
Drafting and engineering instruments_________________________ 110,129.16
Electrical equipment_________________________________________ 389, 556. 46
Hardware and tools___________________________________________ 460, 369. 83
Household equipment__________________________________________ 102,466. 27
Laboratory equipment—---------------------------------------- 5, 719,077.11
Medical equipment____________________________________________ 38,670. 95
Office furniture and equipment_______________________________ 2,113,456. 48
Photographic apparatus-------------------------------________ 209, 720. 34
Machinery and power plant equipment-1________________________ 5, 889, 556. 82
Land, buildings, and improvements____________________________ 24, 777, 006. 49
Specialized equipment and apparatus__________________________ 12,112, 898. 59
Total___________________________________________________ 53,939,965.63
This property is in Washington, D. C., and at the various field stations and offices of the Bureau.
FINANCE
The total funds available to the Bureau of Mines for the fiscal year ended June 30, 1952, including direct appropriations, prior-year balances available, reimbursements, transfers, and advances from other Government agencies, and advances from other than Government agencies, were $44,645,345. Of this amount $36,127,598 was obligated, leaving an unobligated balance of $8,517,747.
Funds available to the Bureau of Mines for fiscal year 1952 (by source of funds)
Direct appropriations--------------------------1____________________________ $24, 366, 856
Deduct: Transfer of funds to finance defense activities__________________ 44, 000
Net, direct appropriations______________________________ 24,322, 856
Prior-year balance available (includes $6,600,000 of contract authorization) ------------------------------------------------- 9,413,192
Reimbursements from other Government agencies_________________ 1, 660, 386
Advances from other than Government agencies__________________ 1, 621, 050
Advanced or transferred from other Government agencies________ 7, 627, 861
Total, Bureau of Mines________________________________________ 44, 645, 345
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 217
Obligations incurred by the Bureau of Mines in the fiscal year 1952 by appropriation
Conservation and development of mineral resources:
1. Fuels:
(a) Coal_______________________________________________$1,984,586
(&) Petroleum and natural gas-------------------------- 1,324,300
(c) Synthetic liquid fuels----------------------------- 7,609,543
(d) Helium------------------------------------------------ 90,112
2. Minerals and metals:
(a) Ferrous metals and alloys-------------------------- 2,136,962
(ft) Nonferrous metals---------------------------------- 2,698,115
(c) Nonmetallic minerals------------------------------ 742, 076
(d) Mineral research, unclassified----------------------- 613,977
3. Control of fires in inactive coal deposits---------------- 356, 007
Total, conservation and development of mineral resources— 17, 555, 678
Health and safety:
1. Investigation of accidents and rescue work--------,--------- 847, 542
2. Mine inspections and investigations------------------------- 2, 715, 710
3. Explosives and explosions testing and research-------------- 500, 067
Total, health and safety-------------------------------------- 4, 063, 319
Construction:
1. New laboratory facilities---------------------------------- 424, 931
2. Drainage tunnel, Leadville, Colo_______________________:— 340, 554
3. Synthetic liquid fuels------------------------------------- 3,438, 247
Total, construction________________________________________ 4, 203, 732
General administrative expenses--------------------------- 1, 257, 600
Construction and rehabilitation, Bureau of Reclamation (transfer to
Bureau of Mines)------------------------------------------------- 161,854
Helium production___________________________________________________ 1,131, 474
Development and operation of helium properties---------------------- 573, 908
Working fund, Interior, Mines--------------------------------------- 6, 380, 010
Administrative expenses, Mutual Security Act, executive (transfer from State to Interior)--------------------------------------------- 45,215
Economic and technical assistance, Asia and Pacific, title III, Mutual
Security Act, executive (transfer from State to Interior)-------- 82, 476
Economic and technical assistance, Near East and Africa, title II, Mutual Security Act, executive (transfer from State to Interior)____ 7, 232
Contributed funds___________________________________________________ 665,100
Total obligations incurred----------------------------------- 36,127, 598
Unobligated balance, June 30, 1952---------------------------------- 8, 517, 747
Total, Bureau of Mines___________________________________________ 44, 645, 345
■
• ■
GEOLOGICAL SURVEY
W. E. Wrather, Director
GEOLOGIC DIVISION
The Geologic Division during fiscal year 1952 continued to place its scientific skills at the disposal of a Nation girding for defense. Survey geologists were called upon to bear much of the responsibility of implementing the Defense Minerals Exploration Administration and the Defense Materials Procurement Agency; to divert personnel for geologic investigations of mineral resources in underdeveloped countries, under the Mutual Security Act; to offer their services as advisers and consultants to the National Security Resources Board, the President’s Materials Policy Commission, and the Military Establishment.
Great strides were made in the realm of applied physics and chemistry. New techniques of geochemical prospecting, conceived and perfected by the Survey, have indicated new areas of potential ore bodies by detection of trace elements in soils, waters, and surficial deposits; improved laboratory analytical methods have revealed rare elements occurring within large deposits of commoner economic minerals and constituting valuable byproducts; new geophysical instruments, like the portable scintillation detector used in radiological surveys, have been added to the Survey’s ever-increasing array of mineraldetecting devices; unusual geologic environments were explored and studied in the search for oil, such as the subsurface reefs of the Scurry field, Texas; and progress was made in understanding violent terrestial movements like landslides, earthquakes, and volcanic eruptions, and predicting their occurrence.
Although the acute demands of national defense have resulted in some expansion of plant and personnel, they have drawn so heavily upon the existing resources of the Survey that its regular program of work has been retarded. The Survey should be enabled to continue its traditional and carefully planned research and geologic mapping from which have come byproducts that have proved invaluable in times of crises.
219
226396—53----15
220 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Mineral Deposits
Long-term objectives of the Mineral Deposits Branch are (1) to conduct geologic mapping, research, geochemical prospecting, trenching, drilling, and sampling programs relevant to the most effective exploration and development of the Nation’s mineral resources, and (2) to maintain a continuing appraisal of these resources.
Field work was carried out on 66 projects in 28 States and Puerto Rico. Exploratory drilling was continued in Iowa, Utah, and Wisconsin. Two geochemical prospecting projects developed field tests for manganese, antimony, barium, and selenium, improved tests for other elements, and made more than 2,000 trace-element determinations a month. Regional mineral resource studies were carried on in the New England-New York area and in the Arkansas, White, and Red River basins. Contributions financed by the Defense Minerals Exploratory Administration and the Defense Materials Procurement Agency, were made to the formulation of a minerals program for the Nation, and for evaluation of applications for loans, preparation of contracts for these loans, and enforcement of these contracts, 260 of which are now in force.
Several important discoveries resulted from field investigations. As a result of geochemical prospecting recommendations, hitherto unknown extensions of the main cobalt-copper-bearing veins in the Blackbird district, Idaho, were found by private industry. A new lead-zinc ore body was discovered in Wisconsin by private exploration based upon the Survey’s work in delineating structurally favorable areas. Two potentially valuable phosphate deposits were discovered by Survey geologists in Idaho and Montana. Arkansas bauxite samples that were being analyzed proved to contain about 1 pound of columbium per ton of ore. If these samples are representative it means that the amount of columbium handled during current production of Arkansas bauxite is about as great as the current world production of that metal. A California quicksilver producer revealed discovery of four large ore bodies, based upon Survey-developed principles of structural control of ore in the district.
Two confidential reports on the world resources of tungsten and chromium were submitted to the National Security Resources Board. A titanium bibliography was brought to the manuscript stage and will be submitted for publication shortly. During the year 110 manuscripts were submitted for approval and publication as follows: 1 professional paper, 14 bulletins, 15 circulars, 4 geologic quadrangle maps, 7 mineral investigation maps, 31 reports on open file, 10 reports issued by cooperating States, 27 articles in scientific journals, and 1 chapter to appear in a Bureau of Mines Report of Investigations.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 221
Petroleum and Natural Gas
The Geological Survey aids the search for petroleum and natural gas by providing basic technical data necessary for sound exploration programs. Such information is obtained by systematic geological mapping of exposed sedimentary rock formations and by detailed laboratory study of samples from wells and from outcrops in sedimentary basins that are producing or that may produce oil and gas. Geological Survey reports show the presence or absence of possible source beds or reservoir rocks and provide essential data on other factors that influence the migration and accumulation of oil and gas.
Twenty-seven regional studies were carried on in 18 actual or potential petroleum-bearing States. All these studies were carefully integrated with operations of the oil and gas industry, the State geological surveys, and other agencies. A total of 15 oil and gas maps and charts, 3 circulars, and 2 professional papers providing information on regional geologic problems in 7 western States, and a revised map of the oil and gas fields of the United States were published.
A detailed geologic investigation of the oil-bearing subsurface reef in Scurry County, Tex., was completed for the Petroleum Administration for Defense to supply information concerning the size, shape, porosity, and arrangement of reservoirs in the reef, which will aid in planning the development of the field.
Oil Shale
Investigation of the high-grade oil shale deposits in the Green River formation of Colorado and Utah was carried forward during the year. Detailed mapping and stratigraphic studies of the most promising oil shales in Colorado were completed, reports on two areas within the Piceance Creek Basin were finished, and a final report on the oil shale of northwestern Colorado is in preparation.
Coal
The Geological Survey continued the systematic reappraisal of the coal resources of the Nation, the geologic mapping of economically important coal-bearing areas, and the basic study of the constituents of coal that are necessary for the understanding of the genesis, correlation, and most effective utilization of coal.
Reappraisals of the coal resources of Virginia, Indiana, North Dakota, South Dakota, and Colorado were completed, and circulars
222 ☆ ANNUAL report of the secretary of the interior
on the coal resources of South Dakota and Virginia were published. Detailed geologic mapping of coal fields in Colorado, Indiana, Kentucky, Montana, New Mexico, North Dakota, Ohio, Oklahoma, Pennsylvania, Washington, and Wyoming was continued.
Studies of coal samples at the Coal Geology Laboratory at Columbus, Ohio, yielded important information on the petrography, radioactivity, and paleobotany of coal, which is of help in solving pioblems relating to the correlation and genesis of coal beds. Basic data needed for deciding upon the most effective utilization of various coals as fuel, as a source of synthetic liquid fuels, and as a raw material for chemical processes, have been gained as a result of the field and laboratory work carried on during the year.
Engineering Geology
The geologic mapping for general service and engineering purposes was continued in the fiscal year, and five new projects were begun in areas where major engineering works are planned. By detailed mapping of bedrock and surficial formations the geologist obtains the answers to many of the questions that confront the engineer during the planning stages, such as depth to rock, sources of construction materials, stability of landslides, mineral evaluation in relation to land appraisal, and foundation conditions at sites of proposed highways, bridges, overpasses, large buildings, and other structures.
Four projects were added to the program" of mapping urban and industrial areas. These are Denver, Colo.; Los Angeles, Calif.; Seattle, Wash.; and Omaha, Nebr. Work was continued in Knoxville, Tenn.; San Francisco, Calif.; Great Falls, Mont.; and Portland, Oreg. New undertakings include detailed geologic mapping on the upper Green River, Utah, to supply data for a new regional land development and power project; and a study of the landslides at the Fort Randall Reservoir in South Dakota.
Almost one-third of this program is in the Missouri River basin in support of the Department’s program for basin development. A geologic mapping program in Massachusetts and Rhode Island is being carried on in cooperation with those States.
In all, 17 field projects were in progress in 10 States. Fifty-six reports were made available to the public through open files in Washington, D. C., and Denver, Colo.; 6 reports were published by the Survey; and 14- reports were published by professional journals. Twelve foreign engineering geologic works were translated and placed on open file, and more than 100 other foreign works were abstracted.
ANNUAL REPORT OF BUREAUS AND OFFICES ft 223
General Geology
The technical advances that support our increasingly high standard of living are to a great degree the byproducts of scientific research, carried on for its own sake, and with no specific objectives other than the desire to learn fundamental truths about natural phenomena. In the field of geology pure research has contributed to the discovery of many valuable mineral deposits. Therefore, although much of the Geological Survey’s field work is directed toward the appraisal of known mineral deposits and toward the search for new deposits, part of the effort is devoted to systematic geologic mapping and research. This concerns several fields of geology, and for convenience they are identified as general geology.
A good example of the direct economic benefits of pure research is shown by results obtained in California. For several years the Mojave Desert has been the site of a general mapping and research project. Two years ago this work led to the discovery of deposits of hitherto little known cerium minerals and has since provided the background of information that was necessary to guide the exploration of these deposits to the end that large reserves of cerium have been established. The project has also been instrumental in the discovery of deposits of valuable mineral salts. As a result, emphasis in this particular project has changed from general research to economic geology.
Field activities in general geology included 19 projects in 15 States, the Aleutians, and the Territory of Hawaii. The projects in Hawaii and the Aleutian Islands are concerned chiefly with the study of volcanic processes, but also embrace strategic terrain studies for the armed services. Other general geologic projects involved research in tectonics, glacial geology and geomorphology, the mechanics of igneous intrusion, and rates of sedimentation.
Geophysics
Airborne magnetic or radiometric surveys were made in 12 Northeastern and Western States. Compilation of data for 40,000 traverse miles was completed, 28 maps were released to open files, and 32 maps were published. With the release in January of maps of 12 counties, Indiana became the first State to be completely mapped aeromag-netically. The aeromagnetic anomaly of greatest intensity yet observed, 1,200 gammas at 10,000 feet, was mapped over the Sacramento Valley. Flights over the Duluth gabbro, in which a copper-nickel ore discovery has been reported, also recorded anomalies of great intensity. Airborne radioactivity surveying has been developed to
224 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the stage of routine application and is proving a useful tool for uranium prospecting.
Ground surveys were made in 11 States, in Alaska, and in two areas outside North America to determine depths to bedrock, locate aquifers, study buried valley systems, and provide structural or stratigraphic information for investigations of mineral deposits.
Geothermal investigations in Arctic regions were continued. Data thus far accumulated have provided important scientific and engineering information on thickness and temperatures of permafrost, effects of building heat on the cold reserve beneath buildings, and the time required for drill holes to reach thermal equilibrium.
Seismic observations in the Aleutians were continued. Interesting correlations have been indicated between volcanic activity and the frequency of earthquakes near Adak and Great Sitkin. A memoir on the interpretation of aeromagnetic maps was published. Abstracts of current geophysical literature were prepared and published in the quarterly Geophysical Abstracts.
Geochemistry and Petrology
The determination of the chemical and mineralogical composition and structure of rocks, ores, and minerals is a vital part of the Geological Survey’s program of geologic mapping and mineral resources investigations. Special skills in mineralogy, petrology, chemistry, and physics, and elaborate laboratory facilities are required to supply this analytical service. This service, performed in the field and in the laboratory, is one of the major functions of the Branch of Geochemistry and Petrology. Other functions include aid to the geologists and cooperation, oftentimes in the field, in making interpretations requiring a knowledge of the physical and chemical properties of rocks and minerals, their relationships, modes of origin, and reactions. Research on specific problems in the field of geochemistry is also carried on, and continued efforts are made to improve analytical methods. In the past year 28 papers and reports resulted from these activities.
Considerable progress was made in the search for possible new sources of columbium. As a result of many laboratory analyses, the possibility is indicated of utilizing waste materials from bauxite and titanium metal plants as a source of this critically needed element.
Basic research was begun on the geology and geochemistry of uranium in the following studies: Distribution of uranium in igneous rocks, synthesis of uranium-bearing minerals, X-ray diffraction studies, and isotope geology of uranium, thorium, and their decay products.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 225
Paleontology and Stratigraphy
Data and conceptions essential to the solution of problems in applied geology are provided by research in the succession and relationships of life and sedimentary rocks throughout time. Specialists of the Paleontology and Stratigraphy Branch determine the age, ecologic implications, and biologic affinities of fossils referred for study; help other Federal geologists with field problems in stratigraphy; and engage in planned original research.
An effort was begun to establish criteria for the zonation and correlation of oil-producing strata in the Williston Basin of the northern Great Plains. Aid in determining the precise age, depositional conditions, derivation, and correlation of uranium-bearing rocks was increased. Assistance in the distinction, correlation, and interpretation of rock units in areas of military importance was intensified. Additional assistance was given to correlation studies relating to Alaskan naval oil reserves. Preparation of 334 reports on referred collections involved study of more than 42,000 specimens from 29 States and 17 foreign countries. Published research by a member of the branch, done in cooperation with the Tennessee Division of Geology, was credited with major discoveries of domestic zinc ore.
Forty-five reports of investigation were approved for publication and thirty-seven were published. Cooperative studies of the geology and paleontology of Bikini were completed. Professional Paper 206 was reprinted because of requests of oil geologists.
Geologic Investigations in Alaska
Continuing international uncertainty has again affected the balance of the Geological Survey’s program of geologic investigations in Alaska. Private and Government activities in the Territory continue to revolve in large part around the requirements of the National Military Establishment. This has meant increased activity in the Geological Survey’s search for and examination of local sources of construction materials; and in advising Territorial and military officials on the selection of transportation routes, air fields, and building sites. Meantime, interest has increased in the fuel reserves of the Territory and in the potentialities of its strategic and critical minerals.
Specific investigations included studies of construction materials in areas adjacent to the main railroad and highway system, marl and shale deposits in the Matanuska Valley, tin deposits on the Seward Peninsula, tungsten deposits in the Fairbanks district, antimony deposits in the Sawtooth Mountains near Livengood, copper deposits in the Prince William Sound area, and detailed and reconnaissance mapping of mineralized areas in southwestern and southeastern
226 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Alaska. Coal investigations were conducted in the Matanuska, Nenana, and Kenai coal fields, and a preliminary office study was made of the Bering River coal fields. Geologic studies were also continued in the Chinitna-Tuxedni area and in the Yakataga and Katalla areas. A preliminary report on the Katalla field was released for public use late in the fiscal year. In northern Alaska petroleum investigations were continued as in past years, largely financed by Navy funds.
Military Geology
The Geological Survey continued operations in military geology at the behest of the National Military Establishment. Information was supplied on the geology, soils, terrain, water supply, and construction problems of many areas. As in former years, most military projects were financed by the Corps of Engineers under a cooperative agreement.
A special cooperative agreement between the Survey and the Corps of Engineers made possible a reconnaissance survey of little-known islands in the northern Marshalls. This study yielded much basic scientific information on the deposits and structures of atolls, their water supply, and vegetation pattern. Studies are now in progress on two other significant islands.
A group, utilizing the Geological Survey library and other research libraries in the vicinity, collected and interpreted basic data on foreign areas. Many reports, mostly at a strategic level, were finished during the year.
The field programs in the western Pacific are continuing. Detailed geologic and water-resources mapping of Guam is in progress and a soils survey is soon to begin. Plans have been made to undertake mapping of those islands of the United States Trust Territories of the Pacific that have not already been mapped. In Alaska selected areas are being studied with special reference to arctic and subarctic terrain, permafrost, and vegetational conditions.
Military geology reports covering Alaskan and Pacific island areas, Fort Benning, Ga., and the Sixth Army area are now in preparation.
Foreign Geology Investigations
The Geological Survey’s activities in foreign geology, which began in 1940, increased in scope and tempo under the Mutual Security Act of 1951. The long-range programs of geologic investigations of metallic deposits continued in Mexico, Brazil, and Peru; nickel in
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 227
vestigations were resumed in Cuba; reconnaissance investigations preparatory to advising on mineral exploration programs were initiated in Paraguay and Chile.
Ground-water and minerals investigations in Saudi Arabia and India have resulted in discovery of water to relieve critical shortages in several key municipalities; 6 million tons of manganese have been proved in India. Fuels investigations in Thailand resulted in the discovery of 10 million tons of coal where coal reserves were heretofore thought to be insignificant. A published report on the Philippine sedimentary basins led to renewed and increased interest on the part of major oil companies to undertake oil exploration. Significant areas of potential manganese deposits were mapped in the central islands of the Philippines.
Cooperative geologic investigations with British Colonies, begun in fiscal year 1950 under the Mutual Security Act, were concluded. This activity set in motion long-range country-wide minerals investigative programs which are now being carried forward by the staffs of the various British colonial geological surveys.
The Geological Survey has assigned 27 foreign trainees to its domestic field parties and has arranged for them to obtain specialized academic training. Leaders and specialists from countries getting mutual security aid received 3-month scientific, technical, and administrative orientation grants at the Geological Survey in Washington and at its domestic field offices and projects.
The branch published three bulletins in the year. One, the report of a geologic reconnaissance of Thailand, is being republished by the Thai Bureau of Mines in the native language.
Geologic Maps
The Office of Geologic Cartography, in conjunction with the 6 field units, prepared 1,229 geologic maps, charts, diagrams, and other illustrations for multicolor and black-and-white reproduction. Final copy for 6 maps in the geologic quadrangle series, 7 mineral investigations maps, 32 fuels maps, 23 geophysics maps, and 9 State index maps were transmitted to the Branch of Map Reproduction. Fifty-five other multicolor maps are in various stages of preparation.
The geologic map editor reviewed and edited 2,860 maps and figures, involving 361 reports. About 80 percent of these illustrations were designated for publication by the Survey; the rest were routed for publication by cooperating State and Federal agencies or by scientific journals.
228 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Library
In volume of material received, number of items loaned, and number of people using its facilities, the library had the busiest year of its history.
Almost 24,000 books, maps, and serial parts were added to the collection of the Washington library. More than 26,000 items were loaned to Survey personnel for use outside the library, and 4,000 to other libraries. More than 20,000 readers, including about 4,000 nonSurvey readers, used the library’s facilities.
The branch libraries at Denver and San Francisco have been enlarged considerably during the year, both in their collections and in additions to personnel. The staff at the Denver library has been increased to seven, and the San Francisco library acquired a librarian at the beginning of the fiscal year.
The Bibliography of North American Geology for 1950 is in press. It is annotated for the first time since World War I. However, lack of staff has compelled the abandonment of annotations to permit work on the cumulative bibliography for 1940-49. A copy of the library’s catalog, for use as a reference by the Denver branch, is almost completed.
TOPOGRAPHIC DIVISION
The Topographic Division has the duty of meeting the Geological Survey’s responsibility to prepare a topographic record of the physical and geographical features of our country. This duty is being fulfilled by preparing, maintaining, and distributing topographic quadrangle maps which will eventually cover the entire United States on a scale of 1:62,500. To supplement this topographic atlas, the Division is also doing 1: 24,000-scale topographic mapping of critical and economically important areas throughout the United States, its Territories, and possessions. In line with these duties, the Division is called on to meet, dollar for dollar, any cooperative mapping allotments made by the various States. In fiscal year 1952, 29 States and Puerto Rico contributed to cooperative mapping programs of this kind. Mapping or map revision of some kind was carried on in all the 48 States and in the District of Columbia, Alaska, Puerto Rico, and the Hawaiian Islands.
The Federal mapping program was again directed toward strengthening national defense, and a large part of the productive capacity of the Division was utilized to meet the immediate needs of the Depart
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 229
ment of Defense. Work on its 6-year plan for mapping of strategic areas, begun by the Division in fiscal year 1951 and paid for by funds transferred from the Corps of Engineers, was reoriented in keeping with certain changes in priority established by the Department of Defense and was continued. Earlier completion dates were set for the mapping of certain areas, although the entire program is still scheduled to be completed June 30, 1957. To meet the earlier deadlines, personnel were diverted from projects begun in other areas before the 6-year program was undertaken, additional personnel were employed, and contracts covering separate operations of mapping were awarded.
Map-making facilities in the regional offices were expanded to meet demands for increased productions. New air-conditioned buildings, especially designed to meet the requirements of mapping operations, were constructed for three regional offices, the Atlantic in Arlington, Va.; the Central in Rolla, Mo.; and the Pacific in Sacramento, Calif. Additional air-conditioned space was also provided for the Rocky Mountain Region at Denver Federal Center, Denver, Colo. Doubleshift operations were more fully applied in all photo-mapping units, and there was considerable overtime work in nearly all office operations as a means of increasing productive capacity.
In order to meet the immediate demands of a largely expanded defense mapping program, contracts were placed for the performance of separate operations involved in the mapping of areas aggiegating 16,000 square miles, at a total cost of $1,500,000. Because this was a departure from usual Survey operations, it required writing detailed specifications of the work to be performed, and establishing procedures for inspecting and testing the completed work for compliance with prescribed standards.
Technical assistance, as required, was offered to the nations of the free world in the forms of training of photogrammetrists and topographic engineers, specifications for aerial photography and map compilation, advice on contractual mapping, and supervision, inspection, and testing of map compilation. The Division cooperates in these endeavors with the Technical Cooperation Administration of the Department of State and the Mutual Security Agency. Also, the Division cooperates with the Pan American Institute of Geography and History through conferences on standards and techniques, and with the Inter-American Geodetic Survey by accepting advice on the capabilities of men for training and by doing its part to further the aims of the organization for better maps and control for South and Central America.
230 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Mapping Programs and Map Production
Federal-State cooperative programs, whereby mapping costs are shared equally between a State and the Federal Government, were conducted in the 29 States of—
Arkansas Louisiana Ohio
California Maine Oklahoma
Colorado Massachusetts Pennsylvania
Connecticut Michigan Tennessee
Georgia Minnesota Utah
Illinois Missouri Vermont
Indiana New York Virginia
Iowa Nevada Washington
Kansas North Carolina Wisconsin
Kentucky North Dakota and in Puerto Rico.
The new cooperators in the list are Colorado, Georgia, Nevada, and Oklahoma. The Survey also continued to give financial assistance to the Tennessee Valley Authority’ in completing the topographic mapping of the valley. This work has no relation to the Tennessee State cooperative program which includes only those areas outside of the Tennessee River basin. The cooperative program in Kentucky, the largest one in the history of the Survey, reached about 30 percent of completion, approximately in line with the goal of completing the mapping of that State in 5 years.
Because of the high priority of defense mapping, it was not always possible to select areas for Federal mapping on the basis of requests submitted by the principal map-using agencies. However, the procedures set up by the Bureau of the Budget for this purpose were used, and priorities for new mapping projects were determined even though the beginning of work on most of these projects would have to await an increase in productive capacity beyond the needs for defense mapping. A start was made toward developing a better procedure whereby State agencies could express their needs for Federal mapping through a single coordinated request from each State. Several States have already organized for this purpose mapping advisory committees on which are represented the major map-using groups wholly within the State.
Topographic mapping operations were continued in the Missouri River basin, although it was necessary to reduce activity by about one-third because of a reduction in the funds appropriated for that work.
The Special Map Projects Section was engaged in the compilation and preparation for publication of State, sectional, and regional maps on scales of 1: 250,000; 1: 500,000; and 1:1,000,000. Limited work on the United States portion of the International Map of the World on a scale of 1:1,000,000 was continued. Sheets -I—11 (Los
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 231
Angeles) and 1-17 (Savannah) are ready for publication, although the preparation of new maps in this series, including two already begun— J-17 (Blue Ridge) and H-17 (St. Augustine)—has been suspended.
Publication and distribution of a civil edition of the 1:250,000-scale maps compiled by the Army Map Service were continued. This is a provisional series prepared by the Department of Defense for military purposes and is not intended to show accuracy of detail. However, the publication of a civil edition will provide reconnaissance topographic maps of many areas for which no topographic information of any kind is at present available.
Progress on the Transportation Maps of the United States for the Bureau of Public Roads was continued only until July 23, 1951, when the task was transferred to the Coast and Geodetic Survey of the Department of Commerce.
In the new series of State maps on the scale of 1: 500,000, compilation was completed for maps of Illinois, Missouri, Oklahoma, and Ohio, and the manuscripts were transmitted for reproduction. Maps for the States of New Mexico, New York, Oregon, Pennsylvania, and Tennessee are in various stages of compilation and inking. The map of California is being prepared for publication on the 1: 500,000 scale. A new base-map edition and one carrying contours and highways, covering the two States of New Hampshire and Vermont, were published.
A new topographic map of Puerto Rico and adjacent islands on a scale of 1:120,000 was published, and another covering the same area on a scale of 1: 240,000 is now in the process of reproduction. The latter will be published in a shaded-relief issue, as well as in the regular form.
The Trimetrogon Section continued its work of preparing special maps and aeronautical charts for the United States Air Force. In general, these assignments provide for the cartographic or photogrammetric compilation or revision of base charts preliminary to photolithographic reproduction. This work forms an integral part of the over-all program of the Air Force for the production and maintenance of adequate world-wide coverage of aeronautical charts, primarily in the interest of national defense.
About 400 charts were prepared, covering 376,000 square miles. These include 223,000 square miles of entirely new photo compilation and 153,000 square miles of revision and cartographic compilation. Various special projects were involved covering areas in practically every part of the world.
The Trimetrogon Section also continued special mapping work for other Federal agencies and investigated new approaches to some of the normal operations of the Division. A new application of the
232 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
slotted-templet method is being used in a test compilation of 55 7^-minute quadrangles in Louisiana. It is hoped that the test will prove the usefulness of the method and release stereographic equipment for contouring. The mapping of a test area in Nevada involving the use of 9-lens, P-K photographw has been completed and the results have been sent to the field for field completion which includes examination and verification, as well as completion by field methods of mapping operations that cannot be done in the office from the aerial photographs.
Mapping in Alaska was continued and an area of about 16,400 square miles was covered at a scale of 1: 63,360. Compilation work on the provisional issue of 1: 250,000-scale maps is almost completed. Already maps of 92 of the 153 quadrangles have been published, and all except 14 of the others have been completed and will soon be ready for publication. The few sheets remaining unfinished are mostly in southeast Alaska and in the Aleutian Islands.
In continental United States (excluding Alaska) 69,500 square miles of topographic mapping was completed during the year. This figure includes 9,700 square miles of map revision.
Horizontal control was established over an area covering 71,100 square miles (including 18,900 square miles by triangulation and 14,235 linear miles of transit traverse). Vertical control covered 55,900 square miles (16,060 linear miles of leveling) and supplemental control 44,700 square miles.
In the compilation phases of mapping, 63,000 square miles were completed by stereo-compilation methods, consisting of 24,800 square miles of planimetric bases and 38,200 square miles of combined bases and contouring. Field compilation accomplished during the year consisted of 39,200 square miles of field completion, 21,200 square miles of plane table mapping, and 10,200 square miles of revision—a total of 71,000 square miles. The totals for stereo and field compilation are not additive because most stereo-compilation, at some time, must pass through one of the phases of field compilation—either plane-table mapping in the case of planimetric bases, or field completion of areas contoured by stereographic methods. The division drafted and prepared for reproduction maps of 73,500 square miles. Relief shading was completed on 23 maps.
Topographic maps forwarded for reproduction totaled 930, including 4 to be engraved. Of these, 625 were 7%-minute quadrangles and 200 were of the 15-minute series. In addition, the Division prepared reprint editions of 198 quadrangle maps, 14 State base maps, and 24 State index maps. At the close of the fiscal year 464 maps were in process of reproduction, including 46 reprints. During the year 765 new quadrangle maps and 189 reprints were published. About 20
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 233
percent of the new maps resulted from original mapping done by the Tennessee Valley Authority, the Coast and Geodetic Survey, the Army Map Service, and the Forest Service. In keeping with present policies, the topographic map material produced by these agencies is published and distributed to the general public by the Geological Survey.
A detailed summary of production, covering new mapping, remapping, and revision is shown on the following table.
Areas (in square miles) mapped during fiscal year 1952 for publication on standard scales
[Contour intervals, 5 to 100 feet]
State Area mapped, scale New mapping Revised mapping Total
1:24,000 1:31,680 1:62,500
Alabama.
Arizona. .. 187 961 4,986 964 187 961 10,290 964 52 40 187 961 14,463 964 276 40
Arkansas ...
California ... 9,477 4,173
Colorado.. .
Connecticut 276 224
Delaware . 40
District of Columbia
Florida.. . 2,018 31 547 2,018 31 961 1,273 901 840 549 5,804 580 468 37 2,018 31 961 1,430 958 840 549 5,804 948 1,265 37 484 739 2,249
Georgia
Idaho. 414 1,430
Illinois . . 157 57
Indiana 958
Iowa 840
Kansas . 549 5, 804 368
Kentucky.
Louisiana 580 1,265 368 797
Maine... ._
Maryland 37
Massachusetts 484 484 494 23
Michigan ... .... . 555 997 184 1,252 245 2,226
Minnesota ...
Mississippi .
Missouri. 1,043 1,274 1, 513 1,043 1,346 1,463 3, 594 1,043 1, 346 1, 513 3,594
Montana . _ . . . . . 72
Nebraska . ... . .-. . 50
Nevada .... 3,594
New Hampshire ... . .-.
New Jersey 12 2,286 1,149 79 1,318 960 60 78 481 12 2,536 880 79 1,632 522 60 1,389 481 12 3,047 1,149 79 1,632 960 60 1,393 481
New Mexico ... . 761 511 269
New York.. ._ _
North Carolina ..........
North Dakota ... 314
Ohio 438
Oklahoma - - . .. .
Oregon 1,315 4
Pennsylvania
Rhode" Island-.
South Carolina.
South Dakota. . 2,814 1,184 4, 224 652 283 2,814 1,184 4,987 1,524 43 359 382 66 955 4,011 283 3,097 1,184 4,987 1,524 468 389 1,226 66 1,063 4,011
Tennessee..
Texas 763 872 468 359 1,043 27 900
Utah
Vermont . 425 30 844
Virginia ... . ... 30 183 39 163 4,011
Washington
West Virginia.. .. ...
Wisconsin 108
Wyoming ....
Total
42, 555 760 26,213 1 16,419 59,789 2 53,289 9,739 69, 528 2 53,389 905
Alaska
Puerto Rico . » 905 905
1 Mapped on a scale of 1:63,360.
1 Includes 36,870 square miles mapped on a scale of 1:250,000, not listed in the columns under “Scale.” 3 Mapped on a scale of 1:30,000,
234 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Research and Development
Progress has continued in the preparation of the Topographic Manual. To date 19 chapters have been published, 50 additional chapters are in advanced stages of preparation, and material for 20 other chapters is in preliminary form. The instructions on multiplex procedure, composed of five separate chapters, were published and widely distributed both in the Geological Survey and in other organizations, public and private.
During the year all relevant information pertaining to the classification of topographic maps distributed by the Geological Survey was placed on machine tabulation record cards and now it is possible quickly to segregate maps of various related characteristics whenever needed for management purposes.
Persistent efforts were continued to find more efficient methods to establish geodetic control. Electronic methods are promising, and research to adapt them to mapping purposes was given considerable attention. The results of mapping, based for elevation upon vertical radar measurements from an airplane carrying a sensitive barometric altimeter, and for position upon shoran, were tested carefully and were found to be encouraging.
A new self-leveling level instrument was tested and adopted, to speed the field work of determining elevations. Other innovations for increasing efficiency of field operations included the adoption and procurement of new induction-damped lensatic compasses for traverse parties, and mechanized post-hole diggers for setting survey monuments.
Researches and experimental tests were conducted on the development of a mechanical traverse meter. Electronic surveying equipment was used experimentally on an operational project in the Kings River area of California for the measurement of distances for vertical-angle elevation determination.
During the year, a small amount of horizontal and vertical control was extended concurrently by subtense base triangulation and simultaneous reciprocal vertical angles. The operations were coordinated by two-way radio. The method has proved to be a practical means of reducing over-all control costs when used over favorable terrain.
A study was made of the problem of observing Polaris for the determination of azimuth. Such observations were usually taken at night except under favorable daylight conditions. As the result of this investigation, improvements have been made in technique and equipment which make it practicable to take daylight observations under conditions that formerly would have been considered unfavorable.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 235
A heat-pressure process for laminating drafting paper onto aluminum sheets was developed. It improved the quality of the drafting surface. In addition the use of thinner, stronger aluminum gave the laminated sheets greater durability and greatly reduced the quantity of aluminum required.
A vacuum-back copy board for large process-cameras used in map reproduction was developed to provide more positive camera adjustment with correspondingly less distortion of the negatives produced, and to provide convenient means of adjusting or changing copy. It is expected that the copy board will improve the quality of the negatives and increase laboratory production.
A portable reflecting projector was developed primarily for field-office use in transferring information from aerial photographs onto map manuscripts. The projectors are especially useful for revision projects and for the transfer of such additional detail from aerial photographs as is found necessary during field inspection of photocompiled maps.
A study of optical-reading telescopic alidades was made, and development of a new pendulum-type, self-leveling, optical-reading alidade is in progress. Both the optical-reading and the auto-leveling features are expected to improve the speed with which alidades can be used.
Particular attention is still being given to photogrammetry, and the further development and application of the advantages available in this important field. In accordance with long-range plans, contracts were awarded for additional multiplex equipment, Kelsh plotters, and universal plotters, in sufficient quantity to increase the existing stereoplotting capacity of the Division by 39 percent.
An important step toward the improvement of the quality of aerial photography was taken with the award of contracts for 10 aerial cameras of a new and highly improved type. These new cameras, designated T-ll, will be equipped with Planigon lenses that are nearly free from distortion.
Substantial progress was made in the construction of a multi-collimator camera calibrator, parts for a special photogrammetric optical bench, and a measuring comparator, all of which were contracted for in fiscal year 1951. Delivery of these instruments in fiscal year 1953 will constitute another important step in the improvement of aerial photography, for they will provide major equipment for testing and calibrating precision photogrammetric cameras in the Geological Survey’s own optical laboratory.
Several major research projects, directed toward the development of new photogrammetric equipment, techniques, and procedures, were continued. One of these projects, undertaken cooperatively with the
226396—53----16
236 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Air Force, calls for the development of an improved twinplex stereoplotting instrument and auxiliary equipment. Another involves the development of an ellipsoidal-reflector projector for stereoplotting; several critical phases of this undertaking have been successfully completed, and it is expected that the prototype instrument will be put into operation in fiscal year 1953. Plans were also completed for the construction of diapositive printers of completely new design using aspheric correction plates.
In addition to the work on new instruments, research on the performance characteristics of the Kelsh plotter was continued and several design changes were developed. Also, a statistical study of accuracy tests of completed maps was conducted with the purpose of gathering technical information for use in planning photogrammetric mapping projects. These, along with several smallar projects, were undertaken in line with a continuing effort to improve the details of photogrammetric operations.
Work on map design and the improvement of drafting equipment and map-finishing procedures continued to be important. Printed maps were regularly inspected for factual content, legibility, and general appearance to determine where improvements might be made.
Symbol standardization was reviewed with other Government mapping agencies, and many changes were adopted. A survey of recent accomplishments and current activities in cartographic research and development was completed. This survey provides information of value to all cartographers and, it is hoped, will eliminate much duplication of effort in this field.
Map Information Office
The large volume of requests for the data that are available through the Map Information Office made the year the most active in the history of the Office. These requests have been widespread in both origin and nature. They came from Federal and State agencies, geologists, geophysical-prospectors, and aerial mapping firms, from highway and railway engineers, from engineers and technicians concerned with the construction of water-supply facilities, public utility projects, industrial plans, and various conservation programs. In all, the Office serviced 35,000 requests, an increase of 5,000 over the preceding year. More than 9,000 visitors used the facilities of the Office.
The usefulness of preliminary map material, made available in advance of final publication, is evident by the volume of requests for this type of data. In conjunction with the regional offices, 39,514 advance prints of maps were supplied. A large number of requests for horizontal and vertical control were received from commercial firms
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 237
for use on microwave transmission systems along pipelines, in guided-missile research, for radio and television station development, and for other purposes.
The requests for aerial photographic reproductions continued, particularly for areas in which topographic maps are either obsolete or not yet available. Altogether, 88,402 reproductions were supplied.
The third edition of the index maps showing the status of topographic mapping in the United States was published. These index maps classify topographic and planimetric maps published by the Geological Survey and other Federal agencies, thereby providing map users with current information on the quality of topographic map coverage and the new mapping in progress. The second edition of index maps showing horizontal control and vertical control in the United States, and the second edition of an index map showing the status of aerial mosaics in the United States were published.
WATER RESOURCES DIVISION
The Nation’s water supplies are being used at a progressively accelerated rate because of our mobilization for defense, our expanding industry and population, and technological advancements. Industrial water demands, according to the President’s Materials Policy Commission, will increase about 170 percent in the 25-year period between 1950 and 1975. In 1950 the American people had more than $50 billion invested in all types of water-management structures and facilities. To develop and manage efficiently the full potential of our water resources, we must record significant information about their ceaseless changes. The unbiased collection, compilation, and interpretation of this information is the work of the Water Resources Division which by publication and counseling makes its records available to governmental units and the public.
In fiscal year 1952 more than one-quarter of the funds available for water-resources investigations was transferred from other Federal agencies for specific work done for them, one-quarter was provided by States and municipalities for cooperative (dollar-for-dollar) investigations, and nearly one-half were directly appropriated. The 1952 program was about 10 percent greater than that for 1951.
Contractual investigations were made and paid for by funds supplied by about 15 Federal agencies including the Department of Defense, Bureau of Reclamation, Bureau of Indian Affairs, Bonneville Power Administration, Department of State, Atomic Energy Commission, Tennessee Valley Authority, and the Federal Power Commission.
238 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Funds made available by the States and matched by the Division for cooperative studies were:
State: Obligations State:
Alabama _ $94,062 New Hampshire—
Arizona . 94,800 New Jersey
Arkansas 50,868 New Mexico
California 223,700 New York
38 500 North Carolina
Connecticut 18,400 North Dakota
Delaware 18,407 Ohio
Florida 130,825 Oklahoma
Georgia 46,500 Oregon
Idaho 55,508 Pennsylvania
Illinois 57,700 Rhode Island
Indiana 83, 540 South Carolina-—
Iowa 82,025 South Dakota
Kansas 59,700 Tennessee
Kentucky 109,700 Texas
Louisiana 57,500 Utah
Maine 10,000 Vermont
Maryland 74,937 Virginia
35 725 Washington
I dkOkOcAv^Il LA kb L- — Michigan 93, 438 West Virginia
Minnesota 30,790 Wisconsin
Mississippi 19,000 Wyoming
Missouri 23,307 Hawaii
Montana _ . _ 28,850
Nebraska 60,000 Total
Nevada 24,929
Obligations $11,729
55, 200 98,195
214, 604 57,430
32, 812
147, 900
74, 600
57, 575
127, 225
7, 900 25,395
7,000 63,707 194,200
97,500
7, 760 63,100
103,655
21, 740 31,850 45,110
81,219
3, 250,117
The Division’s Surface Water, Ground Water, and Quality of Water Branches and their 120 principal field offices, working individually and in combinations, are concerned with specialized studies of the maximum development and best use of our water resources which are necessary for the existence of man and the pursuit of all his activities.
Information about our water resources is made available principally through publications designed to supply data for their most satisfactory development and use. A measure of the use of these data is indicated by the 13,300 specific requests for data which the Division received in 1952. The sources of these requests are: Other Federal agencies, 4,500; State agencies, 1,600; cities, counties, and water districts, 1,400; industrial and commercial firms, 3,800; individuals, 2,000.
The applications to be made of the data requested and the data available through regular publications are indicated in the following specific accomplishments for fiscal year 1952.
Municipal Water Supply
An increasing and shifting population and higher per capita consumption of water have so increased the demands on some municipal, or public, water supplies that a critical point has been reached if the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 239
supply is to be maintained at a satisfactory quality and furnished at a rate the consumer can afford to pay. To provide and interpret data that the engineer will use in locating, designing, and equipping public water-supply systems costing millions of dollars is one aspect of the coordinated work of the Surface Water, Ground Water, and Quality of Water Branches.
In 1952 the Division published reports summarizing and evaluating all available water-resources data on municipal and industrial supply, pollution control, and flood protection for five large industrial centers, and investigations were in progress for six other areas. Data about the chemical characteristics of the larger municipal water supplies throughout the country are being assembled. Reports on three large areas in the United States were completed during the year.
In addition to the information disseminated by publications, the Division answered 800 requests by public water suppliers for data on water resources.
Industrial Water Supply
Industrial water supply is used here to mean water drawn directly from streams, wells, lakes, and reservoirs, and water taken from the public supply by industry.
Our expanding industry, its pace now accelerated by the mobilization for defense, is requiring greater supplies of water at its present sites, adequate supplies at new sites that are being chosen, and waters to meet new and very strict requirements brought about by technological changes. Also, certain marginal industrial firms can operate only if they have inexpensive water supplies of very special chemical qualities. These and other firms make use of data collected by the Division. Plants manufacturing synthetic fibers and antibiotics, like penicillin, and other new drugs require great quantities of high-quality water; some other industries are needing larger volumes of water, generally ground water of as low a temperature as is available, for cooling purposes; and the growing use of air-conditioning equipment in industry, commerce, and homes requires large quantities of water.
The Division has undertaken to collect data on the minimum requirements of many industrial users and, in places, the necessity of conserving the supply by reuse. Some information was obtained on the water needs of the pulp, paper, rayon, petroleum, carbon black, copper, and aluminum industries; and among significant facts learned is that within certain industries one manufacturer may use several times more water than another in exactly the same operation.
Mining hydrology studies in east Tennessee resulted in the solution of a water-inflow problem that had prevented mining of an important
240 ☆ annual report of the secretary of the interior
zinc deposit. Similar problems are now being solved for the mining industry in Michigan, Minnesota, and Arkansas, and others in Alabama (iron) and Wisconsin (lead-zinc) have been proposed for study.
In 1952 the Division received 700 requests for information predominately for potential and actual industrial uses. Data showing the percent of time that streamflow at any one place could be expected to equal or exceed a given quantity assisted in the location of plants that would have a sufficient water supply for year-round operation.
Flood-Control and Hydroelectric-Power Dams, Flood Forecasting, and Navigation
Records of streamflow are made at roughly 6,400 gaging stations in the 48 States and in Alaska and Hawaii, and these are published in the annual series of water-supply papers entitled “Surface Water Supply of the United States.” The dissemination of these records, together with the answering of 3,500 specific requests in 1952, provided the key to countless governmental and private activities. These activities, which will be discussed in part under irrigation and pollution control, include these applications of data, among a multitude of others:
The location of highways, railways, and bridges is determined in part by records of streamflow, perferably over a long period of years. For example, the records might indicate that it would be more economical to construct a bridge that might be washed out once every 20 years and that could be replaced at relatively little cost, than to spend many times the replacement cost in locating the bridge out of flood reach. Measurements of streamflow are necessary, too, in determining the size of bridge openings and the spacing and construction of piers.
Streamflow data are a prerequisite to the location, design, and operation of hydroelectric-power and flood-control dams, and levees. If a dam is underdesigned it may not fulfill its purpose, if it is over-designed it may be washed out. The design of reservoirs and spillways is based on records of stream discharge, and their operation is determined by interpretations of water records that have been diligently and unspectacularly kept day by day for many years.
The location of flood-control dams, and hydroelectric-power dams as well, depends too on records of sedimentation that are collected and interpreted by the Division. If sedimentation were to make a dam useless in too brief a period, it would be uneconomical to build it.
Records of streamflow are used in the forecasting of flood crests in all parts of the Nation whenever floods threaten. In addition to the uses governmental and company hydrologists and engineers made of
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 241
publicly circulated data, the Division received 1,000 specific requests for information about flood forecasting.
Irrigation
Twenty-three hundred specific requests for information relating to irrigation were received by the Division in 1952, in addition to the widespread consultation of the regularly disseminated records of the three Branches by planners of irrigation projects. Even the cottonpatch farmer must know that the water he pumps is not so contaminated that it will kill his crop. Any planned irrigation project is dependent not only upon the available supply of surface and ground waters, but upon their chemical qualities, and, in places, upon drainage problems involved. Thus our continuous need for an increased food supply can be met in part only by a complete knowledge of our present and potential water resources and their conservation.
A preliminary report was prepared on the return flow of irrigation water in the Columbia River basin. In Utah Valley, Utah, deep drilling revealed previously unknown aquifers whose waters may be discharging unused into Utah Lake and could be recovered without affecting the overlying aquifers now in use. This discovery has important possibilities in many similar valleys of the Great Basin.
Studies of sediment movement in streams furnished data for Federal and State agencies planning and operating storage reservoirs, diversion works, and canal systems.
Pollution
The amount of flow in streams and the chemical and physical properties of surface and ground waters directly concern nationwide problems of pollution control and abatement. The Division exchanged data on these characteristics of water with public health agencies which collect information primarily on bacteriological pollution, and joint interpretations were made, such as those published in the pollution survey of the Ohio part of Lake Erie. As already mentioned, data on the chemical and physical characteristics of water are increasingly needed by industry to determine whether what might otherwise be an adequate supply will meet specific quality requirements. They were used in irrigation projects to control increasing concentration of mineral contaminants by the reuse of water, and also to make the waters of certain reaches of dam-controlled streams usable by determining the minimum flows necessary to flush out harmful pollution from industrial plants, sewage, and other sources. They were used in studies of ground water in relation to contamination of certain
242 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
aquifiers by improperly cased wells, in mixing ground waters of varying chemical qualities, in surface disposal of wastes, and in encroachment of fresh-water aquifiers by oil-field brines and ocean water.
In 1952 the Division received 1,700 requests for specific information on pollution of water.
Interstate and International Allocations of Water Resources
Because the data collected by the Division are more comprehensive than any other, and because they are unbiased, they are considered prima facie evidence in courts of law, and they are the basis for the division of water among States having interstate compacts. Eleven compacts are now in force and two providing for division of the waters of the Yellowstone River (Montana and Wyoming) and the Bear River (Idaho, Utah, and Wyoming) are being negotiated.
International problems relating to water are increasing. In 1952 several special investigations of water resources were made for presentation to the International Joint Commission, United States and Canada, relating to the Columbia River basin, the Waterton and Belly Rivers in Montana, the Souris and Red Rivers in North Dakota and Minnesota, and the St. John River in Maine. International studies of the St. John are especially timely because of rapidly rising needs for power in the region.
Using funds transferred by the Department of State, the Division is continuing the investigations needed for the division and control of waters in the St. Mary and Milk Rivers, for the determination of the effects of operations in the Kootenai and Columbia River basins, and to provide data for further studies in other international waters.
The Geological Survey, through another agreement with the Department of State, has continuing obligations for obtaining waterresources information along the Mexican boundary, as required by the treaty of 1944.
In 1952 the Division received 200 requests for specific information relative to interstate and international allocations, and 200 requests relative to domestic litigation.
Soil and Moisture Conservation
To protect the nationally owned lands of the West that are under the custody of the Department of the Interior and to maintain these lands at a high level of productivity, the Division continued a program of consulting, exploration, and research in relation to the soil and moisture conservation program of the Interior Department. In 1952 new sources of water were discovered and much additional arid and
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 243
semiarid land was put to better use. The Division, in collaboration with other Bureaus of the Department, examined and reported upon critical soil-erosion problems and evaluated methods for conserving soil and moisture. It surveyed many reservoirs to determine the rate at which they were being filled with sediment and the amount of erosion taking place upstream.
Missouri River Basin
Investigation of the water resources of the Missouri River basin for the Bureau of Reclamation and the Corps of Engineers was curtailed, because of a 30 percent reduction in funds from those allocated for 1951. The Division’s work included: Measurements at 290 streamgaging stations; 53 studies related to ground-water supplies or to changes in ground-water conditions that may result from reservoir construction or irrigation in the vicinity of reclamation units; more than 50,000 measurements of the sediment content of surface waters; 10,000 analyses of the chemical quality of waters at 54 stations; 1,300 chemical analyses of ground waters; and hydrologic and utilization studies related to the proposed plans for development.
Mutual Security Aid
Under the terms of the Mutual Security Act, water-resources projects were continued in Saudi Arabia and India and additional personnel were assigned to the former. An adviser was assigned to the study of 2,000 irrigation wells in the Ganges Plain in India. New groundwater investigations were begun in Iran and Libya, and a surfacewater study was planned for Afghanistan. A discharge integrator was built for Chile.
Nationals of Mexico, Brazil, Canada, India, and other countries received training in ground-water field offices in the United States.
Other Work
The National Military Establishment depends on the data collected by the Water Resources Division for the location, operation, and expansion of the plants that it operates and those leased for operation. In 1952 it made 200 specific requests for water-resources information. Choice of the site near Portsmouth, Ohio, for a new atomic energy plant was determined in part on the basis of routine water-resources studies made over a period of many years.
Five hundred requests for information about drainage problems were answered. Canals draining large swamp areas in east-central
244 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Florida were gaged and their operations studied, and methods were proposed for draining certain water-logged irrigated lands in the West.
Besides undetermined use of water-resources records in studies of land use or treatment, the Division received 300 specific requests for this type of data. Because knowledge of the effects of land use on headwater drainage, streamflow, sediment discharge, and ground water is inadequate, many water-development projects have been planned and constructed without full realization of the effects on total water resources. Benefits attributed to these developments are often unsupported by technical data, and apparent benefits may be achieved in one area at the expense of areas downstream.
In 1952 the Division undertook an extremely small-scale study of the natural, or “background,” radioactivity of our water resources, and preliminary data were gathered on a few representative water samples. With the increased emphasis that seems sure to be placed on this work, it is expected that the information will have many valuable uses in public and private enterprises because it shows the radioactivity of surface and ground waters in relation to geologic formations, public and industrial water supplies, and agricultural and other uses. The study may lead to the finding of new sources of fissionable material, to important but unforeseen scientific principles, and to information that may be vital to public health in times of peace or war when accidentally or deliberately radioactive materials may be introduced into water bodies.
Among other accomplishments were: Several producing water wells were completed for the Bureau of Indian Affairs on Navajo and Hopi reservations where there was scanty ground water; the geology of the area is so complicated that random drilling was hopeless. In the Trust Territories and other areas of the Pacific, supplies of ground water were located and evaluated at places where ground water was ordinarily considered unavailable. Preliminary consideration was given to the use of data on our water resources for determining rates of flood insurance.
Research and Technical Developments
To keep abreast of the increasing needs for a greater water supply of better quality, the Division is continuously engaged in research and in the development of new techniques and devices to increase the amount and accuracy of its work at a lower cost. At least 18 research and technical development programs were begun or completed in the year.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 245
One of these, a study at Lake Hefner, Okla., to develop basic methods for measuring evaporation from reservoirs, was essentially and successfully completed. The three methods evolved by the Division, in cooperation with the Bureau of Reclamation, the Navy Electronic Laboratory, and the Weather Bureau, now make it possible to determine the amounts and rates of losses from any reservoir, and application is now being made at Lake Mead, the key reservoir in the management of the lower Colorado River. Because the demand for water in the arid part of the West is far greater than the present supply, application of the methods can be made to the design and efficient operation of the many thousands of large and small reservoirs there and elsewhere. Further tests are under way to determine whether the same principles can be applied to the determination of water losses by vegetation.
Studies of the disposal of septic-tank effluent near Paducah, Ky., showed that the effluent could be safely drained into permeable but unsaturated rock units; research is needed on the hydraulics of such operations. Work at El Paso, Tex., showed the possibility of artificially charging the aquifers there through wells.
Investigations at Huntsville, Ala., showed that the occurrence of ground water is controlled by the structure of limestone strata in a way not previously observed. This discovery is of potential importance in finding and evaluating the supply of ground water in limestone in other areas.
Plans were made to study the effect of movements of ground water on the accumulation of oil and gas, as suggested by a geologist in private employment. This might lead to the location of new petroleum resources in areas now considered barren.
The Division is continuing its studies of the way in which sediment originates, enters the stream channel, is moved along, and is finally deposited. Included also are the problems of scour and fill. In cooperation with the Bureau of Reclamation, the study of the amount of sediment transported as bed load, rather than suspended load, was continued at several sites in the Missouri River basin.
The recharge, flow, and discharge of ground water in certain aquifers present problems that can now be solved only with difficulty or not at all. Consequently, a study is being made of numerical methods, and of the possibility of using electronic computing machines instead of tedious calculations, to measure areal ground-water recharge, flow, and discharge. This study is an outgrowth of an investigation at Eagle Lake, Ind., to determine the effect of proposed drainage ditches on regional lake and water-table levels and ground-water recharge.
To compensate in part for the scarcity of experienced hydrologists
246 ☆ annual report of the secretary of the interior
and geologists, the Ground Water Branch organized a series of groundwater short courses and issued the first of several Ground Water Notes embodying results of past and current hydrologic research not heretofore available to newer personnel.
Several technical devices or techniques to conserve labor and costs were developed or were in the process of development. The use of electronic machines to compute stream-discharge records was investigated and appears favorable, but further investigation is needed. The use of reflected sound waves to determine the nature of the foundation at the site of a potential major engineering structure in Maine and to determine, the thickness and character of bottom sediments in another area proved valuable.
Research was continued on the use of electric logs of wells to determine, not only the mineral content, but the approximate concentrations of different ions in the waters of the different aquifers. A technique was devised for introducing measured volumes of water into wells to provide quantitative data on the value of the wells as indicators of water levels in aquifers and on the productivity of their aquifers. The use of an electronic tube to determine the verticality of wells was being tested. If successful, it will be much less expensive than present well-surveying methods. An electrically operated water-stage recorder was developed for use in wells too small or too deep for standard floats. It will make possible the collection of continuous water-level data at less cost than before. Eight-day recording gages have been converted for 30-day operation by means of an inexpensive battery-operated clock escapement; considerable economy in recorder cost and observers’ visits will result. Continuous water-temperature recorders are being installed at gaging stations to provide temperature data for ready consultation by industry.
Improved analytical and instrumental techniques for analyzing water were emphasized in 1952. The slower gravimetric and volumetric methods of making analyses are giving way to the fuller utilization of electronic laboratory equipment like the spectrophotometer, flame photometer, and potentiometer.
Reports on Investigations
The optimum development and use of our water resources is facilitated by the publications of the Division. The availability of these records and interpretations of them is made known through public announcements issued to the press and to individuals who request the information. Stream-flow and ground water conditions in the United States and Canada were summarized monthly and semiannually in the publication, Water Resources Review.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 247
In 1952 the Division published 34 water-supply papers, including the annual “Surface water supply of the United States,” ‘ Quality of surface waters in the United States,” and “Water levels and artesian pressure in observation wells in the United States”; and 22 circulars. Eighty-three manuscripts were transmitted to technical journals for publication, 47 were transmitted to State agencies with whom cooperative work was done, 48 to other Federal agencies, and 49 reports were completed and placed on open file in one or more Geological Survey offices in the area described.
Compilation and condensation into one volume for each area was begun of all surface-water records prior to 1950. This is being done to increase their degree of accuracy and completeness by incorporating revisions, and to facilitate their use. At present a single inquiry for information may lead the searcher into as many as 50 separate volumes.
CONSERVATION DIVISION
The Conservation Division classifies the Federal lands as to mineral and water resources and supervises mineral-recovery operations under leases, permits, and licenses on Federal, Indian, and naval petroleum, reserve lands. A small headquarters staff and a field staff of competent geologists and engineers are maintained. This force makes field surveys, prepares maps and reports dealing with water power, fuels, minerals, and chemicals essential to the mineral-resource economy of the United States, and conducts on-site supei vision of mining and drilling operations necessary to assure the safe and economical production by private enterprise of coal, oil, gas, and other minerals.
Mineral Classification
All phases of the service rendered by the Mineral Classification Branch were maintained at a markedly accelerated pace throughout fiscal year 1952. In all, some 28,057 cases involving either the outright disposal of Federal lands with no reservation of any mineral, the disposal of such lands with the reservation of one or more specified minerals, or the exercise under the Federal leasing laws of the Government’s right to lease for exploration and production, by private enterprise, one or another minerals substance from lands under its jurisdiction were acted upon during the year. This represents an increase of 65 percent as compared with 1951, and was wholly in phases concerned with the clearance of applications for mineral rights under the leasing laws applicable to public and acquired lands. In addition,
248 ☆ annual report of the secretary of the interior
the Branch prepared and promulgated initial or revised definitions of the known geologic structure of eight producing oil and gas fields containing Federal lands and revoked one such definition; appraised geologically submissions of 182 unit-plan and participating-area proposals; drafted 23 determinations of leasehold relations to the productive limits of oil and gas deposits as found to exist on August 8, 1946; reported for appropriate administrative action the fact and geologic significance of 123 new discoveries of oil or gas made on or affecting Federal-land leaseholds; recommended the competitive sale of oil and gas leases on 30 parcels of public land; appraised geologically 1.173 applications for rights-of-way across public lands; and prepared 58 miscellaneous reports on the mineral potentialities of specified lands for various agencies of the Federal Government and inquiring individuals.
From field offices in Colorado, Wyoming, Montana, California, New Mexico, and Oklahoma, Branch geologists made “demand” or specific investigations which resulted in geologic reports and maps for official use by the Washington staff, by other branches of the Conservation Division, and by other bureaus of the Interior Department concerned with mineral and water-power conservation and administration. The Branch completed reports on the coal resources of Middle Park, Grand County, Colo., of an area near Pinto, Iron County, Utah, and of an area near Douglas City, Trinity County, Calif.; on the geology of dam and tunnel sites in the Thomas Bay area near Petersburg, Alaska, and of the mile 1865 dam site on Rogue River, Jackson County, Oreg.; also maps showing areal geology, structure contours, and oil development in the Gillette-Douglas-Lusk-Newcastle district and the Sussex-Meadow Creek district in the Powder River Basin, Wyo.; and a structure-contour map of the plains area of eastern Colorado.
Water and Power Classification
The field work of the Water and Power Branch during 1952 was directed mainly toward obtaining basic information on the waterpower resources and storage possibilities of Federal lands on which projects were proposed for early development. Work was done in Alaska, New Mexico, and in the Colorado and Columbia River basins. Topographic surveys were made of one reservoir site, eight dam sites, and 41 miles of river channel. Geologic investigations of six dam sites were made. Supervision of construction and operation was given to 134 power projects under license with the Federal Power Commission, to 606 such projects under permit or grant from the Department of the Interior, and to 200 in cooperation with the Bureau of Indian Affairs.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 249
Classification activities resulted in the addition of 84,576 acres to power-site reserves and elimination of 9,868, increasing the outstanding reserves in 23 States and Alaska to a net total of 6,925,770 acres.
Maps published covered 89 miles of stream channel of four rivers in seven dam sites.
Final action involving hydraulic determination was taken on 662 cases received from departmental sources and the Federal Power Commission and on 5,354 cases that also involved mineral classification.
Investigations were in progress on the power and water-storage possibilities of 46 rivers. Three reports on power possibilities of certain streams were completed, as were three reports on nine dam sites. The reports have been made available for public inspection.
Mining Branch
The Mining Branch is responsible for the supervision of operations concerned with the discovery and production of coal, potassium, sodium, phosphate, and oil shale from all public-domain lands; of sulfur on public lands in Louisiana and New Mexico; of silica sand on certain lands in Nevada withdrawn by Executive Order No. 5105; of gold, silver, and mercury on certain Spanish land grants; of all minerals except oil and gas on acquired lands under the act of August 7, 1947, and provisions of section 402 of the President’s Reorganization Plan No. Ill of 1946, and on segregated restricted, and tribal Indian lands. Outstanding mineral leases and permits on acquired and Indian lands include copper, nickel, gold, silver, manganese, uranium, asbestos, limestone, gravel, coal, sand, marble, silica rock, iron, gypsum, vermiculite, pumice, clay, bentonite, phosphates, fluorspar, feldspar, lead, zinc, barite, mica, tungsten, and garnet.
The Branch has the responsibilty of reporting on applications for leases and prospecting permits; recommending lease terms; enforcing regulations and lease terms governing the conduct of prospecting, mining, and beneficiation operations, and the safety and welfare of employees; protecting natural resources and preventing waste; determining royalty liability of lessees and permittees; preparing statements of accounts; and receiving payment of royalties and rentals. The Branch acts in an advisory capacity to the Office of the Secretary and to other bureaus of the Department in handling of leases, permits, and licenses.
As of June 30, 1952, there were under supervision 1,198 properties under leases, permits, and licenses, of which 833 were on the public domain, 82 on acquired lands, and 283 on Indian lands. These concerned lands in 16 States west of the Mississippi River, in 11 Eastern States, and in Alaska. Production from lands under supervision
250 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
during the year is estimated at 16,007,000 tons, valued at $110,030,000, with accrued royalties amounting to $3,761,000, as compared to a production of 19,133,000 tons, valued at $106,735,000, and a royalty of $3,844,000 during the previous fiscal year.
The production of coal from public lands in the United States and Alaska, including the former Choctaw-Chickasaw segregated coal lands in Oklahoma, was about 8,106,000 tons, as compared with 8,946,000 tons mined during the previous fiscal year from the same lands. Increased competition from other fuels and a prolonged strike in the steel industry, with consequent general industrial slowdown, account for the lower production.
Potassium production is estimated at 5,402,000 tons of salts, as compared with actual production of 5,393,000 tons during the fiscal year ended June 30, 1951, and 4,423,000 tons during the fiscal year ended June 30, 1950. One of the new producers in the New Mexico area, the Duval Sulphur & Potash Co., began operations in December 1951 and by May 1952 had reached planned capacity. Two shafts were sunk to the ore horizon and connected underground by the Southwest Potash Co. Southwest’s construction program on June 30 was about 90 percent complete. Production is expected by October 1, 1952. Improvements by other producers include sinking of three new mine shafts and the beginning of a fourth, in addition to expanded refinery facilities to a value in excess of $14,000,000. Eighty-seven core tests, aggregating 100,523 feet of hole, were drilled for potash during the year. As of June 30, there were 194 potash permits in effect.
The principal source of sodium from public lands was from the potassium leases on the Searles Lake brine deposit in California, amounting to 581,962 of the total of 593,736 tons produced from all Federal leases in the Nation. Refined salts produced from these brines include potassium chloride, borax, soda ash, salt cake, bromine, burkite, and sodium lithium phosphate. During the year, operations under 92 sodium-prospecting permits were supervised in the States of California, Nevada, New Mexico, North Dakota, Oregon, Utah, and Wyoming. The Intermountain Chemical Co., now operating on Government and adjoining Union Pacific Railroad lands near Green River, Wyo., is at present constructing a soda-ash refinery at the mine site, costing in excess of $16,000,000.
Phosphate leases on public lands in Arizona, Idaho, Montana, and Wyoming increased from 33 to 37 in the fiscal year. In addition, there are 33 phosphate leases on Indian lands in Idaho and 1 phosphate lease on acquired land in Florida. Phosphate production during 1952 was 663,843 tons, as compared to 479,181 tons in the previous year. Three additional electric furnaces were under construction in Western States as of June 30—one by Westvaco Chlorine Products Corp, at
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 251
Pocatello, Idaho, a second at Soda Springs, Idaho, a third by the Victor Chemical Co. at Silver Bow, Mont. The capacity for the production of elemetal phosphorus in Western States will be doubled during the coming fiscal year. For the first time, elemental phosphorus from western furnaces is available for fertilizer purposes.
Production of lead and zinc concentrates from Quapaw Indian lands in Oklahoma amounted to 55,000 tons, as compared to 53,755 tons produced in 1951. The tonnage of ore mined is greater, but the grade of ore is slightly lower. Substantial tonnage of uraniumvanadium ores was mined from Indian lands in Arizona, New Mexico, and Utah.
Coal, fluorspar, quartzite, sandstone, bentonite, mica, and feldspar accounted for most of the production from acquired lands. A phosphate lease for the development of a colloidal phosphate deposit in Florida and manganese-clay leases involving acquired lands in Tennessee were issued during the year. Wide interest is shown in land valuable for manganese in Virginia, Kentucky, and Tennessee.
Of the total of 87 awards in 1951 for achievement in safety of mine operations by the Joseph A. Holmes Safety Association to coal mines in the United States, 13 were made to mines west of the Mississippi, and of these 5 were made to coal mines operating on public-domain lands. One of six awards in the industrial minerals group was received by a potassium lessee. The Sentinels of Safety award for bituminous coal mines has been made to one lessee for the thirteenth year in the 19 years it has been in competition. Only one such award is made to an industrial group each year. These recognitions for safety achievements attest the cooperation of mine management and employees in the conduct of mine operations on Government lands.
Oil and Gas Leasing Branch
The Oil and Gas Leasing Branch supervises operations for the discovery, development, and production of crude oil, natural gas, and products extracted from natural gas on public, acquired, and Indian lands. These duties were carried out during the year by means of 5 regional offices and 20 district offices at 18 separate locations in California, Colorado, Montana, New Mexico, Oklahoma, Utah, Wyoming, and Washington, D. C.
On the public lands, 63,164 oil and gas properties were under supervision at the end of the fiscal year, aggregating 48,562,880 acres in 23 States and Alaska, an increase of 62.3 percent in the number of properties and 63.1 percent in the acreage under supervision at the close of the previous fiscal year.
226396—53—17
252 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Drilling on public lands during the year included the spudding of 1,128 wells and the completion of 1,034 wells, of which 668 were productive of oil and gas and 366 were barren. In all, 16,884 wells, including 9,662 capable of oil and gas production, were under supervision on June 30, 1952. The production from petroleum deposits on the public lands in 1952 was appreciably greater than in 1951. Production from the public lands in fiscal year 1952 was about 91,973,000 barrels of petroleum, 158,130,000,000 cubic feet of natural gas, and 178,014,000 gallons of gasoline and butane, with royalty returns to the United States of about $27,378,000.
There were 1,362 acquired land leases, embracing 1,244,766 acres in 26 States under supervision at the close of the fiscal year. Drilling on acquired lands during the year included the spudding of 94 wells and the completion of 86 wells, 66 of which were productive of oil or gas and 20 of which were barren. In all, 275 acquired-land wells, including 207 capable of oil or gas production, were under supervision on June 30, 1952. The production from acquired lands in fiscal year 1952 was about 4,047,000 barrels of petroleum, 5,482,370,000 cubic feet of natural gas, and 3,300,000 gallons of gasoline and butane, with royalty returns of about $1,427,000.
The Branch supervised operations on 7,737 leaseholds on Indian lands in 16 States, which contained at the end of the year a total of 8,696 wells, 4,172 of which were productive of oil or gas and 270 of which had been completed in the year. The total revenue from royalties, rentals, and bonuses amounted to $15,403,900.
On behalf of the Department of the Navy, supervision was continued ox er the production of oil, gas, gasoline, and butane from 17 properties under lease in Naval Petroleum Reserve No. 2 in California. Production from 262 active wells in this reserve totaled 2,304.000 barrels of petroleum, 1,147,000,000 cubic feet of natural gas, and 8,185,000 gallons of natural gasoline and butane, with an aggregate royaltv value of $816,550.
On Department of the Army lands in the Rio Vista gas field, the woik included the consideration of revisions to the compensatory loyalty agreements, approval of a number of revisions in participating percentages for these lands, and the computation of royalties due the United States. The gas production allocated to the lands was 3,559 -000,000 cubic feet, with a royalty value of $416,263.
Activities toward unitization of oil and gas operations involving Federal land were reflected in the approval of 68 new unit plans during the year and the termination of 19 previously approved unit plans, leaving 227 approved plans, covering 3,606,825 acres, outstanding on June 30,1952. About 49.23 percent of the petroleum obtained from public lands during the year was produced under approved unit agree
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 253
ments, 37.29 percent of the natural gas, and 66.16 percent of the gasoline and butane. In addition, 6 Indian-land unit agreements covering 51,254 acres were approved in the year, making a total of 14 such approved plans covering 87,320 acres outstanding on June 30, 1952. Also, 43 drilling-unit agreements were approved during the year, making a total of 176 approved as of June 30, 1952; these agreements involve isolated small tracts, which are consolidated to form a logical drilling unit and, in effect, constitute an agreement similar to a unit agreement, though involving only a small segmet of a single field or pool.
WORK ON PUBLICATIONS
Texts
During the year 174 new manuscripts were received by the Section of Texts, 174 manuscripts were sent to the printer, and 158 publications were delivered by the printer. Work on these included 15,050 pages of manuscript edited and prepared for printing; 1,949 galley proofs and 7,064 page proofs revised and returned; indexes prepared for 41 publications, covering 2,075 pages and consisting of 6,279 entries. Copy edited in preparation for mimeographing included 83 pages of miscellaneous material.
Reports delivered were as follows: Professional Papers 142-1, 221-E, 221-F, 221-G, 221-H, 222, 223, and 229; Bulletins 955-D, 955-E, 955-F, 962-B, 962-D, 963-B, 963-C, 963-D, 964-D, 964-E, 965-B 969-A, 969-B, 969-C, 969-D, 969-E, 973-A, 974-A, 974-B, 974-C, 976-B, 976-C, 976-D, 977, 978-A, and 981-A; Water-Supply Papers 1050, 1068. 1072, 1081, 1085 1092 1093, 1095, 1096, 1097, 1098, 1100, 1101, 1104, 1112, 1113, 1114, 1115, 1116, 1117, 1118, 1119, 1120, 1121, 1122, 1124, 1127, and 1149; Circulars 40, 67, 75, 76, 77, 78, 79, 80, 81, 82, 83, 84, 85, 86, 89, 90, 91, 92, 94, 95, 97, 98, 99, 100, 101, 102, 103,104,105,108,110, 111, 112,113,114,115,121, and 123; Topographic Instructions, chapters 2A1,2D1,2D2,4D5, and 6A3; and miscellaneous reports. These reports cover a wide range of subject matter—general geology of particular areas; mining districts, and local mineral deposits in the United States, Alaska, Brazil, Hawaii, Mexico, and Palau Island; studies of fossils and the rocks in which they are found; a collection of papers on geochemical research; geophysical abstracts, a quarterly serial; measurements of stream-flow and of water level and artesian pressure in wells; general studies of ground water and of the occurrence of floods, with consideration of the influence of geology and physiography.
In order to keep the public informed, 12 lists of new publications were issued. Also printed during the year were 29 State index cir
254 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
culars; 34 pamphlets to accompany index circulars; and the Second Supplement to Publications of the Geological Survey, 1948. Copy for the third supplement was prepared.
Illustrations
Of a total of 38 reports on hand at the beginning of the fiscal year, 21 were in various stages of completion. Fifty-two reports were received during the year. Thirty-one reports were completed and transmitted for publication and 1 was withdrawn, leaving a total of 58 reports on hand, 41 of which were in various stages of completion. Those transmitted included 14 professional papers, 10 bulletins, and 7 water-supply papers, which contained 1,747 completed drawings and photographs. Illustrations were prepared for 46 circulars. In addition, a large number of miscellaneous pieces of drafting were completed, including 14 geologic quadrangle maps, and 10 geologic sections in cooperation with the State of Tennessee.
Map Reproduction
In the fiscal year, 14 newly engraved topographic maps, 767 multicolor topographic maps, 9 river survey maps, 5 planimetric maps, 5 geologic index maps, 18 topographic index maps, 64 geologic preliminary maps, and 15 special maps were printed, making a total of 897 new maps printed and delivered. Reprint editions of 112 engraved topographic maps, 41 multicolor maps, and 59 photolithographed State, geologic, planimetric, preliminary, and other maps were printed and delivered. Of new and reprinted maps, 1,109 different editions, amounting to 2,622,529 copies, were delivered.
Work was done for 39 units of the Government, including branches of the Geological Survey, and for the States. Charges for this work amounted to $837,044.14, for which the Geological Survey appropriation was reimbursed.
Transfer impressions and velox impressions numbering 535 were made during the year.
Including topographic maps and contract and miscellaneous work of all kinds, 2,840,708 copies were printed and delivered.
The photographic laboratory made 7,133 photolithographic negatives, 2,246 photographic negatives, 11,092 prints, and 611 lantern slides; developed 34 film packs and 84 rolls of film; and developed and printed 23,050 feet of aerial film. The Photo-Process Section made 5,953 photolith press plates. The Hand Transfer Section made 592 printing plates.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 255
Distribution
In the fiscal year 1,275 publications were received. These comprise 134 new book reports and pamphlets, and 12 reprints; 14 oil- and gas-investigations maps and charts, 2 coal-investigations maps, 32 geophysical-investigations maps, and 59 other geologic maps; 10 river surveys; 811 new topographic and other maps and indexes; and 201 reprinted maps.
The total units received numbered 224,228 books and pamphlets, 44,500 copies of revised index maps, and 2,717,789 topographic and other maps, making a grand total of 2,986,517.
Units distributed included 79,560 books and pamphlets, 583 geologic folios, and 1,616,594 maps, 73,679 topographic indexes—a grand total of 1,770,416, of which 569 folios and 1,017,081 maps were sold. Distribution of maps and folios was divided among Survey offices as follows:
Washington---------------------------------------------------------- 1, 035, 889
Denver-------------------’------------------------------------------ 572,112
Other Held offices__________________________________________________ 8,593
Total_____________j__________________________________________1,610,594
The net proceeds from sales of maps and folios amounted to $244,847.27. Money received from the offices is as follows:
Washington________________________________________________________$171, 550. 78
Denver------------------------------------------------------------- 69, 917..94
Other field offices_________________________________________________ 3, 378. 55
Total________________________________________________ 244, 847. 27
In addition, $25,622.04 was repaid by other Government agencies for maps or folios furnished. The total net receipts for maps and folios, therefore, amounted to $270,469.31, an increase of $86,974.02 above fiscal year 1951.
Local Washington over-the-counter sale of maps amounted to $10,880.43, an increase of $4,756.71 above last year. A total of 65,728 letters were handled.
The following table shows the publications on hand July 1, 1951, those received and distributed during the year, and the totals on hand June 30, 1952:
On hand July 1,1951 Received Distributed On hand June 30, 1952
Geologic folios. . ... 12,031 583 11,448
Maps and indexes... ... . . 21,595,982 2, 762, 289 1,690,273 22, 667, 998
Boo*ks and pamphlets 402; 094 ' 224, 228 79,560 ' 546', 762
Total 22,010,107 2, 986,517 1, 770, 416 23, 226,208
256 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
FUNDS
During the fiscal year 1952 obligations were incurred under the direction of the Geological Survey totaling $48,050,356. Of this amount 46 percent was appropriated directly to the Geological Survey, 43 percent was made available by other Federal agencies, and 11 percent by States and their political subdivisions.
Obligations incurred by the Geological Survey in fiscal year 1952 (by source of funds)
Topographic surveys and mapping:
Geological Survey appropriation_____________________________$8, 386, 291
States, counties, and municipalities________________________ 1, 782, 607
Department of the Interior : Bureau of Reclamation__________ 2, 221,104
Department of Defense:
Department of the Air Force___________________ _________ 811,037
Department of the Army_______________________________ . 4, 772, 358
Miscellaneous Federal agencies______________________________ 479, 992
Sale to the public of aerial photographs and photographic copies
of records________________________________________________ 31, 682
Total------------------- ------------------...------------- 18,485,071
Geologic and mineral resource surveys and mapping:
Geological Survey appropriation____________________________ 5, 763, 026
States, counties, and municipalities_______________________ 212, 383
Department of the Interior:
Bureau of Indian Affairs_______________•_______________ 4, 908
Bureau of Mines________________________________________ 6, 876
Bureau of Reclamation__________________________________ 376, 434
Defense Minerals Exploration Administration____________ 269, 716
Petroleum Administration for Defense___________________ 39, 823
Department of Defense:
Department of the Air Force____’_______________________ 31,374
Department of the Army_________________________________ 994, 339
Department of the Navy_________________________________ 454, 002
Department of State________________________________________ 483, 604
Atomic Energy Commission___________________________________ 5, 799, 359
Defense Materials Procurement Agency—. ____________________ 89, 047
Mutual Security Administration_____________________________ 240, 729
Miscellaneous Federal agencies_____________________________ 35,065
Total------------------------------------------------------- 14, 800, 679
Water resources investigations:
Geological Survey appropriation_______________________________ 5, 846, 848
States, counties, and municipalities__________________________ 3, 285,150
Department of the Interior :
Bonneville Power Administration___________________________ 17, 918
Bureau of Indian Affairs__________________________________ 112, 378
Bureau of Reclamation_____________________________________ 1, 269, 384
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 257
Water resources investigations-—Continued
Department of Defense:
Department of the Air Force__________________________ $28, 002
Department of the Army_______________________________ 871, 374
Department of the Navy_______________________________ 79, 880
Department of State______________________________________ 131, 375
Atomic Energy Commission_________________________________ 280,132
Tennessee Valley Authority_______________________________ 91, 658
Miscellaneous Federal agencies___________________________ 360, 266
Permittees and licensees of the Federal Power Commission_ 67,146
Total______________________________________________________12,441,511
Soil and moisture conservation : Geological Survey appropriation___ 43, 700
Classification of lands:
Geological Survey appropriation_________________________________ 358, 612
Miscellaneous Federal agencies__________________________________ 537
Total______________________________________________________ 359,149
Supervision of mining and oil and gas leases :
Geological Survey appropriation______________________________ 925, 583
States, counties, and municipalities_________________________ 12, 111
Department of Defense : Department of the Navy_______________ 30. 874
Miscellaneous Federal agencies_______________________________ 4, 064
Total_______________________________________________________ 972, 632
General administration:
Geological Survey appropriations_________________________ 540, 409
Department of the Interior : Bureau of Reclamation_______ 83, 620
Department of Defense:
Department of the Air Force__________________________ 19, 400
Department of the Army_______________________________ 179, 758
Department of the Navy_______________________________ 13, 912
Department of State________________________________________ 13,599
Atomic Energy Commission_________________________________ 80, 665
Miscellaneous Federal agencies___________________________ 16,251
Total- ___________________________________________________ 947,614
Summary:
Geological Survey appropriation_________ ___________________ 21,864,469
State, counties, and municipalities_________ ________________ 5, 292, 251
Other Federal agencies______________________________________ 20, 794, 808
Permittees and licensees of the Federal Power Commission____ 67,146
Sale to the public of aerial photographs and photographic copies of records__________________________________________________ 31, 682
Grand total________________________________________ 48, 050, 356
■
■
■
OIL AND GAS DIVISION
Hugh A. Stewart, Acting Director
Some functions of the Oil and Gas Division, particularly those concerned with petroleum defense mobilization, had been transferred to the Petroleum Administration for Defense during the previous fiscal year. Many of the normal long-range peacetime functions, including the following, were continued.
The Division represented the Department in all matters affecting export policy and export control on Department of Commerce committees and task groups dealing with such matters, and by close working relationships with other agencies within the Department were able to bring to the Department of Commerce committees, Interior’s views on those matters with which the Department is properly concerned.
The Oil and Gas Division served as consultant on oil and gas to the Department’s Division of International Activities and assisted in representing the Department on the Interdepartmental Committee on Trade Agreements under the auspices of the Department of State. It also participated in the activities of the Department of State country committees and took part in renegotiation of trade agreements with Venezuela and Argentina.
The Division represented the Department at the quarterly meetings of the Interstate Oil Compact Commission. It maintained liaison directly with State regulatory bodies and also through the Federal Petroleum Board, which administers the Connally “Hot Oil” Act, under supervision of the Division.
During the year the services of the National Petroleum Council were used not only by the Oil and Gas Division, but also by the Bureau of Mines and the Petroleum Administration for Defense. Fourteen technical studies were made.
On January 7, 1952, by Amendment No. 1 to Order No. 2562, the functions of the Military Petroleum Advisory Board were transferred
259
260 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
to the Petroleum Administration for Defense. This order preserved the Board as a stand-by ready to be brought into action in the future.
Conservation of petroleum within the United States was one of two principal ends which Congress had in view when it passed the Connally “Hot Oil” Act in 1935. The other objective was to protect interstate and foreign commerce from the diversion and obstruction of, and the burden and harmful effect upon, such commerce caused by the production of oil in excess of amounts fixed under State law. When the act was passed, the latter objective was first in importance. Significant changes and developments have tended to reverse this order.
The simple and direct force of the act is exerted by banning from interstate and foreign commerce crude oil and its products produced in excess of the amounts permitted to be produced under the laws, rules, and regulations of a State. It is administered by the Federal Petroleum Board, under the supervision of the Oil and Gas Division.
The Board, with headquarters at Kilgore, Tex., consists of a chairman, member, and alternate member, and operates through a staff of approximately 25 persons, 14 of whom are examiners, the others clerical and accounting personnel. Regional offices are located at Midland, Tex., where the alternate member is in charge, at Houston, Tex., and Lafayette, La.
While the act is applicable wherever State laws limit the rate of production and prescribe conditions for producing and handling of oil, its chief application lies in the States of Texas, Louisiana, and New Mexico, where regulations prescribed under the act are actively enforced. So far as possible with the resources at its command, the Board enforces the provisions of the act in other oil-producing States, particularly in Mississippi, Oklahoma, Arkansas, and Kansas.
The primary aim of the Board is to secure the widest possible voluntary compliance with the provisions of the act. Sanctions for violations are judicially applied only where violations are determined to be of a substantial character, knowingly done or caused. Investigations are constantly in progress throughout the areas where experience demonstrates violations occur most frequently, and they serve the dual purpose of deterring many from disregarding the law and of bringing to justice those guilty of the more serious offenses against it. For the same purpose and with like effect, producers, transporters, refiners, and others handling oil and products in the designated area are required to keep prescribed operating records and file monthly reports with the Board on approved forms.
Cooperation between the Board, the petroleum industry, and State conservation agencies operating in the various oil-producing States, always of prime importance in achieving the purposes of the act,
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 261
continues with mutually beneficial results. In order that the burden upon the industry may be kept at a minimum, the regulations prescribed under the act limit the requirements for the keeping of daily operating records and the filing of reports to only those areas, denned and known as the designated area, where experience shows infractions of the law occur most frequently, either because of wide differential between potential and permitted production, or the presence of some other factor or factors tending in that direction. Presently, the designated area consists of 106 counties in the State of Texas, the counties of Lea and Eddy in the State of New Mexico, and the entire State of Louisiana.
From this designated area the Board receives and processes, each month, approximately 5,700 monthly producers reports, about 600 monthly pipeline reports, and slightly less than 100 refiners and processors reports. These reports cover operations in nearly 1,400 separate oil fields and account for more than 38 percent of the entire domestic production of crude oil, or approximately 2,384,408 .barrels daily—some 74,000,000 barrels monthly.
At the beginning of the fiscal period, 17 cases dealing with violations of the act were pending, 5 in an investigative status, 3 pending review by the Board, one awaiting administrative action by the Oil and Gas Division, one under review by the Department of Justice in Washington, 5 pending disposition by the United States attorneys, and 2 pending in the Federal courts.
Notwithstanding the reduction of the investigating staff from 14 to 10 examiners during the year, due to reduction in appropriations, formal investigations were initiated in 10 new cases, making a total of 27 cases receiving consideration during the period, 14 of which were closed before the close of the year, one by grand jury no bill, three administratively without prosecution, and 10 by successful prosecution. Fines assessed aggregrated $38,930, comparing with $33,000 for the year 1951 and $52,950 for the year 1950. Prosecution by local authorities in Mississippi based upon evidence supplied by the Board also resulted in fines of $6,000.
DIVISION OF LAND UTILIZATION
Lee Muck, Director
This is the first full year under the instructions issued by the Secretary in order No. 2600 whereby the Division would provide “* * * technical staff assistance for the Assistant Secretary for Public Land Management on land use and community services management and in the development and coordination of programs in these areas.” In accordance with this order the program of the Division has expanded along three major categories, namely: staff services, operational programs, and long-range programing.
STAFF SERVICES
The staff services rendered by the Division do not lend themselves to either qualitative or quantitative analysis. Essentially these staff services are those of review of proposed actions to insure accuracy, coordination, and compliance with departmental policy. Included as an important segment of staff services is the technical review in a consulting and advisory capacity of all matters of concern to the Assistant Secretary for Public Land Management. Some of the diverse matters to which attention was given by the Division during the year include a revised freight tariff structure for The Alaska Railroad, the concessions policy for the national parks and monuments, and the proposed encroachment by commercial interests at certain national wildlife refuges.
Also as a part of its staff service function has been representation on numerous interdepartmental committees. The Division has been represented on the staff of the Subcommittee on Benefits and Costs of the Federal Inter-Agency River Basin Committee when further consideration was given to the evaluation of water resource development projects. It has been represented on working groups on the President’s Water Resources Policy Commission report and the Missouri
263
264 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Basin Survey Commission. It lias also been represented on the Forest Products Committee of the Munitions Board, the Lumber Committee of the Federal Specifications Board, and the Forest Products Requirements Committee of the National Production Authority.
OPERATIONAL PROGRAMS
The Division continued to supervise four programs: Soil and Moisture Conservation operation, White Pine Blister Rust Control, Forest Pest Control, and Noxious Weed Control.
Soil and Moisture Conservation
The prime objective of the soil and moisture conservation program is to restore and maintain the productive capacity of the 133,000,000 acres of public and Indian land seriously damaged by erosion and misuse. This critical area amounts to 47 percent of the lands in the United States under the jurisdiction of the Department on which production has been seriously impaired.
Repeatedly since 1940 this Division has reported these conditions and pleaded for a more comprehensive and intensive program of rehabilitation. Land for which the Department is responsible is still being seriously damaged. A program adequate to reverse this trend and restore all damaged land to maximum production is imperative.
Departmental lands constitute nearly 15 percent of the surface area of the United States and about 35 percent of the 11 far western States. Their impact upon the agricultural and forestry economy of the country can be tremendous. In their present condition it is believed that the range and farm lands are producing at not more than half their capacity.
The soil and moisture conservation program is responsible for the application of the measures required to build up and protect the soil and increase its production. In order to rebuild and maintain the soil entrusted to the care of this Department and arrest further depletion the soil conservation program needs to be accelerated immediately. The time schedule for the restoration of the most seriously depleted lands should be set for not more than 20 years but the current program is proceeding at a pace that will require 60 or more years.
The Secretary’s Annual Report for the fiscal year 1941 set forth the policy ......... that the most efficient and enduring type of con-
servation can be attained only when adequate and effective erosion-control treatments are placed where needed on a watershed basis.” In the past 6 years flood control and other major river-basin programs have been accelerated to a marked degree. Meanwhile, the soil conser
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 265
vation program which operates in the minor drainage areas and is an essential adjunct to other water development programs has not progressed in proper proportion to them. Better coordination and integration of the land and water programs of the Department are needed to bring these programs into proper balance.
Noxious Weed Control
In the annual report for 1951, this Division reported the curtailment of production and effective use on over 25,000,000 acres of public and Indian lands by reason of the encroachment by weeds and brush. In the fiscal year 1952, Congress appropriated for the first time $2,300,000 for the control of halogeton, a poisonous weed which has forced livestock to abandon many acres of western range lands. There is indication that this weed which is spreading and becoming more intensi fled in the infested areas will cause even greater damage and be costly to control. Meanwhile, it has been impossible to finance the control of numerous other noxious plants such as Klamath weed and white top which continue to be serious pests.
White Pine Blister Rust Control
The objective of the white pine blister rust control program is to protect the valuable white pine stands from the ravages of the white pine blister rust—a fungus disease of foreign origin. This is accomplished b.y the eradication of Kibes (currant and gooseberry bushes), the alternate host of the disease.
Progress on this control activity during the year was very satisfactory. During the year 57,046 acres were covered by the three bureaus concerned and 2,519,222 ribes were destroyed. As of December 31, 1951, only 86,000 acres of the control area of over 550,000 acres remained to be worked for the first time.
Forest Pest Control
This program, which operates as a segment of the coordinated Nation-wide program for the control of forest pests on all forest lands, continued during the year. The most important diseases on which action was taken during the year were the dwarf mistletoe infection at Grand Canyon National Park, Ariz., and oak wilt at Effigy Mound National Monument, Iowa. In the insect control field relatively large control operations were undertaken against the mountain and western pine beetles in the national parks in California, as well as against the Black Hills beetle at Zion and Bryce Canyon National Parks, the
266 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR walkingstick infestation at the Menominee Indian Reservation, and the Douglas fir beetle in the O and C forests in western Oregon.
LONG RANGE PROGRAMING
The bureaus concerned with reforestation work reported only 796 acres planted with trees during the fiscal year. As there are over 900,000 acres of denuded and unsatisfactorily stocked forest lands under the jurisdiction of the Department, the lack of any real progress in this important segment of the forest conservation program is very disturbing. It will be necessary to reemphasize the need to maintain all forest lands in a productive state.
During the calendar year 1951, 500,224 acres of federally owned or managed lands were burned as a result of 2,025 fires. This acreage loss is considerably below the average annual loss of 1,280,863 acres during the past 9 years. Furthermore, the number of fires is considerably below the 9-year average of 2,686. This is indicative that the fire-prevention efforts of the bureaus concerned with forest and range-fire control are beginning to show results. Moreover, the number of man-caused fires has been reduced from a high of 2,259 in 1943 to 1,569 in 1951. However, losses are still too great and there are too many man-caused fires. The fire-control efforts of all bureaus should be increased.
Considerable attention has been given during the year to the protection and management of the forest resources of Alaska. Recommendations were made to provide for the establishment of a forest pest detection and survey station in the Territory. The Congress concurred in this recommendation by providing for such a station in the fiscal year 1953 appropriation for forest pest control.
Values of stumpage continued to rise very gradually during the year. Operating within the principle to manage all commercial forests on a sustained yield basis, the Department records show that for the entire year its forests produced 1,272,772 thousand board feet of timber valued at $18,431,724.
One of the major coordination tasks of the Division in the field of resources development has been the resolution of conflicting claims for the use of water resources, usually between irrigation and power generation on the one hand and fisheries, wildlife, recreation, and preservation of scenic values on the other. Basin development plans of the Bureau of Reclamation which have been before the Department during the year in which such conflicts are involved include the Colorado River storage project and the Rogue River Basin project, a portion of the Klamath Basin project, and several small projects in which proposed reclamation works would affect national parks, monuments, wildlife refuges, or national forest wilderness areas.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 267
In addition, the Division has participated in routine departmental review of various agency reports proposing land and water resource development projects. During the year this work involved review and comment on eight proposed projects by the Corps of Engineers, six proposed projects by the Department of Agriculture, and six project proposals by the Bureau of Reclamation.
Liaison with and service for the Departmental Advisory Committee on Conservation has been continued. The committee held two meetings during the fiscal year at which recommendations were presented to the Secretary of the Interior on various phases of nature protection.
226396—53----18
BUREAU OF LAND MANAGEMENT
Marion Clawson, Director
INTRODUCTION
Increased emphasis on the development and use of the public lands to insure future supplies of needed materials for national growth and strength was evident in all existing and proposed programs of the Bureau of Land Management during the past year. In the fields of forestry, lands, range management, engineering and minerals, the Bureau moved into new phases of program planning as shown in its summary statement on resources and prograihs prepared at the year’s end.
A. The Resources
1. Federally owned land and resources, under administration of BLM, are highly important in the economy of the West.
2. The demand for these resources has grown greatly in recent years and is sure to grow much more in the next few years.
3. Multiple use of these lands, on a sustained-yield basis for renewable resources and on a conservation basis for nonrenewable resources, or the use of the same tract at the same time for several purposes, is highly desirable and should be facilitated.
4. These resources should be protected against destruction and waste, should be developed to the extent necessary to obtain their beneficial use, and should be made readily available for use by the public. To the maximum extent practical, development and use into productive enterprises should be by private initiative and capital.
5. The problems of use of Federal land resources, under the Bureau administration are complex, particularly in relation to other Federal and private uses. All available assistance and technical advice from other Federal agencies and from elsewhere should be used in obtaining
269
270 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
full basic data for disposition or administration of the federally owned resources.
6. The full productive capacity of the federally owned resources has not yet been developed, but it is highly desirable to develop every acre to the economic limit and prevent loss of existing values by erosion and noxious plants.
7. Substantial further investment of Federal funds is necessary to repair damages resulting from past neglect if federally owned resources are to be developed to their maximum economic limit as part of the development of the area, and even though most development into productive enterprises is made by private initiative and capital.
8. Additional amounts are needed annually for administration in order to make federally owned resources fully available for use and development by private effort.
B. The Programs
1. The Bureau should continue to seek maximum efficiency—maximum output at lowest cost—in its day-to-day operations.
2. The Bureau should decentralize its operations as far as practical, both to aid in achievement of efficient operation and to make the natural resources more readily available for maximum public service.
3. The sound principle of area administration should be extended as rapidly as possible, both in the interests of economy and as a means of promoting maximum multiple-purpose use of resources.
4. BLM should seek the fullest development for the public good of the resources it administers, consistent with sound conservation practices. It should seek to increase the productivity of those resources on a sustained-yield basis, so as to provide for their maximum and continued use by authorized users.
5. In furtherance of the Bureau of Land Management’s broad objectives of conservation, increased productivity, maximum utilization, selective disposal, this agency should seek best possible advice and assistance from other qualified Federal, State, and local agencies and institutions both public and private. To the fullest extent possible this advice should include duly authorized or elected representatives of the individual users—such as the district advisory boards.
6. The Bureau should analyze carefully and fully its costs of operation, its sources and amounts of revenue, and distribution of that revenue, so that the general public interest is fully protected.
7. The Bureau should seek, through regularly established channels, appropriations sufficient to attain the objectives previously outlined.
8. The Bureau should seek, through regularly established channels, any legislation needed for attainment of these broad objectives. An
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 271
analysis of the accomplishments of the Bureau of Land Management during the past year reveals that in each operating unit, including administration and the office of the chief counsel, which serve as balance wheels for the organization, the Bureau made substantial progress. On the financial scoreboard—$64,518,396.02 of revenues was recorded compared with expenditures of $12,264,564.95.
Although BLM’s work primarily concerns public lands in the United States and Alaska, its specialists, on request, provide guidance in related international activities. A report on this subject is included for the fiscal year.
FOREST RESOURCES ON BUREAU OF LAND MANAGEMENT LANDS
Until recently the extent and the importance of the forest resources on lands administered by the Bureau of Land Management have not generally been known or recognized due to a lack of any timber inventory and the relative inaccessibility of forest areas. The growing significance of these forest lands is largely due to drastic changes in the economy and development of the country which have taken place in recent years. In the past, timber on most of these lands was considered to have little or no economic value. During and since World War II, better means of transportation, and migration of industry because of growing scarcity of timber in more accessible areas, have combined to create a market demand for much of this timber, and at good prices. In view of technological developments, during the past few years, it is expected that the demand will greatly increase.
A large volume of wood suitable for pulp and paper, lumber and other forest products occurs on the forest and woodland areas of the public lands. The best available estimates for the commercial forest and woodlands under jurisdiction of the Bureau of Land Management in the United States and Alaska show 259 billion board feet of sawtimber on 46i/2 million acres of commercial forest on public domain and O. and C. lands and 250 billion board feet on 111 million acres of woodland. The sawtimber on Bureau of Land Management lands is equal to the entire cut of softwoods in the United States for a 9-year period. While O. and C. lands have long been known as one of the Nation’s most valuable timber sources, the timber on other public lands until recently has not been recognized as important.
The estimated sustained allowable annual cut of sawtimber on Bureau of Land Management forest lands is approximately 4 billion board feet, or about 10 percent of the annual national consumption. In addition, the woodland areas provide a permanent source of material for fuel wood, posts, poles and other products equivalent to an allowable cut of 2% billion board feet a year.
272 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Much of the timber on Bureau of Land Management lands is mature or overmature, and loss through death or decay just about offsets growth in many areas.
Forest Management Program
A comprehensive forest and woodland management program was adopted during 1952 following the annual conference of Regional Foresters. The preamble to the written plan is a forest policy statement which states that the Bureau will manage each forest and woodland type to obtain its maximum permanent benefits; recognize woodland and forest lands which should be retained under public management and stabilize their tenure; protect the woodland and forest areas to assure the management objectives; and develop and pursue programs leading to optimum utilization of woodland and forest products.
Tn line with that policy, approximately 112,000 acres of public do-, main forest land in Arkansas was reserved by Public Land Order 834 of May 23, 1952, for management under a sustained-yield forestry program by the Bureau.
The most immediate benefits of sustained-yield management are to develop permanence and economic security for communities whose industries are largely dependent upon timber. The transitory type of lumber community which produces only rough lumber has not to exceed 8 year-round workers for each million board feet of timber cut. The more permanent type of community in which forest products are carried through advanced stages of manufacture to finished lumber, paper, plywood, etc., may have 20 or more year-round workers per million board feet of timber cut. The drain on the forest is the same in both cases.
Timber Salvage
A supplemental appropriation provided funds for the coming fiscal year for the salvage of windthrown, fire-killed and insect-damaged timber in the States of California, Oregon, and Washington. Threatened losses through deterioration of dead and damaged timber will be greatly lessened by this special salvage program. In addition, the dire threat of infinitely greater losses from insects which develop in damaged timber and spread to and kill healthy trees is being abated by this program but will continue for several years. This critical problem came as an aftermath of forest fires and unusually severe windstorms in the summer and winter of 1951. The only known control measure is to cut and utilize the dead
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 273
JOBS DEPENDENT ON FORESTRY
MAN-YEARS PER MILLION BOARD FEET OF TIMBER CUT ANNUALLY
4 Man-Years
In the Woods
8 Man-Years Woods Plus Primary Manufacture
20 Man-Years Woods Plus Primary 8i Secondary Manufacture
40 Man-Years
Woods Plus Manufacture
Plus Service Industries
274 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
and dying timber thereby removing the source material in which the beetle infestation develops to epidemic proportions.
Access Roads
Long-term road agreements between the Bureau and the owners of private forest lands intermingled with O. and C. lands are now being negotiated. Two long-term “detailed” road agreements and 166 “arbitration” type agreements for varying periods of time have been concluded. Under such agreements the owners of private lands build roads to reach their own lands and unavoidably cross the O. and C. lands, thus making Government timber more accessible. Under road use agreements, construction and maintenance costs are amortized by prorating charges for use of such roads against the Government and private timber in proportion to the timber volume in each ownership. According to a development plan covering a definite term of years, the private owner builds the road system and the Bureau commits a certain volume of timber to come out over the road and agrees to offer it for sale over a stated term of years, within the allowable sustained-yield rate of cutting. Government timber is sold at oral auction in open competition. If the cooperator does not desire to pay the competitive price, he must make his road system available to the successful bidder. When this happens, the purchaser must pay toll for use of the road to the road builder at the rates specified in the agreement or at rates determined through prescribed arbitration procedures. Longterm road agreements of this character impose no obligation on the private owner to practice sustained-yield forest management, but do facilitate such management for those who wish to follow such practices.
The access problem also is being met in part through the construction of timber access roads with appropriated funds. Private timber transported over such Government roads is required to pay toll to reimburse the Treasury for a proportionate share of the road cost. Prices charged for Government timber are adjusted so that it bears its proportionate share of the cost.
Sustained-Yield Forest Management
In 1937 when management of the O. and 0. lands was authorized, there was need of a good industrial-scale demonstration to show that sustained-yield management of forests could be made to pay financially. In general, the industry was skeptical and had to be shown that instead of being a luxury, sound forestry practices are not only necessary but profitable. The O. and C. lands are serving this purpose admirably.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 275
The financial record of 13 years’ management shows gross income from the lands of $32,089,159.77 compared with costs of management and protection of $4,630,970.00—a successful and practical demonstration that forest management is good business. Industry and other public agencies have watched the project with a great deal of interest.
This financial success of the management program on the O. and C. lands has focused attention upon the question of what constitutes a fair and proper rate of payment to local government to compensate for the fact that Government lands are not subject to direct taxation.
The Department has recommended a plan which would give the counties 50 percent of the net income. This would mean that the counties and the Federal Government would get equal shares of the net income after meeting all costs of protection, development and administration. This plan would facilitate the appropriation of funds for capital improvements such as roads and reforestation which are essential for realizing the full income-producing potential of these lands.
Because of lack of funds for administrative personnel and access roads, it has been possible to market annually only about half of the allowable sustained yield from the O. and C. lands. Approximately 400 million board feet of timber have been cut per year whereas 900 million board feet could be cut and probably should be, in order to develop and maintain the proper balance between young, old and intermediate age classes of timber in the growing stock. If and when it becomes possible to build up the program to the sustained-yield level, financial returns of this project will become even more favorable than in the past not only for the Government but for the counties as well.
Major Problems of Forestry Program
Considering that the oldest part of the Bureau’s forestry program started only 15 years ago, accomplishments to date are very significant. However, important problems must yet be solved. Inventories are Deeded to determine the extent and location of public forest lands and the basic data regarding their resources which are prerequisite for sound management plans. The problem of translating data, policies, plans, and programs into readily comprehensible terms for the Congress and the general public, remains. There is need for up-to-date cadastral surveys to stabilize land tenure and to keep current and usable ownership status information. The reservation, development and management of recreational resources require attention. Questions regarding payments to States and counties in lieu of taxes must be resolved for other public lands as well as the O. and C.
276 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
lands. And, of course, there is the important problem of finding, recruiting, training and retaining qualified personnel, and equipping them with the right tools to carry out the forestry program with efficiency and dispatch.
Protection of Forest Resources
Adequate protection from damage by destructive agencies—fire, insects, and disease—is prerequisite to successful management of our natural resources.
Fire control.—Continued protection from fire of the 400 million acres of public domain in the United States and Alaska, although below an acceptable standard, is being steadily improved. Because of lack of funds, close cooperation with other agencies, Federal, State, county, and private, has been urgently necessary in order to have a more acceptable standard of protection on grazing districts. To this end additional cooperative agreements were entered into between Bureau of Land Management grazing districts and local communities in New Mexico and Arizona and cooperative agreements between the Forest Service and three Bureau of Land Management regions were revised to allow more flexibility in meeting the objectives of fire control in areas where lands of the two Bureaus are adjacent or intermingled.
Contract protection was continued on public domain situated too far from organized fire control units of the Bureau of Land Management to permit economical protection directly by this Bureau. Such areas aggregate 3,600,000 acres of commercial forests, woodlands, and grazing lands in the States of California, Idaho, Oregon, Montana, Washington, Arkansas, and Minnesota. In addition, the protection of 2,100,000 acres of Bureau of Land Management lands in western Oregon bearing high-value stands of Douglas fir timber, was contracted to the State of Oregon, State protective associations and the Forest Service. As a result of heavy fire losses sustained on O. and C. lands in 1951. protection contract and timber sale contract stipulations were tightened to overcome defects which may have contributed to such losses.
Improvement of the fire control organization was accomplished by the addition of permanent personnel in the high fire-hazard grazing districts in Nevada and southern Idaho. Very high frequency (VHF) radio, which permits noise-free transmission in spite of high electrical interference common during periods of high fire danger, was installed in two regions. Plans are under development in the other regions to replace all obsolete medium frequency sets with VHF as rapidly as funds are made available. Additional high pressure
ANNUAL REPORT OF BUREAUS AND OFFICES & 277
pumpers mounted on 4-wheel drive trucks were purchased by western regions in the States for fire suppression. These units have proven so satisfactory in the reduction of acreage burned and in the low manpower requirements that they have been adopted as standard suppression equipment. Two additional airplanes were purchased in Alaska at the close of fiscal year 1951, making a total of three Bureau-owned planes in that vast region. Planes were used very effectively in detection and scouting of fires and for air-to-ground contact by radio to guide and increase the efficiency of suppression crews on fires. Aerial cargo dropping has been adopted for dropping tools, equipment and food supplies to men on the fire line.
Disease control.—Disease prevention and control in commercial timber stands are essential to the production of quality timber. This is especially true with the present high demands placed on timber to meet the future needs of the expanded housing programs and defense requirements of the Nation.
White pine blister rust, a disease common to five-needle pines, requires two host plants, white pine (sugar pine, eastern and western white pine) and plants of the genus Ribes (currants and gooseberries). It can be controlled by destruction of the Ribes hosts. Eradication of Ribes on Bureau of Land Management lands in western Oregon was started in 1942 on an estimated total area of 150,000 acres of commercial sugar pine. During the last calendar year, 4,818 acres of Bureau of Land Management lands and 4,193 acres of National Forest, State, private and county lands were treated with initial eradication and 1.329 acres with reeradication.
Insect conZroZ.—Although not as spectacular as forest fires, annual insect damage exceeds that of fire, taking a heavy toll of timber stands each year. Insect infestations are difficult to detect in their early stages and oftentimes reach epidemic proportions before control measures can be started.
In the Douglas fir region of western Oregon, California, and Washington, the Douglas fir bark beetle infestation has been steadily gaining ground in recent years, has been intensified by the millions of board feet of timber killed by 1951 fires and millions more blown down by high winds in 1951 and early 1952. This fire-killed and blowdown timber scattered over millions of acres, including a very large acreage of Bureau of Land Management lands, is a natural breeding ground for beetles.
A cooperative survey to determine the extent and severity of the beetle infestation is now being conducted by Federal, State, county and private agencies’. Salvage operations on Bureau of Land Management lands are being carried on as rapidly as possible through timber sales which will effect the removal of as much as possible of the
278 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
fire-killed and windthrown timber before the beetles emerge in their flying stage next spring.
The spruce bedworm infestation in the Douglas fir forests of Oregon and Washington which built up to epidemic proportions in 1949 has been brought under control. The 1952 control program completed treatment on approximately 1,000 acres of Bureau of Land Management land adjacent to and intermingled with lands of other agencies in the Blue Mountains of eastern Oregon and Washington.
PUBLIC LANDS IN GREAT DEMAND
The impact of defense requirements for national resources and of a booming civilian economy on the Bureau’s land use and disposal activities has been particularly sharp because the Bureau’s lands in large measure are located in or tributary to those parts of the Nation enjoying the most rapid population growth and unprecedented economic development. Thus the Bureau is faced not only with the need to meet its share of ever-rising defense requirements, but must also provide its share towards satisfying local living room and other needs. Complicating the Bureau’s problems is the fact that it is called upon to supply in these same areas large tracts of land for important defense installations.
Illustrative of the situation is the city of Anchorage, Alaska. This “frontier’’ community during the past year realized a population increase of 5,000 persons, a sensational increase for that part of the world. This growth, combined with defense activities, has created intense demand for lands not only for residential but also for commercial and industrial purposes. In order to meet some of the needs, the Bureau has made available lands in the East and Fourth additions to Anchorage as a basis for the first industrial and commercial area in that community. Further development of Anchorage, however, is seriously handicapped, owing to the fact that the present city is virtually hemmed in by military installations. Adjustment of this situation is one of the Bureau’s continuing land-use problems.
The story of Anchorage is being repeated, with variations and in different degrees of intensity, in other parts of the Nation. Uranium development in Colorado has created demands for residential areas. High demand for food and fibers, together with innovations in groundwater-development techniques, has generated a rush for desert lands. Flourishing economic activity has intensified the need for outdoor recreation, including the enjoyment of individually held sites in the desert and the mountains. Industrial and mining developments have insinuated new requirements which must be met from existing resources.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 279
Our Public Lands have many uses.
Application Increase
In the more prosaic terms of day-to-day work, al] this activity is reflected in an increased number of applications for hinds and of conflicts among competing claimants for land. New applications requiring adjudication jumped from 12,900 in 1951 to 16,700 in 1952 while cases requiring field examinations increased from 7,500 in 1951 to 8,500 in 1952. Efforts to control the increasing workload during the year were multilateral and included (1) reorganization of the land-case adjudication function (2) decentralization of field examinations to area offices (3) emphasis on area classifications as compared to individual case examinations (4) intensification of cooperative activities, and (5) more detailed program planning.
Division of Lands Formed
Consistent with the realignment of the adjudication function of the Bureau, the responsibilities for determination of the highest and best uses of the Bureau’s lands (classification) and those for processing
280 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the papers to accomplish such uses (adjudication) were combined during the year in the Division of Lands. Unification of this activity has facilitated the execution of land policies by tying together closely the translation of the findings as to land capabilities to subsequent land uses through the medium of homesteads, exchanges, public sales, withdrawals and reservations, and other devices.
During the year the Bureau took great strides in transferring major responsibility for land examinations to its area officers. Not only are such officers already on the ground, thus expediting the work involved, but also they are in the position to be the most familiar with all the competing demands for the lands and resources of their particular districts. Concentration of examination responsibilities in their hands is yielding much data needed for determination of the most economic use of Bureau resources.
Area Studies
Concurrent with the decentralization effort is the Bureau’s drive for land examinations on an area basis rather than the case approach. Area examinations permit an economic study of an entire locality and the consideration of all economic factors. This permits the balancing of all availabilities and potential uses against all needs and competing demands. It permits also the rapid disposition of cases upon completion of the study. During the year area studies were conducted in many areas of the West and Alaska, including, among others, Las Vegas, Pahrump, Mesquite, and Pinto Valleys in region II; Snowville, Iron County, Diamond Mountain, Monticello, and Dove Creek areas in region IV; Mimbres Valley and Lindrith area in region V; and various areas in region VII eliminated from national forests. The central problems in each of these areas may vary (dry-land farming in one, recreational sites in another, underground water supplies in yet another) but all are susceptible to small-area techniques.
Basin Studies
Basin-wide studies are proceeding apace in the Missouri River Basin and the Arkansas-Red-White River Basins. During the year the Bureau examined and classified 1,300,000 acres in the former and 218,000 acres in the latter. Basin studies are the ultimate in area investigations and provide the information for a positive, directed program of land use and disposal.
Since the volume of natural resources is limited, cooperation among the various Federal agencies and with State agencies is essential to the realization of optimum values from existing resources and the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 281
expeditious processing’ of land matters. During the year the Bureau intensified its policy of advocating and furthering cooperation among all land agencies. Besides its work on the various field committees, it actively promoted various projects designed to effect the proper and maximum use of the Nation’s natural resources. Examples include cooperative efforts with Bureau of Reclamation to revoke unnecessary reclamation withdrawals and to provide proper administration of withdrawn lands; programs contemplating transfer of lands to various States for wildlife and recreational purposes; a new town site at Wallula, Wash., to replace the present site to be inundated by the McNary Reservoir; proposed development in conjunction with the State of Oregon and Douglas County of the North Umpqua Recreational Area: proposed transfer to the Forest Service of 130,000 acres in Montana and North and South Dakota; exchanges to eliminate private holdings from Glacier National Park and Inyokern naval ordnance test station; proposed pilot area for conservation development involving Agriculture, Interior, and the board of supervisors of the Shell Valley Conservation District, Wyoming; and proposed transfer of Choctaw-Chickasaw lands to Oklahoma A. & M. An important cooperative effort, the study of the Lower Colorado River Basin, was brought near to completion during the year. Five Federal agencies, including BLM, and three State agencies are cooperating in this project.
Need for Intensified Program Planning
The myriad of economic influences affecting land use can be considered in an orderly fashion only by careful program planning. During the year the Bureau was able to make some gains in its detailed planning. Its contributions to the 6-year programs of the various field committees reflected this progress. However, vast amounts of work have to be done before the Bureau’s plans can be considered fully adequate for the task before it. A primary drawback to more rapid accomplishment is the great mass of basic data which are required in this new area of intense land use and conservation for the present and future.
1952 was thus a year of accomplishment in land classification and disposal with important advances in techniques and programs. Many individual accomplishments could be cited ranging from the opening of the Kenai lands in Alaska to settlement to the completion of the State of New Mexico—Forest Service exchanges in the Southwest. Another notable achievement was the completion of the Alaska Withdrawal Atlas. The atlas shows, in place, all withdrawals and reservations in the Territory, providing for the first time a basic
282 ☆ annual report of the secretary of the interior
record to support an orderly and sorely needed review of the withdrawal situation in the Territory. A different but likewise important piece of finished business was the completion of the examination and listing of the remaining tracts of unreserved public domain in the States of Nebraska and North Dakota. The lists have been circulated among interested Federal and State agencies to secure statements of their interest in individual tracts. Upon receipt of these statements, action will be taken to transfer the lands to their highest and best use.
In total, the Bureau examined and classified 1,514,000 acres via its Basin studies and 996,000 acres via small area and individual case studies. For small-tract purposes, a total of 13,246 acres were classified. Adjudication resulted in the closing of 17,400 cases and patents were issued for 374,000 acres.
The year's record, however, was not entirely one of accomplishment. Despite the efforts made, the Bureau could not outstrip the rush of new work and ended the year with an increased number of individual applications on hand. Many area studies, notably that of the Rogue River Basin in Oregon, had to be deferred for lack of time and personnel. Large areas of important work, such as investigation of occupancy trespasses and legalization of proper land uses, had to be largely delayed for similar reasons. Plans, however, were laid to tackle these problems at the earliest possible opportunity.
INCREASING DEMANDS FOR GRAZING RESOURCES
Population forecasts of the United States indicate a continuing upward trend approaching an over-all increase of about 25 percent by 1975. The shift in population from east to west is expected to continue, bringing the increase in population in west coastal States to possibly 45 percent or more. Corresponding increases in demands for foodstuffs, fiber, and other products are inevitable. The demand for beef, lamb, and wool is likely to become particularly acute unless production of these items in the 11 Western States keeps pace with the greater and greater consumption in the West Coast area.
In the past the public ranges now administered by the Bureau of Land Management have been forced to provide much of the additional forage required of an expanding livestock economy such as is now predicted. This additional and excessive grazing use during the past several decades was made at the expense of depleting the forage and soil resources of these ranges. Today these ranges in their present condition are fully utilized. Proper management to insure the maximum production of forage on a safe, sustained-yield basis precludes any increases in grazing use unless the production of usable forage supplies can be improved. There is no doubt that much im
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 283
provement is possible but only through prudent grazing management and a greatly expanded revegetation, conservation and range improvement program. Such a program extending over 20 years now in the planning stage, is expected to increase the usable forage production on the public lands by about 30 percent at an overall cost of approximately $450,000,000.
Grazing Administration
This look into the future emphasizes the great importance of the forage resources on the public lands in supporting the economy of the Western States, the need for husbanding these resources, and the requirement for wise management and development.
Improved staffing during the past year has resulted in more intensive management and supervision of the Federal range and its uses. This fact is reflected in part by the greatly increased number of grazing trespasses detected and stopped. Many potential trespasses were prevented by the expansion of feed lot counts. Range resource inventories and surveys of dependent ranch properties were initiated in all regions. As an example, approximately 300,000 acres in the Idaho-Oregon region were inventoried. The information gathered in these surveys is essential to the adjudication of grazing privileges, the issuance and renewal of term permits, the subdivision of the range into small group and individual allotments, and the perfection of range management plans.
During 1952, permits and licenses were issued to 19,692 operators to graze 8,672,811 head of livestock on the public lands in grazing-districts. Included were 2,409,395 cattle, 62,924 horses, 6,185,499 sheep, and 14,993 goats. Of the above operators, 8,120 are holders of ten-year permits.
As of June 30,1952,16,518,185 acres of vacant public lands outside of grazing districts were covered in grazing leases issued to 11,717 stock-men. This total represents an increase of 2,125,000 acres leased during this fiscal year over the total area under lease at the beginning of the year.
Range Conditions
The critical drought in the south half of California, Nevada, southern Utah, southwest Colorado, and nearly all of Arizona and New Mexico prevailed through the summer and late fall of 1951, requiring continued removal of livestock from the stricken areas. The first break in the drought occurred in the Arizona desert, which received rainfall during the winter reminiscent of the banner forage year of
226396-53-----19
284 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
1941. Rainfall also extended to other parts of the drought area resulting in range conditions showing a definite upward trend at the close of the fiscal year.
The northern ranges experienced a relatively dry summer and fall and a most rigorous winter with unusually heavy snowfall, particularly in February and March, and below average temperatures. Near catastrophic conditions developed in Nevada where unusually deep snows and blocked roads caused the Governor to declare an emergency. Deep snow and cold prevented grazing on most ranges throughout the Northern States and required heavy feeding of hay and concentrates far beyond the usual feeding period. The severity of conditions resulted in great hardship to livestock and big game. Deep snows, with unusually high water content, provided much needed soil moisture and when spring finally came range forage developed rapidly bringing about good to excellent conditions.
Wildlife Management
Wildlife populations on the public lands continue to increase permitting larger annual game harvests by sportsmen and the opening of new areas to hunting. The general improvement of range conditions and effective methods of predator control are primarily responsible for the increased numbers. Unusually heavy snows of the past winter caused some local losses of wildlife, especially deer in congested areas having limited amounts of winter range. It is anticipated that these losses will be overcome in part by favorable conditions prevailing this year. Upland game birds also have benefited from the generally favorable conditions on the range. The introduced Chukkar partridge, which has found a compatible environment on the Nevada rangelands, has now increased sufficiently to provide for more extensive hunting.
Cooperative Relationships
Because of the many and diverse interests in grazing lands, cooperation has become an important aspect of their administration. Well-developed and long-established lines of cooperation exist covering the management of interspersed lands of other ownerships, the management of wildlife resources and for a host of other purposes. During the past year, cooperation with State soil conservation districts was materially strengthened through the Bureau’s participation in a program designed to accord public lands the same level of conservation treatment now available to private lands. This program, sponsored by the National Association of Soil Conservation District
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 285
Supervisors, provides for the selection in each of the Western States of a pilot soil conservation district embracing large areas of public lands to serve as a pattern area for the development of coordinated conservation plans by the land managing agencies concerned. Plans have been completed for districts in five States and are in progress in seven additional States.
Soil and Moisture Conservation
The growing need to coordinate the Bureau’s soil conservation program with programs of the various river basin committees and other affected agencies, has prompted a major change in the programming of this activity. Needed conservation work is planned on the basis of complete watershed treatment of an entire watershed using a tributary or small watershed, wherever practicable, as the unit of work area. Priority of small watersheds scheduled for treatment is based upon the severity of the erosion conditions and the relative urgency for control measures. It is generally agreed among conservation authorities that the small watershed presents the best unit of land area for effective conservation planning and treatment.
Using the watershed approach during the past year, more than 600,000 acres of severely eroded public lands were treated with soil and moisture conserving practices. These will reduce accelerated soil erosion, flood runoff, and downstream sedimentation on the tributary watersheds of important western river basins. Increasing cooperation from public land users and others is evidence of the general acceptance of this program.
286 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Halogeton Control
The Bureau’s efforts to control this introduced poisonous weed were greatly facilitated during the past fiscal year by an appropriation to begin a large scale control program. Control plans have been coordinated with those of state and local agencies in order to achieve maximum effectiveness of the program. Cooperation from private and other owners of interspersed and bordering lands has been excellent. Private land owners particularly have made generous financial contributions to aid in the attack on this serious menace. Lack of basis information on the behavior and control of halogeton has been a handicap to the program. To alleviate this situation, the Bureau has entered into cooperative agreements with several western land grant colleges for the purpose of supporting control investigations now in progress. These colleges have been the principal source of information on which current control operations are based.
Climatic conditions of the past year have been unusually favorable for the spread and intensification of halogeton on rangelands. Likewise, such conditions have also been favorable for reseeding ranges to perennial grass, the most effective method of control. Reseeding operations have been initiated on 100,000 acres of infested rangeland which will be completed this fall during the proper sowing season. When established, these seedings not only eliminate and replace halogeton, but also provide grazing for livestock removed from other infested ranges. In addition to control reseedings, approximately 1,200 miles of roads and trails are receiving chemical treatment to check rapid long distance spread of halogeton. Surveys are under way on many thousands of acres of infested rangeland to determine the location of halogeton and to chart the best methods of control.
Range Improvement
Because of the drought conditions which had prevailed over many parts of the West up to the time of the spring runoff, emphasis in range improvements has been directed toward improving watering places for range livestock. These water developments, together with range fencing, have been the principal range improvements constructed during the year to facilitate better use and protection of rangelands.
The coordination and integration of planning range improvement and soil conservation work projects during the past year has increased operating efficiency and has resulted in more effective distribution of installations on the range.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 287
CADASTRAL SURVEYING ACTIVITIES
Adequate cadastral surveys are a prerequisite to any comprehensive land management or development program. Definite boundaries must be established and corners marked on those boundaries before development of the resources of the land can proceed or the harvesting of such resources be accomplished. Land boundaries must be known before siol conservation and range improvement projects can be carried forward. The development of reclamation projects and the administration of the reclaimed lands are dependent upon adequate cadastral surveys.
In order to fulfill these basic requirements the cadastral survey program of the Bureau of Land Management for fiscal year 1952 was designed along lines that would lead most effectively to wider development of the natural resources and the improvement of our economic structure. The program was also influenced by the current defense situation with emphasis placed on requirements for surveys in areas having a high potential of strategic minerals, as well as in areas providing forage for the production of livestock and for production of timber.
Limitation of funds has made it necessary to screen the requests for surveys thoroughly. Priority determinations are decided by careful consideration of the immediate use and benefits provided by the survey and urgency of a project for development and management of the resources of the lands.
Surveys in the Continental United States
In the 11 Western States there are approximately 100 million acres of public domain over which the cadastral surveys have not extended. An additional area of approximately 50 million acres is in urgent need of resurveys due to obliteration of the monuments and other marks of the original surveys which were executed many years ago.
Title to approximately 50 percent of the area of the 11 Western States is still in the Federal Government. The. extension of the rectangular net of surveys and completion of the necessary resurveys are basic to development and utilization of the natural resources in timber, minerals, grazing, etc. Those surveys are also necessary to satisfy school grants to the several States.
Cadastral survey projects completed during the past fiscal year encompassed the survey or resurvey of approximately 1,400,000 acres of land. The surveys included such essential work as the identification of lands for the Atomic Energy Commission in development of uranium deposits; the survey and resurvey of mineral lands for de
288 ☆ annual report of the secretary of the interior
velopment of those resources, principally oil and gas; the survey and resurvey of forest areas to define the boundaries of timber management units and provide a basis for timber sales; and the survey of grazing lands for range improvements to increase the production of food. Also the program included the survey of approximately 3,800 small tracts providing homesites to meet the demand created by population growth in certain localities in Alabama, Arizona, California, Montana, Nevada, and Wyoming. The program also included the survey of islands, omitted areas, and accreted lands in Alabama, Florida, Louisiana, Michigan, Minnesota, New Mexico, North Dakota, Oklahoma, and Wisconsin.
Additional survey and resurvey projects were carried on by this Bureau to facilitate the land improvement activities of other Federal agencies such as the Bureau of Reclamation in the Missouri River and Big Thompson projects of that Bureau; the Bureau of Indian Affairs on several reservations in the Western States, including surveys in Oklahoma for exploration of minerals; and for the Department of the Army to define boundaries of military installations.
Surveys in Alaska
The lack of surveys is seriously retarding settlement and development of resources in Alaska. The Bureau’s cadastral engineering program in that Territory must be accelerated to provide the necessary homesites, homesteads, trade and manufacturing sites, etc., required in the rapidly expanding development in that area. The identification and marking of the boundaries of the lands by cadastral survey is necessary in the administration of the many public land laws.
During the fiscal year the most urgent Alaskan projects were undertaken and many carried through to completion. This program re-, suited in the survey or resurvey of over 10,000 acres of land intended for agricultural development; the survey of 682 small tracts on which homes may be constructed; the survey of 483 town lots in rapidly expanding communities in that Territory; the survey of 151 group homesites and 27 individual homesites; 13 homesteads, 3 trade and manufacturing sites; 4 headquarters sites and other miscellaneous surveys. Eighteen miles of the center line of highway were traversed for the purpose of segregating the highway from the public domain and facilitating the administration of the adjoining lands.
EMPHASIS ON MINERALS
Continued upsurge and interest in exploitation, development, and conservation of mineral resources owned and controlled by the United
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 289
States was marked during fiscal year 1952. The importance of minerals to the economy of the Nation both in the interest of the defense program and the use of minerals as a means of increasing the standard of living in times of peace was emphasized when the Secretary of the Interior on November 12, 1951, created the Minerals Division as a principal segment in the Bureau's organizational set-up.
Functions of the Division of Minerals
The function of the Division of Minerals is to initiate, administer and develop programs for the use and disposition of federally owmed and controlled minerals; to process the issuance of patents under the United States mining laws; to conduct the sale of minerals under the Materials Act and to classify and supervise mineral permits and leases. The Division coordinates and supervises land office operations of mineral resources; devices, installs, and directs uniform methods of procedure; prepares progressive personnel training procedures; reviews land office actions and prepares for the Director of the Bureau or the Secretary of the Interior, regulations and instructions in the processing of cases arising under the Mineral Leasing Act.
Oil and Gas Leases Top List
During the last fiscal year the oil and gas activities of the Bureau increased in great proportions due to the encouragement of a policy to find new sources of supply for this strategic mineral. During the fiscal year 1952, 32,000 oil and gas offers for leases were filed and 800 applications for other leasable minerals, such as potash, phosphate, coal, and sodium were filed. At the end of the fiscal year there were more than 63,000 oil and gas leases outstanding on the public domain, embracing over 48 million acres and 1,200 oil and gas leases outstanding on acquired land covering an area of over 1,100,000 acres. Four hundred fifty leases for other leasable minerals were outstanding embracing an area of over 220,000 acres.
During this period, 172 applications for patents on placer and lode claims made under the United States mining laws were filed, and 48 patents issued embracing about 5,000 acres. Due to the successful experimentation at Rifle, Colo., by the Bureau of Mines experimental plant to convert oil shale into petroleum products, it is anticipated that many hundreds of applications for patents on shale claims in the States of Colorado, Utah, and Wyoming will be filed in the near future.
290 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Revenues Increase
The revenue from royalties, rentals, and filing fees under the Mineral Leasing Act increased materially during the fiscal year. Out of a total revenue of over $64,000,000 from various public land source activities, $51,000,000 of that amount was derived in bonuses, rental, and royalties from leases issued under the Mineral Leasing Act and the greater portion of that sum came from rentals, royalties, and bonuses under oil and gas leasing. In addition, more than $500,000 was received in filing fees.
A summary of oil and gas leases issued competitively by States on lands ■within known structures of oil and gas fields follows:
State Acres offered Bids received Total bonus offered
California.. _ ... 350.00 Acres 250.00 $13, 697. 25
Colorado 1, 710. 24 1.710. 24 40,363.01
Kansas _ _ _ 240. 09 240.09 3, 502. 90
Louisiana.. 283. 83 283. 83 21, 251.88
Michigan _ .... _ _ „ 60.00 60.00 318.00
Mississippi 6. 24 6. 24 3,050. 75
Montana .. . . 840. 98 840. 98 14, 732.11
New Mexico . .. .... . .... 3,192.89 3.192. 89 139,085. 42
North Dakota _ . 1,019.03 1,019. 03 28,150. 73
Oklahoma 27.50 27.50 1,238. 21
Wyoming ... . .. . 1, 624.17 1.624.17 61,341. 70
Total ... . ... 9.354. 97 9, 254. 97 $326,731.96
Twenty-three coal leases were issued during the year, embracing approximately 7,500 acres, from which there was received bonuses of approximately $12,000. Approximately $4,750 was received as bonus from 4 competitive phosphate leases issued during the year embracing over 700 acres and 3 noncompetitive phosphate leases were issued embracing approximately 3,000 acres. Three preference right potassium leases were issued and 27 potassium and sodium prospecting permits for a total area of 53,000 acres. In addition, the total area of permits and leases issued for leaseable minerals such as coal, phosphate, potassium and sodium during the fiscal year was approximately 64,000 acres.
Steps Taken to Curb Speculation
During the fiscal year steps were taken to curb oil speculation in oil and gas leases, most of which involved newspaper and magazine advertisements offering the sale of oil and gas leases for 40-acre tracts for a consideration of from $100 to $300. Such practice not only swamped land offices with thousands of applications, but retarded the orderly exploration for oil and gas.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 291
MILLIONS OF DOLLARS
In order to curb oil speculation and protect legitimate operators, on June 17,1952, the Secretary of the Interior issued an order limiting the issuance of oil and gas leases to areas of not less than 640 acres unless the lands applied for are within an approved plan of operation or in a unit plan approved as to form only or the surrounding lands applied for are not subject to oil and gas leasing. Studies have been and are being conducted to devise ways and means by regulation or legislation to curb promiscuous exploitation of the oil and gas resources on the public domain.
292 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
LEGISLATION
The legislative program of the Bureau during the past fiscal year listed several important developments. The proposal of the Bureau that a joint legislative-executive commission be set up to study the revision of the public land laws, introduced as House Resolution 115, met with a favorable response from the House Committee on Interior and Insular Affairs. Although it took no action on the joint resolution, the House Committee obtained funds for a preliminary study of the need for a revision of the public land laws.
There has been recognition of other problem areas by the Congress. Hearings were held on bills relating to the “controverted lands” in the O. and C. area in Oregon. The Senate Committee reported out S. 539. The House committee held hearings on the companion bill H. R. 6662 and a brief on the legal issues was submitted. There is now pending in the Federal District Court of Oregon, a suit by Clackamas County, one of the O. and C. counties, against the Secretary of the Interior, and other officials for a declaration that the $5,000,000 fund produced by the controverted lands should be distributed to the land grant counties.
The House Committee on Interior and Insular Affairs, recognizing the abuses to which the mining law is now subject, reported out H. R. 8341 which would amend the Materials Act of 1947 so that sand, stone, gravel, pumice, pumicite and cinders would no longer be subject to location under the mining laws. This bill was passed by the House of Representatives but there was not sufficient time at the end of the Congress for the Senate to take action on it. Significant is the fact that the provisions of the bill for safeguarding the making of bona fide mining locations were worked out with the active help of segments of the mining industry who have begun to recognize the abuses to which the mining laws are now subject. In this connection, on July 16,1951, the Federal District Court of Idaho held that it would not enjoin a grazing licensee of the Bureau from grazing on the surface of a mining claim as against the mining claimant who wished to use the surface for grazing purposes unconnected with mining.
Again, the House committee took decisive action on H. R. 4752, a bill which would terminate the waiver of the second- and third-year rentals on noncompetitive oil and gas leases issued under section 17, the Mineral Leasing Act.
Regulations
The most important work in connection with issuance of regulations related to the mineral leasing activities of the Bureau. To counter the heavy influx of offers to lease land in 40 acre units resulting from advertising by promoters that they would obtain such
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 293
leases at a $100 for each 40 acres, the Department issued a regulation which prohibited the filing of lease offers for less than 640 acres, except under special conditions.
In order to speed up development on leased public lands, provision was made for the use of a “Nation wide” oil and gas lease bond form which could cover all leases in one State, a number of States or the entire country of one lessee or operator. This elminates the necessity of filing bond on a particular lease before drilling may be undertaken. Since many assignments of record title are made in anticipation of drilling, a new “optional-use” form of assignment for such cases was devised. The simple one page form will speed up the approval of assignments and thus facilitate drilling. In addition, provision was made in the regulations to permit trustees for minors to acquire interests in oil and gas leases for their beneficiaries. On the other hand, provision was also made that agents who held powers of attorney, either upon the filing of a lease offer or thereafter, would have to submit statements as to the interest they held in such offers or leases. An amendment was made in connection with the issuance of phosphate leases limiting the overriding royalties that could be reserved. This is the same principle that has been applied to oil and gas leases and coal leases and is also being applied in the case of potash permits and leases.
There has been finally issued a set of regulations which combine former parts 244 and 245 into one part. It covers regulations for issuance of rights-of-way for all purposes in the United States other than railroad purposes and logging roads on the O. and C. lands. This consolidation has resulted in eliminating many unnecessary requirements. It has also pointed up, however, the necessity for revision of a mass of right-of-way laws now administered by the Bureau.
Other regulations have been issued to expedite the handling of work. Tn order to speed the issuance of mineral patents, after careful consideration of the legal problems involved, regulations were drafted making it unnecessary to have mineral patents contain a metes and bounds description of the area covered by the patent. Instead the patent will merely contain the mineral survey number. This should result in issuing patents much more quickly since they will be much shorter. In connection with the issuance of patents in Alaska a single form of patent was devised which would be suitable to cover all nonmineral cases in Alaska, provision being made by appropriate notation to cover the variations required by the different laws. Finally, the procedure required by regulations for holding drawings was amended so as to permit flexibility. This would eliminate repetition of the New Mexico drawing which involved over 20,000 applications and took several months to handle. It will make possible a
294 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
streamlined procedure so that even that number of applications could be handled in a drawing in less than two hours after the opening time.
Litigation
The long controversy with El Paso Natural Gas Co. which had refused to sign the form of common carrier pipeline stipulation embodied in the regulations has been temporarily resolved. The company offered to file the stipulation providing it could accompany it with an agreement that the stipulation would not be binding if litigation over the right-of-way resulted in a holding that the Secretary lacked the power to require such stipulation. The two pending cases between El Paso and the Department have not been withdrawn nor have stipulations been filed in those cases. The company has been filing the required stipulations in all its other right-of-way cases. The first El Paso case was argued before the Court of Appeals for the District of Columbia before the end of the fiscal year but no decision has yet been rendered on it. The other case, as well as the one involving another company, are awaiting the Court of Appeals decision. On the question of the Secretary’s authority to impose conditions in return for granting a right-of-way it is significant that in a suit pending in the District Court of the District of Columbia by the Idaho Power Co. against the Secretary it was held that the Secretary could require the company to enter into agreements to “wheel” public power for compensation over the company’s lines as a condition precedent to the issuance of the right-of-way.
Litigation with the respect to the administration of grazing districts has resulted in clarifying some questions during the past year. The Circuit Court of Appeals for the Tenth Circuit in the case of Chournos v. United States held that actions taken by the Bureau of Land Management on applications for grazing privileges cannot be made the subject of suit under the Federal Tort Claims Act. In the case involving grazing trespass by some Navajo Indians in Utah the Court of Appeals for the Tenth Circuit reversed the judgment of the Federal District Court and remanded the case with instructions to reinstate the complaint of the United States against the Navajo Indians who had trespassed on the Federal Range. The lower court had taken the position that this was purely a matter for administrative action by the United States as the guardian of the Indians. Although the litigation has not yet come to trial another suit brought by white ranchers to enjoin trespassers by the same Navajo Indians on Federal grazing lands for which licenses had been issued to these ranchers and on State land leased to them resulted in the judgment by the State Supreme Court that the Navajos have no aboriginal rights outside of the established reservation.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 295
Orders
Executive Order 10355 issued on May 26,1952, streamlined the procedure for the issuance of public land orders by the Department. The Department can now issue public land orders without clearance with the Bureau of the Budget or the Attorney General. In addition, the Secretary is authorized to issue rules and regulations governing requests for and the making of withdrawals. This will make unnecessary the issuance of withdrawals prior to a hearing, and at the same time will protect lands needed for withdrawals from mining locations pending a final determination on the request.
Further authority was delegated to the Bureau from the Department by amendments to departmental order 2583 and in turn the Director by amendments to Bureau order 427 made further delegations of authority to the regional administrators. Significant among these was the handling of private exchanges which require, as in the color of title cases also delegated, the approval of title by regional counsel. Subsequently, the Department approved redelegation orders by regional administrators to their field offices, so that at the present time the widest possible delegation has been made in the handling of the greatest volume of work of the Bureau. In connection with the establishment of a forestry office at Russellville, Arkansas, in region VI a redelegation order was issued which contained the novel provision authorizing the district forester to reject any application filed with him for lands covered by a withdrawal. There has been made a withdrawal for over a 100,000 acres of land in northern Arkansas while consideration is being given as to its utility for forest management under the Sustained Yield Act of 1944.
ADMINISTRATIVE IMPROVEMENTS
Major improvements of the Bureau of Land Management were noted in each of the several branches of administration.
Fiscal Procedures
Continued improvement has been made in the field of fiscal operations. During the year, manuals were released for the operations in land offices and area offices, and billing and receipt forms were redesigned. Receipts issued in land offices at the time an application is signed provide sufficient copies so that one may be used as an accounting advice, indicating the action taken on the application and directing the distribution of moneys filed with the application. Since these receipts are prenumbered they are readily identified, and as pertinent information appears on all copies at the time of initial preparation,
296 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
there is little left for the adjudicator to do other than to check certain blocks, and in cases of a varied disposition of money, to insert the applicable amounts. Both the billing and receipt forms are prepared with “one-time carbon” so that a considerable amount of clerical time is saved in making carbon copies.
Authority for certifying vouchers to process transfers and refunds has been delegated to the managers of the land offices, a procedure which eliminated previous delays in accumulating sufficient refunds to warrant processing them through the regional offices.
The reconstruction of all land office accounts was completed during the year, and all are now on a current basis. At the end of the fiscal year, the internal audit staff embarked on its first audit of current operations, that of the central office and region 6, both located in Washington.
The over-all simplification and streamlining of accounting operations permitted the Bureau to handle collections of about $64.5 million, an increase of over 78 percent over the receipts in fiscal 1950. Expenditures, likewise, increased over 50 percent during the same period.
During the fiscal year 1953 it is planned to decentralize the general ledger to the field so that each region will be in a position to fully analyze its operations. In decentralizing the general ledger, the records will be maintained on an accrued cost basis rather than on an obligation basis. This will reveal the cost of operations during the fiscal year in which the supplies and services are used rather than in the year in which the order is placed.
Records Management
Substantial progress was made on the Bureau’s records management program during the past fiscal year. The completion of the microfilming project involving approximately 6y2 million land patents together with the original survey plats of 22 out of the 29 public land States, was accomplished.
The program for revising the system of maintaining basic land records materially progressed during the year. A detailed record plan formulated by the Bureau was submitted for review to Bureau of Land Management officials and to others dealing in public land and similar records. Careful coordinated planning is extremely important because of the value of these records and the apparent large cost involved in making any revision.
Over 160,000 actions were taken in answering requests for public land information in addition to furnishing 52,234 photostatic copies of the Bureau’s official records.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 297
Administrative Services
Continued improvement of administrative handling of property, supplies and equipment by forecasting Bureau requirements and scheduling of procurement more closely received increased emphasis during the 1952 fiscal year. Property utilization and disposal of excess personal property has been particularly stressed, resulting in an increase in intra-regional transfers of property and the disposal of equipment to other agencies and educational institutions at a value of $62,496.60 during the year. In completing other property transactions the Bureau acquired personal property valued at $10,802.56 from other agencies. Regions 1 and 2 have taken particular advantage of excess property declarations and have acquired a number of excellent trailers to be used in surveys and fire emergencies. A number of military 6 by 6 vehicles were acquired and converted to truck-tractor use or as flat bed hauling vehicles. This has reduced hauling fees considerably in moving lug or track-equipped vehicles to operation sites.
By formulating an office equipment replacement schedule the Bureau has been able to schedule the acquisition of new equipment which has improved over-all operations and is gradually reducing maintenance costs. While the monetary savings can only be estimated, it is readily recognized that efficient untilization of property and equipment is a requisite for efficient and economical operation.
Management Planning
The management planning work of the Bureau continued to stress better and more efficient operations.
Incentive Awards
The incentive awards work of the Bureau continued as one of its important management tools. This work in accordance with a previous secretarial order has been centralized in one committee and combines the honor awards, suggestion awards, and cash awards and salary increases for inventions, superior accomplishments and savings. Under the new performance rating program of the Department responsibility for the review of “outstanding” ratings has also been placed in this Committee.
During the year the committee considered 105 new suggestions and 5 cases that were reopened, 14 recommendations for salary increase awards for superior accomplishments, and 12 recommendations for service honor awards. The committee approved suggestion awards in 20 cases out of 110, on which final report was made, resulting in an
298 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
estimated savings to the Government of $9,165. Thirteen salary increases for superior accomplishment were approved for a total amount of $1,880, averaging $145 per employee. Three meritorious service awards and six commendable service honor awards were approved. In addition the committee considered seven recommendations for outstanding efficiency performance and approved four of these.
Management Improvement
The management improvement program of the Bureau promulgated in accordance with Public Law 429, Eighty-first Congress and Executive Order 10072, continued and was given special emphasis. This program, which has the active personal interest of the Director and all other top management personnel is active in all seven regions as well as the headquarters office in Washington. Problems are identified by all the various review and appraisal techniques, including scheduled reports, scheduled inspection surveys, staff conferences, as well as the suggestion system referred to above. These problems are then established as management projects with the branch of management planning responsible for the proper follow-through to their solution. This program also embodies the forms control, regulations control, and procedures control which is under the jurisdiction of this branch and which are effective management tools, and which during the past year have been responsible for many of the improvements made in regulations, procedures and methods.
Perhaps the most important accomplishment in management improvement during the year was the progress made on the^ new Bureau manual, which, when completed, will contain all the procedures, rules and regulations covering all the operations of the Bureau for the guidance of its personnel. Working with the old manual which in large respect is obsolete, has been one of the most difficult management problems. The first releases in the new manual were those covering' the new fiscal procedures for the land and area administration offices which made it possible to decentralize the tremendous account job of the Bureau from the regional to the district offices. The benefits of this decentralization have already been remarkable.
Another important step taken in this program during the past year was the publication of the Bureau’s Management Notes, an administrative report, which brings to the attention of all personnel major items in the management field.
The management improvement program has for the most part resulted in 50 revisions and amendments in regulations, procedures, and methods, giving the Bureau increased efficiency with less or the same manpower. Most of these changes usually are reflected in greater
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 2S9
efficiency in paper-processing workload which, rose from 45,753 cases in 1951 to 67,264 in 1952. This covers all applications filed for the use and disposal of the public domain or some of the resources under the Bureau’s jurisdiction. Obviously, the paper-processing function is the type of operation where it is most easy to identify results from a management improvement program. Improvements in this field give supervisory and other personnel more time for perhaps the most important job of planning and programming.
Personnel
An important factor in the Bureau’s efforts to strengthen its per sonnet management program and to obtain maximum utilization of employee skills was the development of written performance standards in connection with the performance rating plan. While this program involved considerable work on the part of employees and supervisors it is felt that the results will prove worthwhile in the improvement of supervisor-employee relations and hence give to the Bureau a better individual performance than would have been otherwise possible.
Management Training Program
The Bureau accelerated its participation in the management training program of the Department by arranging to employ at least one JMA in each of the seven regions and three in the Washington office. The need for bringing into the organization highly qualified generalists who are trained in public administration to work with experienced professionals in the fields of forestry, range management, agricultural economics, or engineering, is apparent in many levels and locations of the organization. The development of new employees and experienced employees in the management training program will do much to insure a reservoir of skilled personnel who can give leadership to the Bureau’s programs in the years to come.
In line with the, modern trend of placing in supervisors a greater realization of their responsibility for personnel management, a thorough analysis was made to determine whether appointing authority of field officers could be increased from its present limit of GS-7 positions and below. As a result a decision was made to redelegate to the regions authority to approve personnel actions of all kinds through GS-11 and below. This move will enable the Director’s personnel organization to give more attention to essential staff functions and will bring to supervisors a greater appreciation of the importance of sound personnel management in accomplishing the objectives of their programs.
226396—53----20
300 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Squaw Butte Training Conference
The third Squaw Butte training conference was held in September with participation by approximately 40 Bureau employees and representatives from other Government and State agencies. Conferees were enthusiastic about the value that obtained from the 2-week-long conference.
Employees Number 1,310
Average employment of all types of employees except district grazing advisers was 1,310. Average employment in the Washington • * office was 208, and in the regions as follows: Region 1, 294; region 2, 160; region 3, 211; region 4, 180; region 5, 143; region 6, 24; and region 7, 90. * *
INTERNATIONAL COOPERATION
Interest in land problems and the activities of the Bureau of Land Management by other governments has been rapidly expanding in recent years. Greater recognition is being given in international pi ograms to the fundamental importance of land policies for increasing production, raising standards of living, obtaining tenure security of individuals dependent upon land and other resources for a livelihood, and as a factor in stabilizing economic conditions and governments.
During fiscal year 1952 the Bureau of Land Management established an office of international cooperation on the Director’s staff to meet the needs of expanding participation in the broad field of public land policy and programs. I he work is conducted in close cooperation with international organizations and agencies of the United States and other governments. In operation, these activities are reflected in the United States position on foreign policy, international conferences, lectures at training centers., providing technical assistance to other countries upon request, using the Bureau’s facilities to backstop its technicians on foreign assignments, and training nationals of other governments and their leaders through observation of the operating practices and results of the Bureau’s domestic program. In addition, foreign scientists and administrators are becoming frequent visitors and a large demand is developing in other countries for information on the Bureau’s activities.
The Bureau’s participation in international activities involves all functions, including policies and procedures for the disposal and leasing of lands and minerals, assistance in establishing cadastral engineering survey systems and in handling technical survey problems, land use
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 301
planning and land classification, land records, and methods of developing and managing grazing and forest resources. Essentially all of the underdeveloped countries of the world, in particular, are experiencing serious problems very similar in many respects to those which the United States has encountered in public land administration during some stage of its relatively short but rapid development period.
The Bureau of Land Management had representatives at international conferences in fiscal year 1952 and was represented on numerous departmental and interdepartmental committees dealing with international problems. A representative of the Bureau lectured at the FAO training center, which was held in Ankara, Turkey. In cooperation with the Technical Cooperation Administration of the Department of State and the Mutual Security Agency, 12 Bureau technicians were on foreign assignments working with the governments of Paraguay, Haiti, Egypt, Jordan, Iraq, Germany, and the Philippines. The advice and assistance which is being given to these countries is greatly appreciated by them and the Bureau is gaining in knowledge and perspective.
Negotiations are under way for providing additional technical assistance to some of these countries and to others. Action has been completed for bringing several technicians to the United States for training with the Bureau, and leaders to observe the Bureau’s activities. The first group will arrive in September 1952.
REGIONAL HIGHLIGHTS
Because of the Bureau of Land Management’s decentralized operations in its seven regions, highlights from regional reports are provided as an appropriate summary for this report.
J
Region I, Headquarters, Portland, Oregon
The year’s activities have emphasized cooperation and teamwork. Visits to district offices by the regional administrator and divisional representatives have been reflected in closer liaison between the regional office and field offices. Short details of district personnel between the regional office, district offices, and Washington, have proved highly effective in promoting mutual understanding of operational problems and harmonious working relationships.
Reorganization of the Spokane land and survey office, to include all functions relating to land and survey, forest management, range management, field examinations, and miscellaneous land use, will prove conducive to improved area administration.
302 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
In consonance with, the decentralized policy of the Bureau, transfer of functions in connection with accounts receivable and collections was effected to 19 field offices during the fiscal year.
The exigencies of the salvage situation and the corollary problems of access and right-of-way were assigned priority over other forestry activities during the last half of fiscal year 1952. Salvage of approximately 1 billion board feet of dead and dying timber must be effected, or a most serious economic loss will be sustained. The need for immediate action has been further emphasized by a beetle infestation of epidemic proportions, and by the concomitant risk of fire to the intermingled sound timber.
In cognizance of this problem, emphasis on timber sales has moved from areas of green timber to areas of salvage material, both in the 1952 and 1953 programing. In addition, the immediate salvaging of private timber has been facilitated by promulgation of an emergency access permit regulation, which was issued just before the end of the fiscal year.
Construction was initiated on the Quartzville Road, first access road project to be undertaken by the Bureau of Land Management.
In addition to providing access to some 8 billion board feet of hitherto inaccessible green timber, the access road program is being planned to accelerate removal of salvage in those areas where economic hauling of forest products is not now possible.
It is anticipated that a road into the Smith River area, where is located the worst blowdown will, when completed, tap 200-400 million board feet of salvage timber. Surveys on a major section of this road were completed during the 1952 fiscal year; construction is scheduled to start during fiscal year 1953.
During the year under review, 215 right-of-way permits were processed ; 93 of the permittees signed reciprocal agreements, 63 being for periods of 10 years or more, with 27 extending perpetual rights to the United States. Several of these agreements were with major companies. Two detailed right-of-way agreements were completed and negotiations were advanced with several other major companies.
Receipts from O. and C. and C. B. W. R. timber exceeded $8,500,000 representing a 26.8 percent increase over any previous year. Income from public domain timber amounted to $736,000. The selling price obtained for both O. and C. and public domain timber, at $10,500,000 and $662,000, respectively, was the highest ever realized.
In the Vincent Creek Burn, aerial baiting of 11,944 acres to effect rodent control, and aerial seeding of 6,721 acres with Montana brown mustard seed to combat erosion and to provide protection to tree seedlings, was followed by aerial seeding of 5,441 acres with Douglas fir.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 303
During fiscal year 1952, appropriations were for the first time authorized for the control of halogeton. A total of 62,000 acres was set up for range reseeding under S and M and halogeton control programs. Of this approximately 22,000 acres was completed; the remaining acreage is included in halogeton control contracts carried over for completion during 1953 fiscal year.
Meetings held with the South Idaho county commissions and representatives of the Idaho State Department of Agriculture have proved highly effective in developing cooperative relationships and coordinated programs for halogeton control. In addition, the Bureau should derive considerable benefit from a research program on halogeton control executed by the University of Idaho under terms of a cooperative agreement between the Bureau and the university.
A protracted dispute concerning privileges and range division was settled by a unanimous agreement signed by 29 operators in 2 units. This agreement constitutes a constructive and far reaching advance in the administration of Oregon-3 district.
Survey work was conducted on 15 projects in Oregon, Washington, and Idaho, all of which involved dependent resurveys and one minor extension survey. This work encompassed only those projects involving critical management problems and can hardly be described as significant in relation to the large volume of survey work that must be done in the interests of efficient land management.
The Division of Land Planning was reorganized into the Division of Lands and Minerals and assumed the adjudication functions formerly administered by separate division. Area management was strengthened by referring all cases to district offices for investigation or comment. Closer liaison was maintained with State and other' Federal agencies to provide recreational, wildlife, or other public values.
Region II, Headquarters, San Francisco, Calif.
The division of administration in region II was reorganized following the establishment of a new position of regional administrative officer, and is now providing increased services to the various operating divisions. A clerks’ conference was held in the regional office for the purpose of clarifying administrative procedures and actions used in field offices.
In adjudication the current figures and analysis show the region has held its own on the backlog of 7,000 cases and closed nearly 15,000.
In the line of area administration, region II opened an area office for northern California in Redding. This has brought administration and area classifiation closer to the local people which has resulted
304 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
in settlement of long standing problems of mining claims versus small tracts.
The Region’s halogeton control program has been of major importance in Nevada. Through regional efforts combined with cooperation secured from other Federal and State agencies, much eradication of this poisonous weed, combined with the region’s reseeding program has converted a decided handicap to an asset of increased forage for the livestock permittees.
A program of increased cooperation with the Soil Conservation Service in joint administration of soil conservation districts in both California and Nevada and joint studies on pilot districts was carried on during the year.
Region II assisted materially in the second snow emergency program for Nevada livestock feeding.
The regional administrator acted as chairman of the Pacific Central Temporary Field Committee for the second year in formulation and coordination of the Interior agencies programs for California.
Wider and closer contacts with State public lands committee, other Federal, State, and business interests was emphasized. The local district program of public relations was materially improved resulting in increased recognition of importance of public land resources and BLM to local users.
The regional administrator participated in the International Land Tenure Conference at Madison, Wis., and following that served as adviser on land management to United States-Paraguay Joint Committee on Economic Development at Asuncion, Paraguay, under the State Department point 4 program.
Region HI, Headquarters, Billings, Mont.
Increased demands for public lands resources and greater public realization of multiple use aspects of these lands are continuing and accelerating developments. The greatest impetus resulted from discovery of oil in the 8,000 square mile Williston Basin. The unprecedented rush for oil and gas leases still continues at a rate in excess of the region’s processing capacity. Recreational uses, demands for wildlife and watershed aspects are requiring constant readjustments for more effective integration of public land use. To facilitate this pi ogram management and operational functions have been further delegated to area and district offices to give on the ground service to the public.
Increased land values and demand have resulted in the disposition through sales and exchanges of over 40,000 acres of isolated tracts unsuited for public use and management. To achieve more effective public land use management, nearly 10,000 acres of State-owned lands
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 305
in Glacier Park are being exchanged for isolated tracts of public land in northern Montana. Other adjustments are being made through transfers.
Exchanges and withdrawals are in the mill to facilitate public programs of the States, Forest Service, Fish and Wildlife Service, Bureau of Reclamation and Corps of Engineers, when the public domain is essential to or can be most efficiently managed under programs of these public agencies. Many of these adjustments were effectuated pursuant to developments and findings in the Department’s programs of investigation and development of the resources in the Missouri Basin.
Emphasis on range management was placed on maintaining forage resources in a healthy and vigorous condition and meeting the increased demand for range use insofar as possible.
There was a total decrease in volume of timber sold but an increase in the number of sales, which reflects better resource management. Fires were not serious, due primarily to favorable weather. A serious threat exists and severe loss is imminent if and when a dry year occurs. Improved facilities and organization for fire control is urgent.
High runoff and floods exerted severe tests on installed soil and moisture conservation structures. Some losses occurred but much valuable experience and hydrologic data were gained for developing and improving designs and application of watershed manipulation. Emphasis continued toward converting this storm water runoff from a destructive to a beneficial agent. Range use facilities and improvements were effectively integrated into comprehensive resource development plans.
Infestations of halogeton were found which extended to several thousand acres in the Wind River Basin. Control measures for the nearly 500,000 acres of known infestations are proceeding on the basis of preventing further spread and neutralizing infested areas through introduction of more effective competition of other desirable vegetation. This is being induced by reseeding, water spreading, and related moisture and conservation practices, and through appropriate range management. Unfortunately, control trials through chemical spraying were very discouraging.
Cadastral surveys or resurveys were completed for 835,470 acres most of which were to facilitate programs for reclamation and irrigation projects. Of this total, 281,140 were in Nebraska, 210,560 in South Dakota, 141,600 in Wyoming, 137,530 in Montana, 48,000 in Kansas, and 16,640 in North Dakota. Survey was made of 137 small tracts which were classified for home sites and business sites in the vicinity of Missoula, Mont., and Greybull, Wyo. Other survey projects of special interest included the marking of the boundary of the Grand Teton National Park.
306 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Region IV, Headquarters, Salt Lake City, Utah
Mineral withdrawal mapping project for two States and project studies for clearing invalid claims from critical uranium areas were prepared in cooperation with AEC to expedite development of uranium resources needed in atomic energy production.
Oil shale project studies were completed for extensive deposits of this resource in Utah and Colorado.
The backlog of adjudication cases was reduced from 5,323 to 3,753. Adjudication cases in the Land Office are approximately current.
Program planning for the region was carried out through the Department of the Interior field committees which has resulted in better coordination of Departmental programs demonstrating the need for timing of programs for the orderly development and conservation of all resources.
Comprehensive classification surveys were carried out in the Arkansas Basin on 218,000 acres of public domain and in the North Platte of the Missouri Basin on 167,000 acres.
In the grazing administration, emphasis was placed on dependent property studies as a basis for equitable adjudication of grazing privileges to stabilize livestock operations and to arrive at proper management and stocking of the Federal range.
The beginning of a regularly scheduled administrative auditinspection program of district offices by personnel from the regional division of administration was started. Excellent progress was made in tying together program plans with budget estimates in disposal or storage of many BLM obsolete records. There was a large increase in receipts in 1952 over 1951 without any appreciable increase in personnel. Another administrative highlight was bringing in balance the property inventories with property control records and fiscal control records.
Cadastral surveys in the region were completed on 241,016 acres largely in connection with Reclamation and AEC projects. In cadastral survey planning in connection with other Federal agencies, there is an increasing demand for cadastral surveys in connection with action programs of other Bureaus. The need for a direct appropriation to BML for cadastral surveys to accommodate action programs of other land management agencies has been emphasized.
Region V, Headquarters,^Albuquerque,FN. Mex.
The consummation of the State-forest exchanges, commonly known as application 2-21, disposed of a problem which has been pending before the Bureau and its predecessor agencies since 1932. The im
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 307
passe which has existed for such a long time was overcome by changing the location of the selected lands in a manner that was advantageous to all parties concerned; the State, the Forest Service, and BLM.
Further progress has been realized in achieving the Bureau’s objective of handling all activities possible at the field level. This area administration plan, inaugurated during the 1951 fiscal year, has necessitated a plan for adjustment of former grazing district boundaries and office locations, in order that each area of administration can justify a staff representing all or most of the Bureau’s activities. One of the adjustments provided for in this plan (modification of New Mexico districts 2 and 4, and moving of office location from Magdalena to Socorro) was accomplished during the year.
Another outstanding achievement is publication of the Code of Ethics, a joint effort of the oil and gas industry, the livestock industry, USGS and BLM operations in the San Juan Basin of New Mexico. This Code is designed to eliminate conflicts between these two important uses of public lands; to provide a more amicable relationship between the two industries; and to minimize the surface damage to lands which usually accompanies oil and gas activities.
Following the close of school in June, region V started its first full scale trainee program. Five range management trainees and 14 soil and moisture trainees are learning certain phases of BLM work while at the same time giving worthwhile aid and assistance to these two programs in the field.
Effective soil and moisture conservation work programs were concentrated in the San Simon tributary of the Gila and in the Rio Puerco tributary of the Rio Grande. Both of these watersheds contribute damaging amounts of sediment to the San Carlos Reservoir in Arizona and the Elephant Butte Reservoir in New Mexico. Reducing the movement of soil from the watershed areas is providing for greater production from the public domain rangelands and is lessening the deposition of sediments in the river channels and water storage basins.
After detailed study and collaboration with appropriate State officials, the region has established a policy with respect to handling the several hundred desert land applications in Arizona. These entries, if allowed,’ would further tax an already critically depleted underground water supply, thereby placing in jeopardy a substantial segment of the agricultural economy of the State.
Worthy of mention as an accomplishment this year is the holding of a large oil and gas drawing involving 42,245 acres of public land in southeastern New Mexico, which was opened to leasing by the Secretary’s order of October 16, 1951. Approximately 28,800 lease offers were handled in the drawing.
308 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Region VI, Headquarters, Washington, D. C.
A most significant step taken in connection with the administration of public lands, within the jurisdiction of this region, was the withdrawal of some 112,000 acres of such lands on May 23, 1952, by Public Land Order 834, for the purpose of establishing a sustained-yield timber management program. The lands are located within 17 counties of the State of Arkansas.
A district forestry office, staffed with forestry personnel, was established at Russellville, Ark., to implement the objectives of the withdrawal. Timber sales made as a result of the above action, have brought higher prices under the first regulated, good forestry practice on public lands in that State. A distinct and substantial contribution to the resource economy of the area has been made through the program.
Additional benefits which will result are those involving the preparation of adequate timber and other resource inventory data and greater opportunities and facilities for cooperating with the Arkansas-White and Red River Basins inter-agency programs.
Considerable increase in the number of applications have been received and processed under the small tract laws principally for home sites, bringing to approximately 950 the number of such leases which are now outstanding. Recent discoveries of oil and gas on lands under the region’s jurisdiction have substantially increased the number of oil and gas applications filed in and processed by the region.
Requests by various States have been received for large area acquisitions to be added to their conservation and recreation programs. Several Federal agencies have also presented requests for public lands in this region. The most active in this regard are the Forest Service and the defense agencies.
The region inaugurated and carried forth its first program for training of junior management assistant personnel.
Region VII, Headquarters, Anchorage, Alaska
Through a series of restoration orders signed by the Secretary of the Interior, the Bureau of Land Management in Alaska launched its first program of planned homestead settlement during the year. The land had been withdrawn for classification and after being studied by Soil Conservation Service and BLM specialists, a plan of establishment of farm units for portions of the area was adopted. Small tract groups were opened to entry, designation of industrial and commercial areas near the town of Kenai was completed, and certain lands were withdrawn for recreational purposes.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 309
When the Forest Service relinquished about 29,000 acres of land in southeastern Alaska through Public Land Order 842, the Bureau of Land Management inherited more problems than had been handed region VII in one package since the creation of the region. Provision had to be made ahead of the establishment of the pulp mills for settlement. Classification men and survey parties were sent in while the land was still in the national forest, so months of time were gained but months of time remain before administration can be said to be running smoothly. Surveying, classification, timber sales and administration of recreational lands established by the I orest Service all offer a real challenge in that area.
Elsewhere in Alaska, the work load continues to build up too. The public sale act was put into active operation with practically all of the east addition and much of the fourth addition to the townsite of Anchorage an dareas along the Anchorage-Palmer Highway being sold. Thus an industrial and commercial area adjacent to the city of Anchorage is being created. However, the big flaw in the Act permitting mining claims on such lands has thrown much of the sale into doubtful status and BLM into court as gravel claims have been staked. A temporary restraining order against the claimants was obtained. A total of 63 lots brought a sale price of $73,425. Business under the Material Act particularly involving extraction of gravel from below mean high tide increased considerably, centering mainly in the vicinity of Ketchikan. A total of 115,914 cubic yards of gravel were sold throughout the Territory during the year and 2,680,500 yards were included in free-use permits for public purposes.
Timber sold amounted to 20.5 million board feet while free-use permits accounted for 2.1 million board feet. The number of inaccessible fires decreased considerably as BLM’s zone of operations has been greatly extended due in great measure to air operations. An unprecedented number of patents were issued to Alaskans as 818 were processed through the Anchorage land office alone. In addition, more than 300 deeds to townsite lots were processed by the Division of Engineering and the townsite trustee. Aboriginal claims still held up issuance of oil and gas leases upon which largely depends the early proving or disproving that the Katalla area is an important oil producing area. Special attention was given by surveying crews to facilitate settlement on small units in congested areas such as small tracts selected by BLM homesites laid out by the Forest Service and townsite surveys of areas already occupied. Among the latter were Kotzebue, McGrath, and Aniak. It was necessary to traverse 18 miles of highway because of Public Land Order 601 in addition to surveying 483 townsite lots, 682 small tracts and 178 homesites, in special group surveys as well as 2,720 acres of original surveys and 7,680 acres of
310 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
dependent resurveys under the rectangular system. The keeping of status on unsurveyed lands for the whole region is a Herculean task. Approximately 447 oil lease applications alone were platted and status prepared.
The trend toward land disposal in smaller units is illustrated by the issuance of 24 small tract classification orders which opened to lease 833 small tracts covering 2,000 acres. This attention to establishment of homesites primarily falls far short of meeting the demand as in most openings there are five or six times as many applicants as tracts available. The program therefore continues to be stressed. Thirty-five cases involving the leasing of 335,594 acres of grazing lands were closed. Inventory of grazing lands continues and only two large areas in southwestern Alaska where most of the Territory’s potential grazing seems to be centered remain to be completed. Attention will then be turned to interior areas such as the Tanana and Nenana River Valleys.
The program for the study and restoration of unneeded shore space reserves continues as 16,000 acres of shore was put back into circulation during the year. The road building agencies in Alaska face serious problems in determining the legal width of rights-of-way. As the dates upon which claims were established are governing factors, BLM is generally involved in these discussions. The Alaska field committee, through a subcommittee on which the regional counsel serves, is making a study of the problem and will make recommendations at the next meeting of the field committee.
FISH AND WILDLIFE SERVICE
Albert M. Day, Director
The Fish and Wildlife Service continued its varied activities throughout the country and in the seas around the continent, for the conservation of our fish and wildlife resources, including promotion of better use of these resources; for the restoration of depleted but renewable resources; and for the management of those resources under Service control.
Search tor new sources of fish for food, and research in fishery biology, have extended through the North and Middle Atlantic, the Gulf, Alaskan waters, Pacific-coast waters, and Hawaiian waters. Migratory-water fowl research has extended from Alaska and Canada to South America. Wildlife refuges, fish hatcheries, and control of harmful species, have helped preserve and replenish our valuable living resources.
There has been progress in cooperation between Federal and State agencies and among Federal agencies, in the conservation and management of fish and wildlife. Addition of a fisheries-restoration program complementing the successful wildlife-restoration program, through Federal aid to State projects, is a notable step. Reorganization of the Service’s law-enforcement and game-management activities has facilitated State-Service cooperation. There is closer cooperation with the States in planning the annual game regulations. Cooperation with other nations has been furthered.
UTILIZING THE FISHERY RESOURCES
Accomplishments in the fields of exploration, development, and utilization of the Nation’s commercial fishery resources have been substantial and in considerable variety.
The Service’s exploratory-fishing vessel John N. Cobb located seasonal commercial concentrations of shrimp along the Alaskan coast.
311
312 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
A deep-water survey off the Washington coast located several new fishing areas to increase the catch of Pacific-coast bottom fish. Additional exploratory work on albacore tuna is being carried out to determine the availability of these fish to the trolling fleet.
The vessel Oregon- continued work on the Gulf of Mexico shrimp program. The preliminary survey will be finished early in 1953. Large schools of blackfin tuna have been observed during the summer months, indicating a potential fishing area in the Gulf.
A study of electronic aids for locating school fish has been started on the Atlantic coast. Equipment is being purchased and installed on a chartered research vessel, the Bowdoin.
Promising results have been obtained from the New England bluefin tuna exploratory fishing survey. Large catches of choice 25- to 50-pound tuna, made with purse-seine gear last summer, have demonstrated the good commercial potentialities. Further investigations are being carried out, with long-line gear and gill and trammel nets.
Exploration for little tuna, in cooperation with the industry, in South Atlantic coastal waters demonstrated that quantities of this species occur there. Catching techniques must be given further attention before this resource can be utilized.
Commercial-scale tests of the new method of freezing whole fish at sea were carried out on the research trawler Delouware. Immediately after being caught, the fish were frozen in brine for later thawing, filleting, and refreezing of fillets ashore. Several lots of whole fish and fillets were prepared for commercial storage and for consumeracceptance tests. Other lots were sold to commercial fillet producers who will gain experience in handling and marketing the new product in accordance with recommendations of the Service. Previous laboratory tests show the superiority of fish fillets prepared from whole fish frozen at sea over fillets from fish iced at sea in the normal commercial manner.
Commercial-scale test shipments of salmon trimmings were made from Alaska to the State of Washington. The waste is an excellent source of protein and vitamins in the diet of hatchery fish. The newly developed packaging and handling methods proved satisfactory, and shipments were acceptable on regular commercial refrigerated vessels. Cost records indicated that collection of salmon waste in Alaska for use as fish-hatchery feed in Washington and nearby states is commercially practical.
As required by the Fishery Cooperative Marketing Act of 1934, numerous fishery cooperative marketing associations were visited and reported on. There were 69 active fishery cooperative marketing associations in the United States in May 1952, compared to 73 in May 1951.
Typical of help given the fishery industries in transportation cases
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 313
and international trade problems were exhibits and testimony in Ex Parte 175 before the Interstate Commerce Commission to show the effect, on distribution of fishery products, of proposed changes m transportation rates and charges, and the information and assistance given domestic tuna and groundfish fillets interests on international-trade problems.
A fish and shellfish preference survey was conducted during the year. A report, Fish and Shellfish Preferences of Household Consumers—1951; Part I—National Summary, summarizes answers to questions about preferences and desires with respect to fresh and frozen fish and shellfish packaging, grading, cooking, cuts, and availability.
Seven Fishery Market News Service field offices, at Boston, New York, Hampton, New Orleans, San Pedro, Seattle, and Chicago, were operated in spite of increased costs. Full- and part-time marketing specialists in fishing and distribution centers gather current production and marketing data, which have become increasingly important to the fishery and allied industries. Although funds limit expansion of coverage, a start has been made in reporting weekly prices on canned and frozen fishery products.
Field offices continued to handle Defense Fisheries Administration field activities and act as liaison between the trade and DFA.
The monthly Commercial Fisheries Review featured articles on the fisheries, news of trends and developments in the fishery industries here and abroad, and Government orders affecting fisheries.
Market News data have been used as a basis for defense regulations and as evidence in a number of Tariff Commission and congressional hearings. Usefulness of the data collected over the past 15 years has increased.
Home economists of the Service conducted 134 fish-cookery demonstrations for school-lunch staffs and 26 special demonstrations for homemakers, institutional managers, and educational groups. Promotion of fishery products for school lunches was carried on in cooperation with nine States, and in some of these States increases of up to 80 percent in use of fish have resulted.
A program was started during the year to increase the sale and distribution of frozen fishery products through the 11,000 locker plants in the United States. After a preliminary campaign in Ohio, the campaign was expanded to other States.
The special monthly reports on the fishery supply situation and the quarterly market-outlook reports have been continued for the use and guidance of restaurants, food chains, fishery associations, and government organizations. The technical abstracting service on the commercial fisheries was continued on a monthly basis.
314 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
A contract for a motion picture on the shrimp industry was let but the shooting will not take place until the next fiscal year. The distribution of motion pictures through the 60 film libraries and their showing over television networks were continued.
General statistical surveys covering all sections of the United States having commercial fisheries of any importance were completed for the year 1950. Tabulation and publication of the results have been begun and are expected to be completed during the next fiscal year. Similar surveys covering the year 1951 were begun in all coastal areas, and arrangements were made to obtain catch data in the Great Lakes States for 1951.
Monthly and annual bulletins on the landings of fishery products in Maine and at the principal Massachusetts ports, and monthly bulletins on the landings in Florida, Mississippi, and Texas were continued. Publication of the monthly bulletin listing landings in Alabama was discontinued, as the Alabama Department of Conservation was unable to continue furnishing the necessary information. In cooperation with the New Jersey Department of Conservation and Economic Development, arrangements were made for the collection and publication of monthly data on landings of fish and shellfish in New Jersey.
Publication of monthly statistics on the freezings and holdings of fishery products, and on the production of fish meal and oil, was continued.
ADMINISTRATION OF ALASKA FISHERIES
Management of the Commercial Fisheries
Marine fishery conservation activities in Alaska during 1951 were administered by 22 permanent fishery-management biologists and enforcement agents, assisted by 10 agents on detail from the States. This supervisory staff was augmented by approximately 98 temporary seasonal patrol agents and stream guards employed by the Service, and 17 employees of the Territorial Fisheries Board. Eight seagoing-patrol vessels, 11 speedboats, about 60 outboard-powered small craft, and 10 aircraft, were used in management and patrol activities. Nearly a quarter of a million miles were traveled by these various modes of transportation. There were 155 cases of violations of the fishery laws and regulations involving 350 individuals and 5 companies, 1 of which figured in 2 cases. The 5 companies and 248 individuals were found guilty, 85 individuals were acquitted, charges against 2 minors were dropped, cases against 3 individuals were dismissed, 5 cases were settled by confiscation of fish only, and cases involving 7 persons were pending at the end of the year. Fines, forfeitures of
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 315
bonds, and sales of confiscated fish totaled over $73,000. Jail sentences of 1,890 days were imposed, of which 1,815 days were suspended.
The 50-percent escapement of brood salmon to the spawning waters, as required by statute, was assured by counting weirs in 14 major streams. This is a reduction of two weirs from the previous year, caused by high water preventing their installation. Five were installed in Southeastern Alaska, one in Prince William Sound and Cook Inlet, four in Kodiak, and three in Bristol Bay. The weirs also give precise information on time of arrival and duration of the runs of the several species. To obtain data on the hatch and survival of pink salmon of the previous year’s spawning in Southeastern Alaska, seven dowmstream or migrant-sampling weirs were installed. More than 65 beaver dams and other obstructions were removed from spawning streams in the Cook Inlet region.
Pribilof Islands Fur-Seal Industry
Fur-seal skins taken on the Pribilof Islands in 1951 totaled 60,689, of which 50,573 were from St. Paul Island and 10,116 from St. George Island. This represents an increase over 1950 of only 485 skins. Of the 1951 production of sealskins, 20 percent was delivered to the Canadian Government under the terms of the Provisional Agreement of 1942. The byproducts plant on St. Paul Island produced 351 tons of fur-seal meal and 40,000 gallons of oil. One-half ton of meal was transferred to the Fur Animal Experimental Station of the Department of Agriculture at Petersburg, Alaska. The rest of the meal and the oil were sold through competitive bidding for the gross amount of $76,315.61. During the winter of 1950-51, 1,426 blue-fox pelts were taken on the Pribilof Islands.
Two public auction sales of fur-seal skins were held at St. Louis, Mo., during the fiscal year 1952. On September 24, 1951, were sold 25,031 fur-seal skins for the gross amount of $2,249,892. At the same sale, 550 Pribilof Islands blue-fox pelts brought $2,750. On April 7, 1952, were sold 22,008 sealskins for the gross sum of $1,788,630, and 350 blue-fox skins for $2,052. The sealskins were dressed, dyed, and finished in three shades, “Matara” (brown), “Safari” (brown), and black. A few sealskins were sold during the year for promotional purposes.
RESEARCH IN FISHERY BIOLOGY
Coastal Fisheries
Research in southeastern Alaska was concentrated on pink salmon. A 10-year study of the effect of temperature on survival of pink
226396—53----21
316 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
salmon in a test stream (Sashin Creek) indicates that warm water favors high survival and that temperatures in the latter part of the incubation period have a greater influence on survival than temperatures in the fall and early winter.
Studies of survival of eggs spawned in the intertidal zone showed virtually no survival to fry stages when salt water covered the nests 70 percent of the time, and good survival when it covered them 30 percent of the time or less.
Tag recoveries show that adult fish generally move toward their spawning creeks through Icy Strait, passing southward into Chatham Strait and then eastward into Frederick Sound and Stephens Passage; minor offshoots lead into Lynn Canal and South Chatham Strait.
Study of daily catches of pink salmon by traps is being made to determine changes in time of spawning migration and, if possible, to correlate these changes with biological and meteorological factors.
The Fisheries Research Institute of the University of Washington and the Service are carrying out a cooperative study of salmon in Cook Inlet, Alaska, to determine the destination of stocks of red salmon being intensively exploited by the relatively new gill-net fishery.
For preliminary appraisal of the effect of fertilization on growth and survival of young salmon, commercial nitrate and phosphate fertilizers were placed in a small lake on Kodiak Island. The growth of microscopic plants increased greatly. This program includes chemical analysis of lake water, studies of bottom fauna and plankton, and enumeration and measurement of young red salmon produced in the lake.
Work on the Alaska herring was limited to sampling the catch in major fishing areas to determine relative abundance and the age composition of the catch.
In accord with the plan originally agreed upon for the 6 years of shad research authorized by the Congress in 1949, work is concentrated on Chesapeake Bay (previous years’ work was on the Connecticut, Hudson, and Delaware Rivers). Field operations include the tagging of 4,000 shad in the spring of 1952. Recoveries of tagged fish will permit estimation of the size of the runs, the rate of capture, and the migration routes. The shad-producing States of the Atlantic seaboard, through the Atlantic States Marine Fisheries Commission, are cooperating with the Service in this work.
Experiments with electricity, sound waves, light waves, and magnetic lines of force are being conducted to develop means of guiding adult salmon and other fishes over dams of Northwest streams
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 317
to their breeding grounds and the young fish back to the sea. Distinct reactions of fish to pulsating direct current have been found.
Inland Fisheries
In a 3-year search for methods to control the sea lamprey in the Great Lakes, emphasis has shifted from mechanical to electrical devices. Although past researches demonstrated the usefulness of dams with traps, and weirs with traps, for controlling the lamprey, high construction and operation costs make less-expensive methods impel a-tive. Experiments in 1951 with electrical devices showed that they can divert, trap, or destroy all adult lampreys migrating upstream to spawn. Electrical devices are being operated in six streams that differ greatly in volume, depth, and quality of water. Changes in these devices from time to time increase efficiency of design and reduce installation and operation costs. Since electrical devices sometimes inhibit migration of game fishes as well as lampreys, a means is being sought to lead desirable fishes into a shielded trap to speed their upstream
i passage.
That the length of the parasitic phase of the lamprey’s life cycle in Lake Huron is 1 to iy2 years is confirmed by feeding experiments. These experiments have also made it possible to estimate the pounds of fish a lamprey destroys during its parasitic existence, and have provided extensive data on the effects of lamprey attacks in relation to species and size of fish attacked, to place of attachment, and to size and age of the lampreys.
Testing of chemicals to find a substance highly toxic to larval lampreys, in concentrations harmless to fish, uncovered several promising compounds. Field tests will determine their practical value.
To explain enormous overwinter trout losses in most streams in the United States, native and hatchery trout have been stocked in four experimental stream sections at Convict Creek experimental station in California. Water flow and fish movements in these sections, which total a mile in length, can be controlled. Survival in these sections from May to October 1951 was 37 percent for rainbow trout and 39 percent for brown trout.
Research to improve fish-hatchery production and efficiency was expanded. New drugs and chemicals were tested to develop better prophylactic treatment for hatchery fish. Experiments indicate that although sulfonamides are effective in controlling several common fish diseases they are unsuitable for treating others. Antibiotics, such as terramycin and chloromycetin, have cured and prevented some diseases for which no cure was previously known. Identification of several
318 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
new bacterial fish diseases is being attempted, and control methods are being investigated. In nutrition experiments on salmon and trout, modification of regular hatchery production diets, to remove deficiencies in vitamins and other requirements, resulted in reduced cost of fish production and healthier fish better able to survive after planting. Feeding trials on salmon have resulted in development of several new diets and a number of substitutes for ingredients now incorporated in standard diets. Shallow-pan and basket types of vertical egg incubators, developed for saving space and for economy in operation, proved satisfactory for eggs and fry; the high-humidity cabinet proved satisfactory for eggs but unsatisfactory for fry. Experiments show it is possible to incubate, hatch, and rear chinook and silver salmon, and cutthroat and rainbow trout, in water from Dorena Reservoir, an Oregon flood-control project of the United States Corps of Engineers; in some years the water may be too warm for satisfactory incubation of chinook-salmon eggs.
Marine Fisheries
A comprehensive oceanographic survey is being conducted in the Gulf of Mexico to delimit the areas of greatest fertility, which may coincide with the areas of greatest potential fish production. This requires determination of the chemical composition and the current patterns of these waters. To determine the chemical composition, new techniques are being developed to measure quantitatively certain organic compounds in sea water. It has been established that these compounds are byproducts of biotic activity, and so reflect the distribution and concentration of the nutrients on which all life in the sea depends.
Findings support the theory that waters of the Gulf outside the influence of land drainage (which supplies the essential nutrients) are relatively sterile, and the productive fisheries of the Gulf must be largely confined within the 100-fathom contour, where the influence of the major river systems is effective.
The research vessel Alaska, used in these surveys, has been on loan to the Navy during part of the year, for high-priority oceanographic surveys. This arrangement, essential to the national defense, has limited research in the Gulf.
The immediate cause of “red tide,” the plague that killed millions of fishes off western Florida in. 1946 and 1947, has been ascribed to a tremendous abundance of the dinoflagellate Gymnodinium, brevis, found in enormous numbers in the affected areas. A toxic substance of unknown nature, associated with the organisms, causes the mortality. The object of the program is to determine what factors bring about an overgrowth of plankton in general, in order to understand the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 319
causes of the red tide. Organisms must be grown in pure culture to ascertain their nutrient requirements, and some progress has been made in this.
Research in the North Atlantic centered around the proposed international regulation of the haddock fishery on Georges Bank. Results of mesh-selectivity experiments indicate it will be necessary to use a net having an inside stretched mesh of 4^ inches to protect haddock under 2^ years of age now caught and discarded. A method of accurate prediction of catches of haddock, necessary to the interpretation of the effect of the proposed regulation, has been devised.
Progress was made in an intensive study of the imperfectly known biology of the redfish, New England’s second most important commercial species; and studies of the migration of Atlantic tunas yielded information on the distribution of that important species.
A survey is being made of the sport and commercial fisheries of the Delaware Bay area to determine the effects of industrial pollution on the marine fisheries in the area.
The Service, the Scripps Institution of Oceanography, the California Division of Fish and Game, the California Academy of Sciences, and the Hopkins Marine Station of Stanford University, with the support of the industry (through the California Marine Research Committee) are continuing the study of the Pacific sardine, greatest contributor to the fish catch of the Nation until the sharp decline in abundance after 1944. The problem is to determine the size of the sardine population in various years and the causes of fluctuations, by establishing the variations in the amount and range of spawning, and in the prevailing current patterns and other characteristics of the marine climate off the west coast.
In 1951, as in the past, spawning occurred chiefly from January through June and was most abundant in March, April, and May. It was confined to the area between Point Conception and Point Abreojos. Within this area there are two centers of spawning, one off central Lower California, the other off southern California. Coverage of the area is extensive and flexible enough to show deviations in time and place of spawning. This is important since successful year classes may differ considerably from unsuccessful ones in place and time of spawning.
The evidence at hand indicates that “successful” sardine spawning on which the rehabilitation of the fishery must depend, occurs only when the spawning extends over a large section of the coast. Because the spawnings of 1950,1951, and 1952 were concentrated in the limited Cedros Island areas off Lower California, there is small prospect that they were successful, and increase in the adult stocks when they mature cannot be expected.
320 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
In the central Pacific, studies of the western seas continued to collect information on ranges and distribution of the several species of tuna and on their life histories and migrations. Tuna have been found in greater abundance in the zone of converging ocean currents adjacent to the upwelling of nutrient-rich waters (where plankton abounds) along the equatorial-current system. The rich tuna-fishing ground south of Hawaii, found in 1951, extends eastward at least 2,000 miles toward Central America.
Purse seining for tuna was unsuccessful, not only because of clearer water and smaller and faster schools, but also because of greater prevalence of rough seas than off the west coast of America, where purse seining is commonly practiced. Bait-fishing for tuna in the Phoenix and Line Islands is impractical because bait supplies will not support clipper fishing, although there may be enough for operation of small native sampans. A study of reactions of tuna to chemical stimuli has shown that they react strongly and positively to certain fish extracts in solution. This is especially encouraging with its promise of ultimate development of a substitute for live bait.
Fishing with long lines was successful in the Phoenix and Line Islands and near regions of upwelling adj acent to equatorial currents. Catches were better than the average of Japanese long-line catches in the western Pacific, and better also than the average in the Hawaiian area.
The growth of yellowfin tuna is very rapid; the average gain is 60 pounds in a year among tuna of commercial size in Hawaiian catches, which range from 2- to 4-year-olds. Their spawning period in Hawaiian waters is from early June to mid-September, coinciding with the season of good fishing. Big-eyed tuna, common in the Hawaiian region, were not in spawning condition, although nearly ripe females were found south of the Caroline Islands in July and August and were taken south of the Hawaiian Islands in the equatorial-countercurrent region in November. A clear difference was found between yellowfin-tuna populations of the Hawaiian area and those of the North American west coast.
Biologists, acting as official observers for the High Commissioner of the Trust Territory and for the Fish and Wildlife Service, accompanied Japanese tuna-fishing expeditions to tropical waters, to record biological, commercial, and technical features of the operations.
Shellfisheries
Observations over the past three summers have given numerous indications of a sharp decrease in soft clams on the Atlantic coast. Examination of specimens has established the presence of minute
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 321
parasites, which may have caused the mortality that in 1949 killed up to 90 percent of the clams in some parts of Massachusetts. To determine the practicability of clam farming, seed clams were planted in experimental beds in Plum Island Sound, Mass., and in five locations in Maine. Predators destroyed most of these plantings; where the predators were less abundant, the clams grew well and survival was high. Studies of the effects of raking and power dredging on hard clams in Narragansett Bay, R. I., showed little difference in their effects on the bottom or on associated forms.
Failure of oysters near Pensacola, Fla., to accumulate sufficient spawn prevented any marked success in breeding experiments. This poor season for oyster reproduction extended to Apalachicola Bay and Mississippi Sound. Production of seed oysters is the limiting factor in stabilizing the industry in Maryland. Various areas were studied to determine seed-production potentialities, and ecological features responsible for variations. The long-perplexing question concerning the source of nourishment for oysters is being attacked at Beaufort, N. C. Plankton that has been held in water in which radioactive isotopes are dissolved is given the oysters to determine the kind and amounts of food utilized.
MAINTAINING THE INLAND FISHERIES
Fishing pressure on inland waters continues to increase. A growing population, an increase in those fishing for relaxation, stream pollution, and easy access to areas where there was once a great amount of natural reproduction, have all contributed to the drain on the fishery resources. An adequate supply of game-fish stocks can be maintained in the future only by a comprehensive management program.
Service activities are directed toward meeting the greatly increased demand for fish for stocking and, at the same time, initiating programs for proper management of the fishery resources. These programs must include the management of the fisheries in great water-use developments, in the national parks and forests, and in waters near population centers.
Modernization of hatchery systems is part of the Service’s program. Congress provided funds for continuing the construction and expansion of several hatcheries in the fiscal year 1952 in order to increase the production of fishes for stocking. Construction of new hatcheries continued at McNenny, S. Dak., Millen, Ga., North Attleboro, Mass., and Pendills Creek, Mich. Enlargement and improvement of facilities was continued at Bozeman and Ennis, Mont., Hagerman, Idaho, Hebron, Ohio, Hot Springs, N. Mex., Lamar and Farnsworth, Pa.,
322 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Nashua, N. H., Tishomingo, Okla., and White Sulphur Springs, W. Va. Funds were provided for the repair of flood damages at Fairport, Iowa, Genoa, Wis., and Guttenberg and Manchester, Iowa, and to start an improvement program at the Craig Brook, Maine, station. The construction allotments were supplemented by an allotment of $135,000 for maintenance of hatcheries not included in the expansion and improvement program.
The Service propagates west-coast salmon on three watersheds, the Columbia River, the Sacramento River, and Puget Sound. Greatest emphasis is on the operations on the Columbia, where six Federal hatcheries collect eggs and rear fish to migration size. The hatcheries above Rock Island Dam are concerned with spring- and summer-run salmon. During the 1951 migration season the ladders at Rock Island Dam were ascended by more than 101,000 red salmon, the largest run of this species over the dam since counting operations began in 1933.
Federal stations on the Lower Columbia are concerned primarily with the propagation of fall king salmon. This work has expanded in connection with the Lower Columbia River Development Program. Evidencing the effectiveness of the operations, during the fall of 1951 the number of adults returning to Service spawning racks was the highest on record although the run of fall king salmon over Bonneville Dam was the low’est on record. Estimates indicate that approximately 20 percent of the fall king salmon ascending Rock Island Dam in 1951 were returning to Service hatcheries. In excess of 57,000,000 king-salmon eggs were collected at lower-river Federal hatcheries in 1951, and an increased rearing program resulted in a record production of fingerlings.
At the Quilcene, Wash., station, silver and chum salmon are well established, and the runs appear to be increasing; work with king salmon is limited at this time to efforts to establish a run in the Big Quilcene River.
The lower Columbia River program has been accelerated during the year by additional facilities at existing hatcheries and by a new hatchery at Willard, Wash. The programs of the States of Washington and Oregon have also been advanced through construction of new salmon hatcheries and rehabilitation and improvement of existing hatcheries. Both States have carried on considerable stream-improvement work. The coordinated efforts of the States and the Fish and Wildlife Service are expected to result in greatly increased production of salmon in the lower Columbia River as a means of maintaining the runs.
On the Sacramento River, both spring and fall king salmon are handled, and the rearing program has remained stable for several years. Approximately 24,000,000 salmon eggs were collected at the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 323
Coleman station this year. The production of fish at that station has increased to approximately 130,000 pounds a year. From present indications, it appears that the run in the Sacramento River is increasing.
The growing interest in sport fishing is shown by the- 16,026,699 fishing licenses sold in 1951, a new record. These licenses cost the fishermen $35,554,285, more than three times the amount for any year before 1946. A large percentage of these licenses were sold to trout fishermen, and since the license cost represents only a fraction of the money spent by them the popularity of trout fishing is evident. This popularity has resulted in a constantly increasing demand for legalsized trout for stocking heavily fished waters.
The value of this stocking has been demonstrated in a number of management areas, but since the demand for legal-sized trout exceeds the supply, the fish hatcheries must step up production of trout through expansion and improvement of facilities. Study of trout waters in National parks and forests is being accelerated to provide information that can be used to better fish habitat and food conditions.
Funds were provided in 1952 to start a rehabilitation program at the Craig Brook, Maine, station, established in 1888. The formerly important runs of Atlantic salmon no longer exist in the streams of New England, and the Federal hatchery at Craig Brook has been selected to produce the fingerling salmon needed for a restoration program for this valuable species.
The mussel- propagation project headquarters at Carterville, Ill., has been continued. The program includes studies of the life history of the pigtoe mussel, the propagation of niggerheads and sandshells in Kentucky Reservoir and Wheeler Reservoir in Tennessee, the propagation of sandshells in the White River in Arkansas, and population studies on the White and Wabash Rivers.
Demand for warm-water fishes for stocking continues at a record rate. A major factor in this demand is the annual construction of thousands of ponds, one-fourth acre to more than 100 acres in size, in a stepped-up program of soil and water conservation. Construction of large, multiple-purpose dams in almost every major river system in the Nation contributes greatly to the demand for predator species for corrective stocking. The production of pondfish was held at a record level during the year despite drought in the Southwest and floods along the Mississippi that curtailed operations at a number of warm-water hatcheries. The high rate of production was made possible by improved management at the pondfish stations and by construction and modernization of rearing facilities at a number of stations. In large water impoundments, management is becoming increasingly important, to reduce rough-fish populations and to maintain game-fish populations at a maximum. The use, in management,
324 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
of bass and pike as predators has resulted in a tremendous demand for these fishes. More emphasis is being put on the rearing of fingerling wall-eyed pike because its value as a predator has become more evident.
The production of pondfish is only a part of the warm-water program ; the program’s success depends also upon the effective stocking of fish, and the management of the fishing in ponds and large reservoirs. The Service employs a small staff of biologists who work closely with the States and other conservation agencies in the management of public waters. In cooperation with the Alabama Polytechnic Institute at Auburn, Ala., the Service continues a program whereby its employees receive training in hatchery management and farm-pond inspection and management. A training school for Federal warmwater fish-culturalists is conducted at the Service’s station at Marion, Ala. This program is providing selected employees with experience in the latest techniques in warm-water fish-culture. The training program is closely coordinated with programs for the management of public waters and farm ponds.
During the year, studies on the Sacramento River secured data on migrations, spawning numbers, and spawning success, as well as water temperatures and flows. At the pumping plant at Tracy, Calif., various types of screening devices were tested to determine the most effective screen for use in the final installation.
Fish ladders and screening devices are important in the protection and maintenance of trout and salmon in the rivers of the Northwest. The fish ladders at Rock Island Dam are regulated and operated by the Service, and all fish ascending these ladders are tabulated by number and species. This operation involves a minimum of delay in the ascent of fish over ladders, and the tabulations provide a basis for determining the productivity of the hatcheries and the extent of spawning above Rock Island Dam and below Grand Coulee Dam. Federal screening projects include the maintenance and operation of screening devices on Federal projects in Washington, Oregon, Idaho, and Montana. These screens save thousands of migrant fish each year, as the fish are prevented from entering the irrigation ditches and are returned to the rivers by means of bypasses.
The program for stocking and managing suitable waters near military reservations, rest camps, and hospital areas, to provide fishing for members of the Armed Forces and veterans, has shown considerable progress during the year. In Region 3 alone, 19 installations have been surveyed, and fish-management programs are being conducted at 9 of these. Results are similar in other regions. Designed to provide a well-coordinated fishing program for as long as is neces
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 325
sary, this work will be continued and expanded to the limit of funds and facilities available.
TABLE 1— Production of fishes and fish eggs by Federal hatcheries, calendar year 1951
Group Eggs Fry Fingerlings Fish 6 inches or over Total
Largemouth bass _ __ 1, 070,410 7,585,561 19,978 8,675,949
Smallmouth bass 414; 000 173, 965 40 588,005
Rock bass 9,510 9', 510
Warmouth .. <600 609 5,209
Bluegill 35,975,174 2,918 35,978; 092
Redear sunfish 2; 030 116 2,146
Channel catfish 60,000 90, 254 2,992 153,246
Bullhead 764,470 2,476 766; 946
Black crappie - - 97, 037 205 9< 242
White crappie 11,860 li; 860
Rainbow trout 8, 672, 028 6,353,502 1,382, 083 16,407,613
Brook trout 8i 974,070 170,000 3, 781,223 493,318 13', 41< 611
Brown trout 488; 718 1,581, 562 228', 246 5; 298,526
Cutthroat trout 15,543,943 100,000 6i 699,642 30,834 22,37< 419
Lake trout 1,401, 425 4,611 1,406,036
Dolly Varden 14,542 <226 19,768
Steelhead trout __ 75,174 119; 438 464 195; 076
Atlantic salmon 76,000 246,450 1,993 324,443
King salmon 24,306,587 50,40b 113 74,707; 700
Chijm salmon 3,249^ 848 16,056,072 490,625 19, 796; 545
Red salmon ' 250; 000 ' 154,384 1,403,707 59,413 li 86L 504
Silver salmon _ 2,500 597,896 2,588 602,984
Sebago salmon 18,593 18, 593
Kokanee 528,000 667, 904 1,19< 904
Buffalofish 131,500 48,000 179,500
Flounder 91,496,900 91,496, 900
Grayling 546,203 ' 506', 742 23,533 li 076', 478
Lobster 233; 800 ' 233; 800
Yellow perch 178,425 178,425
Pike _ - 210,000 18,950, 280 5', 300 91 19,165; 671
W alleye 1,145,000 2,400,000 32,361 3,577, 361
Pollack 2, 625,000 2; 625; 000
Total 66,916,897 134,388, 762 118,863,202 2, 286,201 322,455,062
TABLE 2.—Land acquired or in process of acquisition for fish-cultural stations, fiscal year 1952
[In acres]
State and station Acquired by purchase Pending title conveyance
Kentucky; Frankfort _ _ __ _ __ __ 114
Massachusetts* North Attleboro _ - - __ __ 268
Michigan’ Pendills Creek _ _______ 85
Mississippi* Meridian _ - - 7
Tennessee* Erwin _ - __ - - - 1
Washington: Little White Salmon - - ___________ 34
Spring Creek _____________________ 4
Willard - 40
Total __ _ ____________ __ __________ 170 383
RESEARCH IN WILDLIFE MANAGEMENT
The Cooperative Wildlife Research Unit program, now in its seventeenth year, is carried on jointly by the Service, the Wildlife Management Institute, and the land-grant colleges and conservation departments of 16 States and the Territory of Alaska. The program facilitates the training of wildlife personnel, conducts research, pro
326 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
motes education, and provides technical assistance to conservation agencies. During the school year of 1951, 249 wildlife students were graduated from Unit schools. Publications by Unit members, on a wide variety of topics, numbered 160. The Federal expenditure of about $129,000 for this cooperative program was matched several times by State and private funds, manpower, and equipment.
Studies of the mourning dove show that this popular migratory game bird has increased slightly in some of the Southeastern States during the past year, from a relatively low population, but a corresponding decrease on the northern breeding grounds, which supply much of the shooting in the South, has probably offset any gains. Winter and spring studies of woodcock, Wilson’s snipe, and clapper rail, indicate that these species have changed very little in abundance during the last several years. Investigations are in progress by the Section of Distribution of Birds and Mammals to find ways of measuring changes in the populations of these migratory birds more accurately, and to determine the relative importance of factors that control their abundance.
Bird-banding facilities of the Service are being further mechanized by the installation of equipment to help service returns and extract statistical information from the files. These facilities are utilized by researchers of many State agencies and educational institutions. Investigations resulted in two major publications this year, an illustrated book on the birds of Newfoundland, and a monograph on the coyote.
Studies shed new light on long-standing wildlife problems—among them, the effects of deer, rodents, and birds on regeneration of coniferous forests; the benefits, in higher productivity, from adequate harvesting of deer; and various census techniques to measure wildlife abundance. Data have been collected from State game agencies for the annual inventory of big game and kill. As wildlife problems are better understood, closer appraisal of accomplishments is needed to guide research effectively, and such a resurvey is under way.
Study of rodent repellents continued at the Patuxent Research Refuge and the Denver Wildlife Research Laboratory. Major emphasis has been upon developing methods of applying active materials in the manufacture of paperboard and* other packaging materials. Vinyl films containing amino-trinitrobenzene complexes have resisted rat attacks for more than 6 months under conditions in which unprotected films were penetrated in 10 to 20 days. Repellent materials for minimizing losses to field crops by rodents and other mammals have been evaluated, and recommendations for use released in the form of leaflets. The synthesis of a candidate rodenticide of the anticoagulant type has been completed and is now in pilot-plant production.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 327
On areas laid waste by fires and destructive logging, reforestation by direct seeding rarely succeeds, because mice, ground squirrels, and other small rodents feed upon the seed. The Denver Laboratory, in association with forest-research groups throughout the United States and Canada, has developed a treatment for tree seeds that largely protects them against rodent loss. Field trials with both helicopter-and ground-distributed seed, were made in the fall of 1951. Despite formula imperfections, an encouraging stocking of new seedlings was obtained from seed exposed to rodent attack for 6 to 8 months. Extension of field trials with improved techniques is planned for 1952. The saving in cost over the transplanting of nursery-grown seedlings is appreciable.
For fighting troops the rodent-borne-disease problem can be very serious. After 2 years’ intensive study, the Denver Laboratory is prepared to make field trials of helicopter-distributed baits for rodent control. Aerial distribution permits rapid coverage of disease-infected areas. In developing formulas for aerial distribution, consideration was given to protection of humans, domestic livestock, birdlife, and other beneficial wildlife.
Predatory animals in National Parks create many-sided problems. A recent study indicates the feasibility of retaining coyotes as beneficial animals in the parks while preventing their depredations in surrounding localities. More than 400 coyotes were ear-tagged in and near Yellowstone National Park, and returns disclosed that many of the animals, particularly the younger ones, leave that sanctuary. Such migrants can be adequately controlled beyond the park boundaries.
A 4-year study of bird damage to rice in eastern Arkansas is near completion. Field work has revealed that the rice birds, while seriously destructive locally, are neutral or beneficial to the Arkansas rice-growing industry over large districts. Intensive study of the birds involved (chiefly blackbirds) included source of the birds, their feeding activities on farm pests as well as on rice, use of frightening devices, chemical repellents, and reductional control of the enormous midwinter roosts.
Studies have been continued on parasites and other disease factors of Canada geese wintering at the Pea Island National Wildlife Refuge in North Carolina. This study involved field work on Pea Island during the winter, and nutrition and laboratory studies on penned geese at the Patuxent Research Refuge. Harmful effects of parasites have been found related to the protein level of the diet as well as to habitat and migration.
The second major wildlife disease study at Patuxent is of trichomoniasis, a throat disease in doves, which has continued to cause severe losses in small areas of the Southeastern States. An improved
328 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
method of diagnosis and maintenance of infected material for laboratory study has been devised.
The farm-wildlife study at Patuxent and in southeastern States is building a fund of information valuable at this time in connection with the large land-management program of the Soil Conservation Service. Development of two experimental farms at the refuge is nearly completed. A conservation farm is now in full operation under a plan drawn up by the Soil Conservation Service to test living fences of multiflora rose, field borders, and other soil-conservation practices. During the next few years information on the effect of these measures on wildlife will be made available to wildlife technicians and farmers. Although present experiments with herbicides for checking the spread of multiflora rose will not be completed until 1953, studies indicate that a combination of 2,4-D and 2,4,5-T will produce a complete kill.
Investigations in the Southeast include tests of quail-management practices on large plantations. Bicolor-lespedeza strips appear valuable where hunting is carefully regulated, but since they concentrate quail during the hunting seasons they may not be suitable for publichunting areas.
Studies of the effects on wildlife of chemical control of insects during the summer of 1951 along the Middle Atlantic coast have indicated that DDT spray is harmful to the commercially important blue crab, but that there is little evidence of direct mortality of mollusks and birds. The study is continuing.
Waterfowl studies at Patuxent have included study and demonstration of habitat management, methods of controlling undesirable plants, and propagation and introduction of useful plants. Cash Lake has been improved for waterfowl by drawing down water levels in alternate summers and restoring them in the fall. Heavy crops of marsh annuals have thus been made available.
Intensive studies were made in Maryland and Delaware on control of Hibiscus and Phragmites, two aquatic weeds. Hibiscus can be controlled chemically by the use of 2,4-D or by two underwater cuttings; Phragmites responded to successive diskings or underwater cuttings, but is resistant to chemical treatments. Much of the habitatmanagement program is being summarized in a manual on weed control in waterfowl habitat.
Pheasant and quail studies are attempting to determine protein and mineral requirements of these species and the part played by nutrition in distribution and general welfare. Results of the past year indicate that the calcium-phosphorus balance may be important in limiting the range of the pheasant in some areas.
The search for foreign game birds that might thrive where native species are not productive has been continued. With the cooperation
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 329
of the Wildlife Management Institute and the State game commissions in Arizona, New Mexico, and Utah, more than 750 wild chukar partridges, trapped in Turkey, have been released on selected test areas. Particular attention is being given to the choice of species that will not be destructive to agricultural crops nor compete seriously with native American birds. Shipments of chukars were quarantined and tested for disease by the Bureau of Animal Industry at Clifton, N. J., before release to cooperating States.
PUBLIC USE OF NATIONAL WILDLIFE REFUGES
The acquisition, development, and management of the national wildlife refuge system continued along normal lines. The anticipated increase in Duck Stamp funds for land purchase will not be felt until the coming year. At the same time, demands for the public use of refuge lands increased, in some instances before development was completed.
Refuges are managed on a multiple-use basis, so far as this can be accomplished without defeating the primary objective for which each was established. This has permitted an increasing public use of refuges for recreation. It is estimated that there were 3,442,917 visitors on the national wildlife refuges in 1951. More than a third, or 1,309,362, enjoyed fishing; while less than 40 of the 275 refuges provided 222,470 visitor-days of hunting. Opportunities were afforded for picnicking, swimming, sightseeing, and birdwatching, and these, together with business and official use, amounted to nearly 2 million visitor-days.
Many a refuge, because of its remote location, provides the only recreational opportunities in its part of a State. This is particularly true of the 59,000-acre Wichita Mountains Wildlife Refuge which serves as a recreational area for southwest Oklahoma and northwest Texas, with an estimated 668,900 visitors in 1951. The famous Easter Sunrise Service was attended by 56,000 persons. Motoring and sightseeing are most popular. Fort Sill, which is adjacent, uses the refuge as its primary out-of-doors playground. The number of visitors has increased annually, as have problems of cleanup, patrol, fire prevention, and general maintenance items not covered in current appropriations. The Bitter Lake National Wildlife Refuge and the nearby Bottomless Lakes State Park provide the only areas suitable for outdoor recreation in their part of eastern New Mexico. In addition, the refuge provides fishing and picnicking opportunities for several thousand of the personnel at the Walker Air Force Base.
Lake Darling on the 32,000-acre Upper Souris National Wildlife Refuge has proved one of the best fishing spots in North Dakota. On
330 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
opening day the crowd of anglers, picnickers, and sightseers was estimated at 5,500. Many northern pike weighing over 20 pounds were caught. Similar enthusiasm for fishing was demonstrated on opening day at Lake Andes National Wildlife Refuge in South Dakota. Both dikes were crowded with cars, and as places were vacated others moved in. It was estimated over 5,000 persons fished on the lake that day.
The 49,500-acre Tennessee National Wildlife Refuge represents another type of fishing. On favorable week ends during the height of the spring crappie-fishing season, 18 to 20 thousand fishermen use the extensive shoreline of the middle section of Kentucky Reservoir on the Tennessee River. Similar uses are made of the 34,000-acre Wheeler National Wildlife Refuge, Ala., which is upstream, and in addition there is heavy commercial fishing, including the harvesting of mussels, both for food and for shells for buttons. A study of fishing activity on the Chautauqua National Wildlife Refuge, Ill., disclosed that 80 percent of the fishermen traveled 50 miles or more to fish on the refuge—200 traveled more than 200 miles each.
The Atlantic-coast refuges attract an unusually large number of bird observers. Back Bay, Chincoteague, Bombay Hook, Blackwater, Monomoy, and Parker River National Wildlife Refuges were visited by numerous bird clubs. Over a period of years, a great variety of birds and rare species have been seen on these refuges. Weekly tours were conducted and a nature trail was developed on the Seney National Wildlife Refuge, Mich., in order to acquaint tourists with the refuge program. Similar tours were conducted on the Salton Sea National Wildlife Refuge, Calif.
On the 19,000-acre Fort Niobrara National Wildlife Refuge, Nebr., convenient public access was provided to the buffalo and elk exhibition pastures. Many persons expressed pleasure at seeing buffalo near at hand. Similar pastures have been provided on the Wichita Mountains Wildlife Refuge, Okla., and the 18,500-acre National Bison Range in Montana.
The training of Explorer Scouts was inaugurated on the 329,000-acre Okefenokee National Wildlife Refuge, Ga. During the first 3 months of 1951, several encampments of 15 to 100 scouts, lasting 3 days, were made on Billy’s Island. A total of 725 scouts and leaders participated.
Visitors from more than half the States and from five foreign countries registered at the 47,000-acre Aransas National Wildlife Refuge, Tex. Most were there during the winter months when all the surviving whooping cranes were on or near the refuge. The winter concentrations of geese on the 65,000-acre St. Marks National Wildlife Refuge, Fla., attracted many visitors, as they did also on large refuges in North Carolina, South Dakota, and Michigan.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 331
Five national and two sectional dog trials were held on Crab Orchard National Wildlife Refuge, Ill., during 1951. While these trials attracted only a small part of the 395,132 visitors, they demonstrated a type of use already adapted to several other refuges.
A special bow-and-arrow season for deer was provided on the 65,000-acre Kentucky Woodlands National Wildlife Refuge. Similar hunts have been held on refuges in North Dakota and Wisconsin. During an archery hunt on Blackbeard Island National Wildlife Refuge off the coast of Georgia, 26 hunters secured 11 deer, several raccoon, and one 6-foot rattlesnake.
Waterfowl hunting adjacent to several refuges has become populai and presents several problems. Some 12,500 persons hunted outside the Sand Lake National Wildlife Refuge in South Dakota. Many stopped at refuge headquarters for information. Somewhat the same situation exists at Horicon National Wildlife Refuge in Wisconsin. Goose hunting in that vicinity is now described as the best in the State.
Grazing, farming, timber-cutting, haying, and trapping are encouraged as management tools to improve the habitat for wildlife. These operations are conducted annually by several thousand permittees. On the 61,000-acre Mud Lake National Wildlife Refuge in Minnesota, the harvest of clover seed, a crop of honey from bees placed on the refuge under permit, and the taking of furs by local trappers netted substantial revenue to both the Government and permittees. Products or resources surplus to the needs of the various areas are sold or otherwise disposed of, and 25 percent of all receipts are returned to the affected county in lieu of taxes. In the fiscal year 1951, receipts from these sales amounted to well over a million dollars.
Harmful encroachments on refuge lands are increasing. They are of two general classes. The first involves the use of lands rather than of resources. Bombing areas, artillery ranges, and other military purposes constitute the most extensive use; requests for road, drainage pipeline, and electric-transmission-line rights-of-way are less disturbing. Requests for military use of these lands pose the greatest problem with respect to encroachment. This Service has entered into, or is now processing, 23 agreements with the Defense Establishment, involving the use of 20 refuges and 1,372,040 acres of land. This figure does not include a considerable acreage which, owing to security restrictions, cannot be determined accurately. Five agreements concern the use of big-game ranges, two cover Alaskan areas, and most of the rest involve migratory-waterfowl refuges within the United States.
In many instances these agreements have been worked out to satisfy defense needs, while permitting continuation of essential wildlife
226396—53---22
332 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
management. In others, there have been high-handed trespass and complete disregard for the wise use of the affected natural resources. In some instances installations have actually been completed before permission for use was requested. Too often the belief is expressed that refuges are little different from unoccupied public lands; that use by the military must be on their own terms, without regard to other important uses, and often presupposing a transfer of jurisdiction.
TABLE 3—Land acquired or in process of acquisition for wildlife conservation purposes under the Migratory Bird Conservation Act, by exchange, and by other acts of Congress, fiscal year 1952
[In acres]
State and refuge Acquired Pending title conveyance
By other than purchase By purchase Total
Arizona: Cabeza Prieta _ _ _ 1 1
California: Colusa - _ -- 560
Merced - 2,562 2,562
Sutter - _ _____ 1,005 2, 259 9, 410
Colorado: Monte Vista _
Florida: Chassahowitzka. ._ _. 2,342 2, 342
Loxahatchee . _ _ 1J17
St. Marks _____ _._ 8
Georgia: Okefenokee __ __ 62
Piedmont 267
Idaho: Deer Flat __ . _ . 13 13 59
Iowa: Union Slough _ _ __ 30 30 2
Upper Mississippi __ _. 62
Kentucky: Kentucky Woodlands. 1 1 93
Maine: Moosehorn. . 190 190 33
Maryland: Chincoteague 320
Minnesota: Rice Lake _ _ 86
Upper Mississippi . . . 57 57 465
Mississippi: Noxubee- 695 695 851
Missouri:* Mingo . -__ ._ 67 67 23
Swan Lake 88 88
Nebraska: Fort Niobrara __ _ _ 640
New Jersey: Brigantine _ 7 7 707
New York: Wertheim. _ . _ 8
North Dakota: Lake Zahl. 745
Lower Souris . _ _ 2
Oklahoma: Salt Plains 80
Oregon: Cold Springs. . _ 215
Malheur .. 3,618 3,618 80
Upper Klamath _ __ _. 4, 378 51
South Carolina: Carolina Sandhills _ . .
Virginia: Chincoteague 11 11 154
Washington: Little Pend Oreille . _ 1,111 680
Turnbull _ 19 329 348
Willapa _ __ _____ 265 265
Wisconsin: Horicon _ _ 20 20 113
Upper Mississippi 119 119 60
Total __ __ __ _ _ 714 9,720 10,434 25,706
This Service will continue to extend fullest cooperation in making refuge lands available for defense purposes by means of a depart
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 333
mental permit, supplemented by a memorandum of understanding executed by the respective Secretaries, rather than by actual transfer of the lands.
The exploitation of resources, particularly oil and gas, presents a constant threat to wildlife and its habitat and one that can be expected to increase rather than diminish. This Service has taken the firm position that oil and gas operations must be excluded from refuge lands so far as possible. Experience indicates conclusively the basic incompatibility of oil and gas operations and waterfowl management. The intensive use and development which of necessity accompany oil and gas operations preclude the maintenance of marsh areas in a natural, balanced condition, thereby limiting if not destroying the value of such habitat for migratory waterfowl.
ADMINISTRATION OF FEDERAL STATUTES FOR PROTECTION OF FISH AND WILDLIFE
This year the enforcement staff was increased by 21 additional game management agents, located in areas where they were badly needed. Increased apportionment of revenues from the sale of duck stamps made the addition possible. Results showed clearly how great the need is for more protection to the wildlife resources the Service is obligated to maintain.
With an estimated 20 million Americans hunting, pressure on the Nation’s wildlife resources is greater than ever before. In spite of advances in conservation education and a growing awareness of the need for protection, game-law violations have risen as the hunting pressure has increased.
A system of temporary assignment of agents to trouble spots was further developed to meet the enforcement problems. This system increased the enforcement effort in several areas during critical periods, which helped prevent violations and utilized available manpower to the utmost.
It has long been recognized that field agents familiar with game management are an invaluable information-gathering facility. During the past year a formalized system of reporting game conditions was improved upon, so that the Service received current data on a more extensive basis than in previous years.
Although the primary responsibility of a United States game management agent is law enforcement, an important duty is that of assisting and advising farmers on control methods to alleviate crop damage by migratory birds. In connection with the crop-depredation problem, a member of the Service’s Branch of Game Management met with wildlife officials and citizens of Canada and explained crop damage
334 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
abatement methods practiced by the Service, and furnished them with a pamphlet of instructions on control devices and their application. As a result our neighbors have indicated that they intend to adopt several of the suggestions, which will aid both countries in approaching a mutual problem on common ground.
The Branch of Game Management was completely reorganized. The Section of Waterfowl Investigations was transferred to it from the Branch of Wildlife Research; a unit of management in addition to enforcement was created at Central and Regional Office levels; and lines of responsibility for units and for individuals were defined. The reorganization in effect puts all matters pertaining to waterfowl regulations within this Branch, assuring more efficient administrative control than was possible in the past.
Two special investigations were made to carry out our undercover program for exposing and apprehending individuals engaged in market hunting.
TABLE 4—Summary of penalties imposed for violations of wildlife-conservation laws, fiscal year 1952
Act
Migratory Bird Treaty Act________________________________
Migratory Bird Conservation Act__________________________
Migratory Bird Hunting Stamp Act-------------------------
Lacey Act________----------------------------------------
Bird Reservation Trespass Act_______________.____________
Bald Eagle Act___________________________________________
Upper Mississippi River Refuge Act_______________________
State laws, cooperative prosecutions_____________________
Total_______________________________________________
Convictions Fines and costs Jail sentences
673 36 65 1 1 1 2 4,150 $39, 440.26 1,200. 02 1,943. 50 125. 00 10. 00 50. 00 Days 185 1
120
112,492.20
4,929 155,260. 98 306
TABLE 5.—Cases of violations of the Migratory Bird Treaty Act disposed of, fiscal year 1952, and cases pending on June 30,1952
Disposition
Number
Pending
Number
Conviction.................
Dismissal_______________
Nol-pros___________________
Closed without prosecution.
Found not guilty___________
Closed, by death___________
Total________________
From preceding year___
New cases_____________
Total____________
Disposed of during year.
Pending at end of year..
383
781
1,164
915
249
COOPERATIVE CONTROL OF PREDATORS AND RODENTS
Protection of the Nation’s food crops from destructive rodents, and its livestock and game from predators, is often an economic necessity. Improved techniques to prevent such losses are an investment that brings direct savings to farmers and industry as well as better hunting for the sportsman.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 335
Wise use of natural resources includes protection of grass and other forage essential to production of meat and conservation of water and soil. On the western range, an area of more than three-fourths of a billion acres, there are annually available millions of tons of forage once consumed by rodents which are now kept under control in many communities by Service-approved projects. These savings, and control of predators, have added millions of dollars to the value of livestock and game resources. As an example, in Montana an estimated annual livestock saving of more than 3^ million dollars, a decided increase in deer, and a trebling of antelope production, all resulted from average annual expenditures of $175,000 for control operations over the past 6 years.
Funds for the operations in Montana and 33 other States are in a ratio of about 20 percent Federal money to 80 percent cooperative—an outstanding example of local public support for a Nation-wide activity. The work is accomplished under 53 major agreements, chiefly with State departments of agriculture, livestock, and game, which contribute funds to supplement those raised by a great many county governments and private organizations. Since the Service is responsible for control on vast areas of public land, many of the projects involve those areas as well as private property. The Federal assistance now available does not permit further expansion of the work on a cooperative basis without sacrifice of existing programs. Need for assistance has continued to increase, however. An example is shown in figure 1, which shows the present situation and the Federal aid given with existing facilities in the control of severe rabies epidemics among foxes and other wildlife.
Figure 1.—Rabies in wildlife, 1951-52.
336 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
There is greater need than ever for assistance in food sanitation, specifically the exclusion of rodent filth from grain. Action to enforce provisions of the Food, Drug, and Cosmetic Act, as respects agricultural commodities for human food, has caused grain handlers and others to seek increased technical assistance of the Fish and Wildlife Service. It is estimated that approximately half the wheat raised for cereal products is unfit for human consumption because of contamination by rodents, birds, and insects. Corn is often much filthier— in one extensive area only 3 percent was free from rodent pellets. Rice, sugar, popcorn, dried fruit, and dairy products are less contaminated, but large quantities are condemned annually.
Food industries, farm organizations, and government agencies have united in an intensive long-range food-sanitation program. During the year the Service helped many groups seeking to prevent contamination at its principal sources. Numerous projects were begun to reduce rodents on farms, and thousands of copies of educational leaflets in a series “Grain Is Food—Keep It Clean,” were distributed to farm groups and grain-handling organizations. Even greater intensification of the work will be required in the future if the public is to be guaranteed food free from filth.
The use of aircraft in hunting coyotes and w'olves is typical of how the Service is extending its limited aid as efficiently as possible. This method was used last year in Alaska and in Idaho, Montana, North Dakota, Oregon, South Dakota, and Wyoming. A total of 2,312 predators were shot by 20 pilot-gunner teams. The most successful day’s flight was in cooperating with the Idaho Fish and Game Commission when 9 hours and 10 minutes flying time yielded 78 coyotes and 2 bobcats. This was an unusual situation where coyotes were concentrated on antelope range in soft deep snow. The plane used on this job was operated at a cost of 6.4 cents per mile throughout its ownership by the Service.
An outstanding job of wolf control, using aircraft, was on the Arctic slope of the Brooks Range, Alaska. From a base at Umiat, three planes flew 300 hours, sighted 334 wolves, and made a known kill of 259, plus several unconfirmed. This project was to protect the caribou herds which have been rapidly diminishing, largely through wolf depredations. Before control, the Umiat herd had a calf ratio of only 7.8 percent as compared with 15.1 percent in the Nelchina herd, where wolf control has been conducted for 3 years.
Aircraft were also employed for various assignments in Utah, Nevada, and Florida, the last being a cotton-rat control program in four southern counties, chiefly on sugarcane. Costs have now been lowered from 96 to 18 cents an acre, using zinc phosphide on machine-diced sweetpotato baits. In a small Florida test of hand-placed warfarincornmeal bait, as developed in Hawaii, versus plane-distributed zinc
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 337
phosphide-grain bait, the former was more effective but cost $32.55 a mile, as against $1.96 for the latter. Cotton-rat control is now generally recognized as a necessary part of Florida cane culture.
Warfarin is replacing older rat and mouse poisons in many areas, and its effectiveness and relative safety permit general expansion of rodent control, even though costs are 30 to 40 percent greater. Rat populations and damage are noticeably decreasing over large areas, being reduced 75 percent in some localities. The Service is aiding cities and counties in starting permanent rat-control programs which keep rats at a minimum through sustained maintenance of warfarin feeding stations at all food outlets. Demonstrations and meetings to train people in modern rat control were held this year in over 600 communities ; educational exhibits were maintained at 43 fairs and conventions; and 44 radio and video programs on control were done by Service personnel.
The value of coyote control was proved in several areas. In western Nebraska, the Farm Security Administration formerly refused to make loans on untended bands of sheep because of coyote risks; there is no such restriction since the Service has conducted cooperative coyote-control programs. No herd in any cooperating county has required a herder this year. In eastern Colorado, a record of lamb production showed an average shipping weight of 65 pounds each from bands tightly herded to guard against coyotes, and 80 pounds from bands where coyotes were controlled enough to permit open herding and more natural feeding with less harm to range forage. In Utah the use of 1080 is credited with preventing an annual loss of nearly 2^ million dollars in lambs.
The recorded catch of predatory animals included 50,661 coyotes, 1,633 wolves, 13,476 bobcats and lynxes, 714 stock-killing bears, and 197 mountain lions. In rodent-control operations 11,665,266 acres of land were treated for the elimination of prairie dogs, ground squirrels, pocket gophers, jack rabbits, field mice, cotton rats, kangaroo rats, porcupines, woodchucks, and moles. In addition, 353,677 premises were treated in cooperative campaigns for the control of house rats. Special equipment and supplies used in predator and rodent control, and 319,265 pounds of rodent-bait materials were distributed to cooperators throughout the country by the supply depot at Pocatello, Idaho.
FEDERAL AID TO STATE PROJECTS FOR THE RESTORATION OF FISH AND WILDLIFE
Fisheries restoration
This year has seen the rounding out of a system of Federal aid to the States for fish and wildlife restoration, with the inauguration of
338 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the fisheries counterpart to the 14-year-old wildlife-restoration program. Authorized by the Dingell-Johnson Act of the Eighty-first Congress (approved August 9, 1950, 64 Stat. 430), this new Federal-State fisheries-improvement program has already begun to produce valuable results.
Simplified administration of this complementing cooperative activity has been achieved through a modest expansion of the Branch of Federal Aid. Experienced fishery technicians have been added to the Branch, and rules and regulations, including project standards, have been drawn to encompass both the established wildlife activities and the new fisheries work. The year’s operations give evidence of the effectiveness of this arrangement for handling the Federal administrative responsibilities.
Excise taxes on specified types of fishing tackle amounted to $2,929,250.71 in the fiscal year 1951. Of this, $234,340, or 8 percent, was used for administration of the act. Allocations were made of $75,000 to Alaska, $25,000 to Hawaii, and $10,000 each to Puerto Rico and the Virgin Islands. The rest, $2,574,910.71, was apportioned to the 48 States. During the first year’s operations the States and other beneficiaries obligated $1,499,863.26 for their initial efforts. The funds remaining will be available for expenditure until June 30, 1953, as the act provides that funds may be obligated at any time within 2 years after their appropriation. By June 30, 1952, 42 States and Alaska, Hawaii, Puerto Rico, and the Virgin Islands, had funds obligated on 154 approved projects.
Emphasis in the new program has been on collecting the facts needed to put sport-fish management on a basis of scientific information rather than opinion. In this respect the program parallels the early experience in wildlife restoration. Ninety-four projects were aimed at solving problems through investigational activities, and 63 percent ($945,911.87) of obligated funds were devoted to work of this sort. Several of the projects were for gathering general, State-wide information where it has not been possible for the States to accumulate such basic information in the past. Arkansas, for example, has cataloged the amount and quality of its fishing waters in more than half the counties of the State. Other surveys are aimed at more specific problems, or are confined to smaller areas. New Hampshire is studying the possibilities for fishery protection and development so that the State will have facts on which to base requests for consideration in water-development projects.
A prevalent handicap in fish management is the lack of up-to-date information on the characteristics of fish populations in specific bodies of water, or on the growth and behavior of a particular species of fish in a region. Studies designed to gather such information, and to find
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 339
ways to improve the quality and increase the amount of angling, are the subjects of projects in 24 States. To illustrate, Montana has carried out a State-wide fish-stocking program for many years. The results of only 1 year’s work have shown that in a number of the streams checked, marked revision of the planting program was needed to meet the requirements of the present population and fishing pressure. Improved utilization of hatchery-reared stock, with more fish available from overtaxed hatcheries to go into needy waters, is an immediate result. Until the Federal Aid to Fish Restoration program was created, Montana had funds for no more than a few token surveys and was not in a position to maintain an efficient fact-finding program. This type of activity, developed as a supplement to the regular State program, and previously neglected for lack of finances, is doubtless the result envisioned by the authors and sponsors of the Dingell-Johnson Act.
Several States have begun creel census studies to measure the take of fish by anglers and, where the census covers an entire State rather than a few waters, to provide indices to fish-population changes and trends in fishing quality.
Four States, recognizing the importance of their tidal waters in sport fishing, have begun projects dealing with marine or anadromous species. In California, extensive investigations of the life history, migration, and relative importance of the yellowtail have been started, because of a continuing decline in abundance of this oceanic fish. New Jersey is studying the importance of its salt-water sport fishing, and a similar project in California is focused on surf fishing. New York has begun studies of the weakfish, long a favorite of salt-water anglers. Maine is conducting tests of the practicability of reestablishing runs of the Atlantic salmon on Mount Desert Island.
Rough fishes—the carp, gar, and similar species which make little contribution to sport or food—have long been blamed for inferior fishing. Six States are carrying out studies designed to show the relation of “trash” species to game-fish production, and to find ways to exploit a generally wasted resource. In Georgia, Kentucky, and North Carolina this work is in certain streams of low productivity, while in Florida and Arizona the operations are in warm-water lakes.
Research in Montana and New York seeks improvement of trout culture, including prevention and treatment of disease, improvement of hatchery diets, and selective breeding of disease-resistant strains.
Seven States obligated funds for experimentation in techniques of habitat management or in improvement of technical equipment. New Jersey is testing various chemicals, many developed since World War II, in an effort to find a way to control aquatic weed growth in ponds. In recent years the collection of fish by electric shocking apparatus has
340 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
become an acceptable and efficient management procedure, but efforts to adapt the apparatus to different types of waters have been hampered by lack of understanding of electrical systems, and by variation in current characteristics of different commercial generators. New York is completing a study of this problem which should clear up much of the uncertainty among fishery biologists, and provide workers with simplified testing devices hitherto not readily available.
In the last decade, public recognition of the material benefits from small multiuse ponds has grown tremendously. The increase in the number of farm ponds—now estimated at more than a million—and the need for maintaining fishing at a high level has brought demand for better pond-management techniques. There is still much to be learned about suitable species, proper stocking ratios, effective fertilization formulas and procedures, and effective regulation of fishing. Kentucky, Massachusetts, Montana, New York, North Carolina, and Oklahoma are all engaged in studies of one or more questions about farm-pond management as related to conditions in their sections of the country.
Apart from the investigational phases of the program, concrete results are being obtained through a variety of projects aimed at creating new fishing waters, or restoring fish habitats that through the years have deteriorated to the point of uselessness. Of obligated funds 24 percent ($360,667.61), have been allotted to 21 projects of this type. Pennsylvania is engaged in the construction of a 32-acre fishing lake in the recreation-shy region near Pittsburgh. Arizona and Colorado have similar projects, and Maryland has begun construction of a series of small fishing ponds throughout the State. California is clearing log jams and other obstructions to increase utilization of salmon and steelhead spawning streams, and several States are reclaiming fishing waters by poisoning worthless fish populations and restocking with valuable species. Wisconsin has under way a project to enhance stream fish habitat by improving land-use practices in the watersheds of 12 streams. Preceded and accompanied by careful evaluations of the effectiveness of the work, in terms of angling success and physical change, this project should make a significant contribution to the understanding of one aspect of the broad soil-conservation problem.
Wildlife Restoration
As a result of increased revenues from the excise tax on sporting arms and ammunition, accomplishments under the Federal Aid in Wildlife Restoration Act broke all records.
Continuing as a major program feature was the development of food and cover for farm game, the major source of hunting recreation.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 341
To assure adequate habitat for quail, pheasant, rabbits, and other species in the face of increasing hunting pressure and intensified farming, 36 States made tree, shrub, and herbaceous plantings on private farmlands. Cooperative agreements were executed with landowners to protect these investments. Field borders of lespedeza and living fences of multiflora rose were emphasized in the Southern and Central States. To the northward and westward, tree and shrub planting on eroded and nonarable areas and on sites set aside for windbreaks • was stressed. Indiana, for example, entered into 574 leases with landowners and planted more than four million multiflora rose on those lands. A number of woodlands were fenced to prevent the destruction of wildlife food and cover by grazing stock.
On State owned or controlled refuges and public shooting grounds, habitat was improved for upland game by planting food patches, by thinning and clearing, and by prescribed burning in timber stands unproductive of wildlife. Forty-one States constructed roads, trails, firebreaks, bridges, and storage buildings to facilitate management operations.
Thirty-eight States sought to remedy the inroads of agricultural drainage on water fowl habitat by restoring and creating marshes. New York’s outstanding success with its small-marsh program has prompted other States to follow suit. The Empire State has built 92 marshes totaling 346 acres. Mississippi, Tennessee, Kentucky, and Alabama improved food conditions on large water reservoirs by farming and sharecropping draw-down areas. Nesting boxes were erected in seven States where an absence of tree cavities was limiting woodduck protection. Utah built a new diversion dam for the Farmington Bay Waterfowl Refuge and fought the botulism menace by hospitalizing sick ducks and burying dead ones.
Overuse of western range lands has resulted in big-game starvation in many localities. In addition to reducing herds to the range-carrying capacity, seven western States are employing newly developed range-re vegetation techniques. Arizona, California, and New Mexico continue to build guzzlers and other watering devices to improve arid game ranges. By distributing salt at the proper time and place, it is possible to attract game onto the summer range at an early date, thereby easing the pressure on critical winter ranges. Montana alone distributed 143,000 pounds of salt for this purpose.
Twenty-seven States restocked vacant game ranges by trapping and transplanting from areas of surplus. Deer, turkeys, beaver, antelope, and raccoons were the major species relocated. Texas not only supplied its own needs, but also furnished white-tailed deer to several southern States. South Dakota and Wyoming wild-turkey plantings
342 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
have increased to the point where the original releases are being trapped for stocking other suitable locations.
The purchase and lease of lands for wildlife-management areas decreased somewhat from recent years. Although 28 States engaged in this activity, the acreage declined to 100,880 purchased and 98,049 leased. Eighteen new purchase areas were approved, with the emphasis on waterfowl marsh and big-game winter range.
Investigational projects to furnish facts about current game and range conditions and to develop and test new techniques were in operation in 45 States, Alaska, Hawaii, Puerto Rico, and the Virgin Islands.
An outstanding example of accomplishment has been the 3-year cooperative mourning-dove study by 10 States in the Southeast, which ended this year. Cooperating States adopted uniform objectives and reporting methods, thus permitting direct correlation and evaluation of results on a regional basis. This venture has made it possible to secure basic information for regulating season length and bag limits of a highly mobile and economically important species. Maj or pro j ect accomplishments include development of methods for estimating breeding populations, predicting trends in production, and aging of birds; establishment of arrival and departure dates of flocking doves; determination of migration patterns; and outlining hitherto unknown local shifting about of birds within a State.
Realizing their stake in the management of waterfowl, the States have banded together by flyways to cooperate with the Service on collecting production and migration data. While some of the States previously have made valuable contributions, during this year many more banded together and are using Pittman-Robertson funds to underwrite this valuable work.
Since 1945 the States have placed major emphasis on the establishment of farm-game habitat. Now that these developments are reaching the stage of utilization, many States have begun studies to evaluate and, if necessary, modify their restoration methods.
Research accomplishments were made available to technicians and to the general public through the publication of 388 articles and bulletins by the various State game departments.
. j-1 '
RIVER BASIN DEVELOPMENT AND WILDLIFE NEEDS
Of 121 reports by the Service on water developments planned by Federal agencies or private interests under Federal permit, 42 were on Corps of Engineers projects, 24 Bureau of Reclamation, 8 Department of Agriculture, 8 special developments, and 39 on power projects requiring license from the Federal Power Commission. Five reports
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 343
were on special studies to provide data on the take by hunters and fishermen.
A progress report, Fish and Wildlife Conservation in River Basin Development, was released on the coordination of fish and wildlife interests with water-development programs. It describes the effects of water developments on fish and wildlife, the need for protecting refuges and fish hatcheries which would be affected by water developments, and accomplishments of the Service, in cooperation with engineering agencies, in protecting fish and wildlife at water-development projects. Tables list the projects on which National and State wildlife refuges and management areas have been proposed, and an appendix lists all water-use projects, by States, on which the Service has prepared reports. There is a tabulation of over 1,000 reports prepared during the past 7 years.
On March 21, identical bills (H. R. 7177 and H. R. 7178) were introduced in the House of Representatives to authorize works to develop and furnish water supplies for waterfowl management, Lower San Joaquin Valley, Central Valley project, Calif. They were designed to accomplish the most urgent of the recommendations contained in the Department’s report of October 1950 on the grasslands area and vicinity. Hearings were held on the bills during June by a subcommittee of the Committee on Interior and Insular Affairs, and a revised bill (H. R. 8144) was endorsed, as amended, by the committee just as Congress adjourned.
On April 16 a bill, S. 3020, was introduced in the United States Senate to provide for the development and operation by the Secretary of the Interior of a wildlife management area at Grays Lake, Idaho. Endorsed by the Department of the Interior, this bill, if enacted into law, would set aside 55,000 acre-feet of active capacity in Palisades Reservoir for the replacement of Grays Lake storage now used to provide water to the Fort Hall Indian Reservation. This will permit the stabilization of water levels in Grays Lake and the restoration of what was once one of the best natural marsh areas in the western United States.
At the request of the Service, a fish-passage facility is under construction as a part of the Holyoke power project on the Connecticut River in Massachusetts. Developed by the Holyoke Water Power Co. and the Service, this new-type device, consisting of collection facilities and a pressurized pipe, is designed to permit upstream migration of shad, an important game and commercial fish. The shad run of the 1952 spring season provided the first test of the new device, and a few shad, the first in 105 years, passed over the dam along with other fish. Alterations to improve the passage are under way.
344 ☆ annual report of the secretary of the interior
The Service and the Bureau of Reclamation are cooperating in a departmental program for waterfowl development within the Klamath Basin in Oregon and California. This program will include recommendations with respect to lands which should be devoted exclusively or in part to migratory waterfowl and to lands which should be placed in reclamation homesteads. At present there is a conflict in views of the two agencies regarding the disposition of lands within the Executive Order boundaries of the Lower Klamath Lake and Tule Lake National Wildlife Refuges in the lower part of the Basin which will shortly be resolved.
The program of developing wildlife habitat in connection with multiple-purpose reservoirs is continuing, with initial plantings in the spring of 1952 at the newly constructed Swanson Lake in Nebraska and at Cedar Bluff Reservoir in Kansas. The program is designed to reduce wildlife losses from inundation of essential habitat. Among other developments, those started in 1950 at Enders and Medicine Creek Reservoirs in Nebraska and Angostura Reservoir in South Dakota are already being used by the pheasants, grouse, and other species.
On November 28, 1951, the Federal Power Commission issued a license to the city of Tacoma, Wash., for construction of a hydroelectric power project (No. 2016) on the Cowlitz River. Issuance of the license had been opposed by the Department of the Interior and the State of Washington Department of Fisheries and Game in view of the probable adverse effects on the salmon resource. The State of Washington has now taken the issue to the courts. The license, however, did require the licensee to construct and operate such protective devices as may be prescribed by the Commission.
A similar case is the Pelton project (No. 2030) on the Deschutes River in Oregon. The Federal Power Commission issued a license on December 21, 1951, despite opposition by the Department of the Interior and the Oregon State conservation agencies because of expected losses to the valuable salmon runs. The State of Oregon has taken the issue to the courts. Here, too, the licensee is required to construct and operate such protective devices as may be prescribed by the Commission.
On June 16, a representative of the Service, acting for the Department of the Interior, presented a statement at a Federal Power Commission hearing at Spooner, Wis., on the proposed power project (No. 2097) on the Namekagon River. The Service, the Department, and the Wisconsin Conservation Commission opposed the project because of the detrimental effects it would have on the unique floatfishing for smallmouth black bass and on the scenic beauty of the stream. A decision has not yet been announced by the Federal Power Commission.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 345
In cooperation with the States, the Service continued its wet-land inventory which includes the location of marsh, swamp, and overflow lands, classification with respect to plant ecology, and evaluation to show existing or potential contribution to meet present and future wildlife-recreational needs of the Nation. The completed wet-land inventory will have far-reaching practical applications. Principally, it will point out the high-priority wildlife areas—ones where wildlife values should be given top consideration before any drainage to promote some other type of land use is proposed. Land-use agencies and conservation interests will be alerted to the need for dedicating such lands to wildlife use.
At the request of the Trinity Bay Soil Conservation District, the Service developed a plan for carrying excess waters from upland-drainage projects through the coastal marshes to the Gulf, while safeguarding or even enhancing wildlife resources of the marshes. The plan included recommendations to provide agricultural drainage without appreciably affecting the water level of the marshes. Such a cooperative program can set the pattern for similar developments throughout the Gulf Coast region.
The second year of investigations in North Dakota, South Dakota, and Minnesota to determine the relative value of “potholes” (small water and marsh areas) as breeding habitat for waterfowl produced significant results. A preliminary report shows that the prairie pothole area within these three States produces about 3 million ducks, with the larger Canadian portion producing a correspondingly larger number. Loss of potholes by drainage in the three-State area is placed at about 2 percent a year. Such losses, if continued at this rate, would eventually mean severe reduction of essential breeding ground, accompanied by an inevitable decline in the duck population. Negotiations are under way with the Department of Agriculture to resolve the agriculture-wildlife conflict and to formulate policies recognizing the interests of both the farmer and the duck hunter.
INTERNATIONAL COOPERATION IN CONSERVATION
International Conservation Agreements
International cooperation in conservation continued, with development of new agreements and implementation of existing ones.
On May 9, 1952, representatives of the United States, Canada, and Japan signed the International Convention for the High Seas Fisheries of the North Pacific Ocean. On July 4, 1952, the United States Senate ratified this agreement, which provides much-needed machinery for protection of the great fishery resources off the west coast of North America, and for amicable settlement of differences arising from the
346 ☆ annual report of the secretary of the interior
exploitation of the fisheries of the North Pacific Ocean by the three nations. The two Houses of the Japanese Diet ratified on June 17 and July 5,1952. It is hoped that Canadian approval will be obtained soon so that the agreement can be brought into force. An officer of the Fish and Wildlife Service was a member of the United States delegation to the conference at which this agreement was formulated.
In September 1951, representatives of 20 nations and several international organizations met in Lima, Peru, to discuss the desirability of establishing a Latin American Regional Fisheries Council to encourage cooperation among Latin American States in the solution of a multitude of problems in the fisheries of the area. The agreement formulated at the conference has been transmitted to the governments concerned for their approval. The agreement will enter into force when five governments give notice of acceptance. It is hoped that the first meeting of the organization can be held in the fall of 1952. An officer of the Fish and Wildlife Service was a member of the United States delegation to the conference at which this agreement was formulated.
The International Commission for the Northwest Atlantic Fisheries held its second annual meeting at St. Andrews, New Brunswick, Canada, in the first week of July 1952. Since the first meeting of the Commission, two additional signatory Governments have ratified the Convention which established the Commission, bringing the total of ratifications to seven: Canada, Denmark, Iceland, Norway, Spain, the United Kingdom, and the United States. Of the three signatories which have not yet ratified the Convention (France, Italy, and Portugal), Portugal is expected to take action in the immediate future. All of the signatory governments except Italy were represented at the meeting, as was the Food and Agriculture Organization of the United Nations and the International Council for the Exploration of the Sea. At this second meeting, the Commission, in addition to completing its organization, laid the foundation for an approach to the solution of technical problems; and approved a recommendation for a restriction upon gear used in the haddock fishery off the coast of New England. The gear regulation will enter into force when accepted by the United States and Canada. Dr. J. L. Kask, Assistant Director of the Fish and Wildlife Service, who is one of three United States Commissioners, was elected chairman of the Commission for the next year.
The Inter-American Tropical Tuna Commission, established by a Convention between the United States and Costa Rica, met for the third time on September 1, 1951, in San Diego, Calif. This Commission was organized in July 1950, and has made notable progress toward its goal. A scientific staff has been acquired and investigations
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 347
have begun. The Commission’s fourth meeting is scheduled for August 1952. Dr. J. L. Kask is one of three United States commissioners.
The International Whaling Commission held its fourth annual meeting in London in June 1952, at which time the Commission reviewed whaling operations during the past year, and adopted certain amendments to the schedule of the 1949 Convention for the Regulation of Whaling, with a view to more effective regulation of the industry. The United States is represented on the Commission by Dr. Remington Kellogg, Director of the United States National Museum, United States commissioner, and Dr. J. L. Kask, deputy United States commissioner.
Continuing work begun in 1924, the International Pacific Fisheries Commission met in January 1952 at Seattle, Wash., to consider halibut regulations for the 1952 season and research programs for the new fiscal year. Before his resignation from the Federal service in April 1952, Milton C. James, Assistant Director of the Fish and Wildlife Service, was one of three United States commissioners. Appointment of a replacement for. Mr. James is pending.
The International Pacific Salmon Fisheries Commission met in September 1951 at Horsefly, British Columbia, Canada, in January 1952 at Seattle, Wash., and in June 1952 at Ottawa, Canada, and Washington, D. C. At these meetings the Commission approved regulations for the Fraser River sockeye salmon fishing industry for the 1952 season, and considered scientific investigations for the new fiscal year. The Director of the Service is one of three United States commissioners.
International Technical Cooperation
Under the Point 4 Program, the Service and the Technical Cooperation Administration of the Department of State continued to give assistance to underdeveloped countries of the world. There was a notable increase in the number of countries to which the Service has assigned experts, from two countries in 1951 to eight in 1952.
In Mexico, there is need for both increased production of fishery products and for effective management of existing fisheries. The shrimp fishery (with boats, fishing gear, and freezing equipment purchased in the United States) during the short space of 10 years has rocketed from relative unimportance to first place, with an annual catch of about 40 million pounds. Now, because of fluctuating abundance of shrimp, the problem of wise management of this resource is of primary importance. The fishery mission to Mexico has aided in the establishment and development of the Institute de Pesca
226396—53---23
348 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
del Pacifico. The purpose of this Institute, which is financed by the fishing industry and the Mexican Government, is to provide the information necessary for management of the marine-fishery resources. The Mexican Government and the Rockefeller Foundation are developing a project for rural fish culture. The fishery mission is assisting in this project, which has the merit of producing fish in the areas of greatest need for protein foods.
The fishery mission to Peru was continued, with two experts in residence throughout the year and a third for 6 months. Plans for a marine biological laboratory have been set aside for the present, but progress has been made in design of a vessel for exploratory fishing and for oceanographic investigation. The fishery technologist made further progress in training the staff of canning inspectors and in developing methods for low-cost preservation of fish. It is expected that the large fishery terminal in Lima will be in operation in the near future. In June 1952, the chief of the Peruvian agency concerned with the administration of fish and wildlife was awarded a grant for travel in the United States for 3 months. This grant will offer an opportunity for extended observation of research and management activities of Federal, State, and private organizations in the United States.
At the request of El Salvador, an expert was assigned to assist in the development of the marine fishery of that country. Early in 1952, a purchasing mission visited the United States and obtained a fully equipped trawling vessel. The vessel has made a number of exploratory cruises, and preliminary reports on the catch indicate the possibility of developing a fishery of real significance to El Salvador. It is expected that a marine biologist will be added to the staff in the near future.
Liberia is in need of a large increase in available proteins of animal origin. For a number of years, it has been planned to develop the marine-fishery resources of Liberia, and recently the Service assigned a technician to assist in that development. There are a number of indications that the fishes off the coast can be exploited much more than they have been in the past and that there is ample opportunity for marketing of fresh fish on the coast and of prepared fish in the interior of the country. There is need for an integrated industry giving adequate facilities for capture, preservation, transport, and marketing. It is expected that a fresh-water technician will be assigned to Liberia early in the fiscal year 1953.
In April 1952, a fishery expert was sent to Israel to survey the facilities of the fishing industry and to determine needs for expansion. Israel already has a well-developed fishing industry, and it is expected that the problems which face it will be solved in considerable part within the next few months.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 349
Iran has two large fisheries: one of the Caspian Sea, the other of the Persian Gulf. A fishery technologist was recently sent to Iran to assist in developing low-cost methods of preservation, so that fishery products can be made available readily in areas far removed from the points of production. This project was activated so recently that it is not possible to report on the outlook for success.
The Service recently sent a fishery expert to Lebanon to assist in the development of the fishery of the Mediterranean Sea along the Lebanon coast. According to the best information available, the Mediterranean is not a highly productive area, but it is expected that improvement and increase in facilities for capture will result in a notable addition to the available proteins for the diet of the people of Lebanon. It appears that opportunities exist for development of the inland fisheries, particularly farm ponds.
India, a large country with a long and diversified coast line and a large population, is without adequate diet. From December 1951 through March 1952, a fishery expert of the Service made an extensive survey of the existing industry of India and the possibilities for further development. According to present plans, there will be a program of development of the industry to provide for greatly improved and expanded facilities. A Service technician is being given a longterm assignment in India to supervise procurement and employment of facilities, and to coordinate the several parts of the program.
A number of qualified foreign students were trained in the United States during the year, under Government-sponsored programs. Cuba, Finland, Pakistan, and Peru sent students for a year of training; specialists and visitors from many parts of the world came for shorter periods. These programs of instruction for foreign visitors are an important addition to the technical missions to other countries; they provide a corps of technicians to continue work initiated by the missions.
NATIONAL PARK SERVICE
Conrad L. Wirth, Director
Fiscal year 1952 in the far-flung National Park System was a good deal like any one of the preceding 6 years since the end of World War II. Use of the parks expanded again; nearly 37,000,000 visitors were recorded. Old and young still thrill at the sight of a geyser, a glacier, a bear cub in its native haunts; the Liberty Bell, the home of an early president, a battlefield, or the ruined village of prehistoric Americans. In providing for their enjoyment of these diverse sights, the National Park Service has also discharged its primary duty of keeping the 173 areas comprising the National Park System essentially unimpaired.
Though the intrinsic worth of the parks and monuments is intact, fiscal 1952 was no banner year. In the national park system, “tight” budgets for both development and operation have prevailed now for more than a decade and although the visitor total has nearly doubled during this period, too many facilities for them remain unimproved—inadequate, obsolete, uneconomical of operation, maintained in usable condition only with great difficulty.
Patch-on-Patch Poor Policy.—From the standpoint of good public business, the long-deficient budgets are a deeply serious matter. Be it a scenic highway or a park building, or a private sidewalk or a home, patch upon patch is poor and wasteful practice. Scarcely less objectionable is service to the public which, because of inadequate personnel, has to be diluted to the point that few visitors are able to realize from it the satisfaction it is intended to provide. Certainly the immediate result of inadequate financial support is to subtract seriously from the people’s enjoyment of the parks and contribute to the gradual destruction of the areas. Through it, we are risking the loss of Americans’ pride in the great places of their country. The scenic and historic parks are roots of patriotism; they nourish our love of country, understanding of our past,belief in our future. At no time in these trying years, amidst a changing world, have we so needed, and so greatly used,
351
352 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the places that provide this nourishment of body and mind and spirit. It is the universal instinct of man to return to Nature for refreshment, and to bolster his beliefs by looking back upon his own history.
Here in America, these deep-seated longings are answered particularly in the national parks, and answered on as high a plane as obtains for any people anywhere in the world. Their value is unmeasurable in kilowatt hours, in board feet, or in dollars and cents. We only know— and we know it surely—by faith in our own civilization, that whatever America puts into her national parks is a sound and reasonable investment, even if there were no cash return at all. Yet this social return is supplemented, and importantly, by an economic return as well. In many parts of the United States, travel is a major economic factor, and one greatly motivated by the existence of such travel objectives as the parks. Travel patterns are often complex, and the inducements to travel hard to segregate; but there is no leader of this third largest industry who would not shudder to think of a situation in which the parks would pass out of existence. Though nothing should be permitted to impair their inherent values, there should be full recognition of their importance as business assets and of the need of providing both plant and personnel for their effective and satisfactory functioning. They create a return to Federal and local governments and support many businesses important in the local and regional economy.
With the concurrence and encouragement of the Department, the Service has continued to plead the case for strengthened budgets; we believe that a steadily growing number in Congress appreciate that the maintenance needs of the parks are real, not imaginary or exaggerated; that public health, safety, education, and morale justify a stand against continued deferment of improvements.
The National Park Trust Fund.—Concurrently with its effort to obtain appropriations commensurate with needs, the Service is launching efforts to build up the National Park Trust Fund, authorized in 1936 to receive and expend donated funds. The limited resources of this fund have proved most helpful on a number of occasions. A larger fund, not supplanting, but supplementing, regular appropriations, could contribute importantly to the furtherance of useful projects to which donors would give and from which they would receive lasting satisfactions. We are hopeful, and confident, that it can be greatly enlarged.
To Round Out the System.—There has long been' wide agreement that the national system of parks, monuments, and historic sites should be limited to areas of national significance. However, careful appraisal of the present system leads to the conclusion that certain additions remain to be accomplished before it can be considered appropriately inclusive. There are historic places of large meaning not yet
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 353
included; there are types of characteristic and distinguished American landscape not represented. Of the latter group, the most conspicuous type still lacking is extensive seashore, uncluttered by shoddy development and, to as great a degree as possible, in natural condition. After several years, during which the prospect of establishment seemed to be receding farther and farther, the Cape Hatteras National Seashore Recreational Area, as a result of a donation from private funds, and the equally important contributions of the State of North Carolina, appears now to be within the grasp of the American people.
The Service feels a primary responsibility for suggesting practical ways and means of rounding out the system before areas desirable for inclusion in it are modified or impaired beyond redemption or before developments make acquisition prohibitively expensive. Three advances during the past year marked real progress in this direction. One was the completion of four of the five groups of condemnation suits, involving Everglades National Park lands, to which the United States had acquired title the previous year by declaration of taking. Another was the acquisition of famed Linville Falls in North Carolina for addition to the Blue Ridge Parkway—one more of the gifts to the National Park System made by John D. Rockefeller, Jr. The third was the designation of the Virgin Islands National Historic Site, embracing the most distinguished and historic portion of the town of Christiansted, on St. Croix Island.
Directors Change; Policies Are Unchanged.—During the calendar year 1951, the National Park Service had three directors. When Newton B. Drury’s resignation became effective on April 1, he was succeeded by Arthur E. Demaray, close associate of each of the preceding directors. When he retired in December after more than 48 years of Federal service—more than 34 of them as an employee of the National Park Service—he was succeeded by the present director. Accompanying these changes came questions as to whether they would mean changes in the policies of the Service. As a matter of fact, National Park Service policies are not expressions of the personal viewpoint of individual directors. They have evolved, become more definite and more firmly established over a period which began more than 80 years ago, with the establishment of Yellowstone National Park, 44 years before there was a National Park Service. Farseeing citizens and citizen groups have shared in the task of shaping them. There has never been a time when any threat to the integrity of the National Park System would produce stronger opposition than today; never a time when any tendency to weaken those well-established policies, either by legislation or administrative decision, would be more widely and forthrightly criticized. It is this strong and informed citizen support which is, and will remain, their greatest safeguard.
354 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Related Activities.—The fields of park and recreation planning, and of scenic, scientific, and historic preservation, are extensive, touching every level of government. Several land agencies in this and other Departments are involved. The emergency work of the Civilian Conservation Corps during the thirties pointed up the need for broad, but not compulsive, coordination of park and recreation activities, though it did not mark the beginning of it. That dates back to the earliest years of the Service when its first Director, Stephen T. Mather, and his assistant, Horace M. Albright, later Director, and the Department helped to foster the closely allied State park movement. The Park, Parkway and Recreational Area Study Act of 1936 was a logical development of all the Service’s previous relationships with other park and recreational agencies; the studies conducted in accordance with its authority further revealed the inescapable interrelationships of all agencies working in the park and recreation field. More recently, the vast programs, under which great river basins, usually involving several States, are being studied and proper use of their diverse natural resources is being determined, continue to fchow the interdependence of one phase of land utilization upon another.
We are convinced that the cooperative work in which the Service has participated has needed to be done. It came into the work naturally ; it has an obligation to follow through. There is every reason to expect that it will grow healthily, while it broadens and strengthens the whole field of park conservation.
Mississippi River Parkway Survey.—The collaboration of the Bureau of Public Roads, in the Department of Commerce, and of the National Park Service, in the Department of the Interior—each staffed and experienced in planning in a certain field—in making, and reporting on, the 2-year Mississippi River Parkway survey, is an example of cooperative and effective effort of which we are proud. Working with 10 river States and with a 100-man citizens’ planning group, the two agencies evolved a new, practical and economical way to apply parkway principles along the 2,000-mile course of the river. It would produce not a national parkway to be administered by the Service but an interstate development under the well-established Federal-aid-to-highways program. The plan contemplates that the Service would provide consultation service to the Bureau of Public Roads, turnabout of the agreement under which the Bureau, for nearly three decades, has provided basic engineering in the development of major roads within the National Park System.
Dinosaur.—The proposal to construct dams at Echo Park and Split Mountain in Dinosaur National Monument continued to engage attention during the year.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 355
The Service continues to hope that agreement on alternative plans can be reached which will leave this extraordinary possession of the American people in essentially unmodified condition.
Before embarking on a detailed account of the year’s events, this seems a suitable place at which to quote a profound statement by Allen Sproul, president of the Federal Reserve Bank of New York, in Yosemite Nature Notes:
In my present work I am chief executive officer of an institution with over $12 billion of assets, with over $5 billion of gold belonging to foreign governments and central banks in its custody, and with many more billions of unissued currency and securities in its vaults. There are about 4,000 people to help me with the job. I had something more precious in my care when I was the “lone ranger” stationed at the Mariposa Grove of Giant Sequoias in 1914. In my ignorance, I felt little weight of responsibility then, but I feel it now when 1 go back to the grove to worship in the shade of the giant Sequoias. I thank God they are still there.
THREATS TO KINGS CANYON AND GLACIER
In February, notice was published of the applications of the city of Los Angeles to appropriate water from the South and Middle Forks of the Kings River for power production. These include both the Tehipite and Cedar Grove sites, just outside of Kings Canyon National Park, and several sites within it. They have been protested by the Secretary of the Interior, the Sierra Club, the Fresno Chamber of Commerce, and others.
In March, the Secretary requested the National Park Service and the Bureau of Reclamation to arrange for a joint survey of the natural resource development possibilities of the Middle and South Forks of the Kings, outside the park. An agreement on the study was reached early in April, and it will be conducted as soon as necessary appropriations are available. In common with many conservation organizations, the Service hopes that alternatives may be found for the Cedar Grove and Tehipite sites and that the latter may ultimately be included in Kings Canyon National Park.
A new threat to Glacier National Park came in the proposal of the Anaconda Copper Mining Co. to build an aluminum reduction plant near the south border of the park. There seems to be no question that noxious fumes from such a plant could affect seriously the plant and animal life of the park. Through former Director Horace M. Albright, who represented the Service in discussions of the situation with company officials, it is learned that the company has chosen one of the least objectionable sites and that it intends to install protective devices.
356 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
IMPROVEMENTS
With a backlog of needed projects amounting to $140,000,000 for buildings and utilities, $201,000,000 for roads and trails, and $202,413,-000 for parkways, the Service received $1,295,000 for buildings and utilities, $2,500,000 for roads and trails, and $5,825,000 for parkways. Of the parkways funds, $4,200,000 were for the Baltimore-Washington Parkway, of highest priority in the defense road network of the Nation’s Capital.
Two factors prevented using even the limited construction funds to fullest effectiveness. They had to be distributed in relatively small amounts to a large number of areas, with resultant costly supervision and construction. The low personnel ceiling permitted few day-labor projects, yet it was difficult and occasionally impossible to get contractors to bid on small jobs. The short construction season in many areas is a further handicap.
Communications.—FM radio surveys were completed at Sequoia, Kings Canyon, Yosemite, and Shenandoah National Parks, and Dinosaur National Monument. Yellowstone is next on the list for such a survey. FM systems were completed at Acadia and Big Bend National Parks and Organ Pipe Cactus and Death Valley National Monuments. The system at Glacier National Park will be completed this fall.
Standard radio specifications prepared by the Service are now being widely used by other Department bureaus. Other agencies also use its certification of radio equipment; increasingly other bureaus of the Department ask its help in preparing bids for radio equipment.
Unfortunately, personnel ceilings have prevented the hiring of personnel to maintain the Service’s radio systems, which are only as good as the maintenance they receive. Some means of employing qualified maintenance forces must be found if these systems are to function satisfactorily.
Good progress is being made in interesting telephone and power companies in supplying commercial service to field areas. Outstanding was the successful negotiation with the Rural Electrification Administration to supply power at Big Bend National Park. We are convinced that in many areas the Service can obtain commercial power and telephone services more cheaply than they can be provided with its own facilities.
Park Roads.—Though there are 15,000,000 more automobiles on the highways of the United States than before World War II, that fact is not reflected in appropriations for roads in the National Park System. Of $201,000,000 needed for road development, 87 percent would be for replacement projects, to enable the System to meet the demands of modern traffic.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 357
Contracts for replacement roads, 55.5 miles in length, and costing $2,192,571, were completed in the 1952 fiscal year. These included both 1950 and 1951 projects such as the Clingmans Dome and Newfound Gap roads in Great Smoky Mountains, the Northeast Entrance Road at Badlands, the North Entrance and Boquillas Roads at Big Bend, the Zion-Bryce Approach Road, Route 1 at Lassen Volcanic, the Kings Canyon Road, and the Heart of the Hills Road in Olympic. Road replacements under construction at the end of the year represent a cost of $4,988,392 for 114.2 miles of road. Started in previous years, they were 77 percent completed. Two projects—for Yellowstone and Olympic—with $586,000 programmed, remain to be placed under contract.
Road and Trail Maintenance.—There are 6,242 miles of roads, including parkways, and 7,924 miles of trail in the National Park System requiring annual maintenance. The Service maintains roads at extreme elevations and under extreme climatic conditions from 280 feet below sea level in Death Valley to 13,000 feet above in the Rockies and the Sierras; from the hot and arid regions of the desert, to the swamps of Everglades National Park, and to the rigorous winters of Alaska and the Rocky Mountain region. This great variety of conditions results in abnormal demands for maintenance and abnormal maintenance costs. Annual snowfall of 50 to 60 feet in such places as Crater Lake is common. About $400,000, or 10 percent of maintenance funds, is spent annually to remove snow, with no permanent benefit to road conditions. Less than 4 percent is spent for professional services.
During the past year, 125 miles of roads and 210 miles of trails have been added to the systems in the parks and monuments. These additions have resulted from completion of construction projects, transfer of roads in newly acquired areas, adjustment of mileages in existing areas, and transfer of State and county roads within areas administered by the Service. As of June 30,1949, capital investment in the highways of the system was $191,000,000; the maintenance estimate for 1953 is 2.2 percent of that investment.
Parkways.—The only funds appropriated for parkways in 1952 were earmarked for the Baltimore-Washington, Suitland, and Natchez Trace Parkways. Thus further progress was, for the time, eliminated from the five other authorized parkways—Blue Ridge, Chesapeake and Ohio Canal, Colonial, Foothills, and George Washington Memorial. All of these are badly in need of work to be done in order to protect the Federal investment already made and to provide for the public safety.
On the Washington-Baltimore Parkway, 3.5 miles of grading and two grade separation structures were completed at a cost of $1,281,456.
358 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Construction contracts on 12 other projects were in progress, to cost $3,660,631. Because of the importance of this parkway in the National Capital’s defense highway system, work on it is being pushed as rapidly as possible.
On the Blue Ridge Parkway, with the completion of paving on a 42-mile unit between the James River and U S 60 near Roanoke, a highly scenic section through the Peaks of Otter area was opened to traffic. Completion of 6.1 miles of grading and surfacing connects U S 19 at Soco Gap, N. C., with the newly constructed Heintooga Ridge road in Great Smoky Mountains National Park. The two projects cost $974,146.50. The paving, now in progress, from the Mount Mitchell entrance road to U S 70 near Asheville, will open up the spectacular Craggy Gardens rhododendron area. On this and on the grading of another 5 miles near Asheville, $940,958.50 is being expended.
Under a $120,202.50 contract, paving of the Colonial Parkway through the Williamsburg Tunnel and construction of a 0.9-mile connection to Tazewell Hall Avenue in Williamsburg have been started. Right-of-way for the remaining 12-mile section between Jamestown and Williamsburg has been acquired.
With the completion of paving of 19.4 miles connecting with Mississippi Highway 12, a 64-mile section of the Natchez Trace Parkway was opened to traffic, extending to U S 51, near Ridgeland. Grading of 8.2 miles in Tennessee was also completed. The cost of these two projects was $1,211,267.
A contract was awarded at the end of the year for paving a 4.9-mile second lane of the Suitland Parkway between South Capitol Street, District of Columbia, and Silver Hill Road, Maryland. The remaining 4.1 miles of this defense route between the District of Columbia and Andrews Air Base is still to be paved.
No lands have yet been provided by the State of Tennessee for the Foothills Parkway; therefore, no work has been done on the main route. However, construction is well under way on two bridges and a culvert on the proposed south-bound lane of the Gatlinburg-Banner Bridge section of the Gatlinburg-Caney Creek spur connection to the main line of the parkway.
With no funds, and additional right-of-way needed, no work has been started on the Chesapeake and Ohio Canal Parkway. Several local groups have voiced opposition to its construction.
Major Building Construction.—Despite labor shortages and restrictive controls on certain materials and equipment, the year saw good progress, within the strict limits of available funds, in the Service’s authorized building construction program. In the critical building area of the New York City vicinity, contracts amounting to
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 359
$160,000 were let for restoration work on Castle Clinton; $25,000 was spent on rehabilitation of the Zenger Memorial room at Federal Hall Memorial; a contract for $157,000 was awarded for construction of six residences and related work, for employees at Statue of Liberty National Monument. The west wharf and the new concessions and public service building were completed and put in service; the old concessions building and comfort station were demolished. When the two old duplex residences are demolished and the old dock piling removed, the major work of rehabilitating Bedloe’s Island will have been completed.
In addition to building construction projects mentioned elsewhere, some of the most important undertakings are a new Lake Mead National Recreation Area administration building in Boulder City, now building; the contact station at Everglades National Park; contact station and utility building at Ridgeland, on the Natchez Trace Parkway; and much-needed residences at Lake Mead and Millerton Lake, Grand Canyon, Big Bend, Zion, Everglades, Mount McKinley, Glacier, Great Smoky Mountains, Adams Mansion, and a number of national monuments. The construction program includes other structures such as comfort stations, contact stations, utility buildings, fire lookouts, etc.
Soil and Moisture Conservation—Approximately 3,900,000 acres of the lands administered by the Service have been badly eroded or seriously depleted by erosion and prior misuse. The “problem acreage” needs protective or corrective work which, it is estimated, would cost about $4,317,450. Of this, more than $1,685,000 is needed for immediate correction alone of areas having severe and critical erosion.
The 1952 appropriation carried $91,200 for this work.
A happier picture is presented with respect to lands leased for agricultural use along the parkways and in historical areas, primarily as a maintenance measure. The conservation requirements of permits issued in Region One result in an annual investment in liming, fertilization, and other soil and moisture conservation practices by permittees of more than $250,000. Merely to maintain the 13,000 acres as open fields would cost the Service $80,000 a year for mowing alone.
HISTORY AND ARCHEOLOGY
The American appetite for history where it was made and for the sites of prehistoric interest shows no signs of abatement. During the travel year that ended last September 30, 13,893,398 visitors were recorded in the historic and prehistoric areas administered by the Service. Despite their numbers, it is estimated that approximately 70 per
360 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
cent of them received personal assistance from Service personnel in gaining insight into their country’s history.
Encroachment and Boundary Problems.—The irregular and inadequate boundaries of many of the historic areas administered by the Service constantly pose problems of protecting them from undesirable encroachments. These seem to have been especially numerous during the past year.
In the case of a particularly significant small piece of land adjoining Colonial National Historical Park, Va., refusal of the owners to sell and preparation by one of them to build a house, compelled the Service to resort to condemnation, a step strongly endorsed by the public and leading patriotic and civic organizations. The suit is still to be tried.
The threat of commercial developments to the New York Monuments erected on the Manassas Battlefield is probably averted by the action of the New York Legislature which appropriated approximately $50,000 so the Service could purchase the desired lands for addition to the national battlefield park.
Chalmette National Historical Park, site of the Battle of New Orleans, now divided into two major parts, is threatened with a great industrial development on intervening private lands. Not only would that be unsightly, but it would make it almost impossible effectively to convey to visitors the story of the battle.
For the moment at least, a serious threat to the Adams Mansion, in Quincy, Mass., seems to have been averted. The street in front of this historic home was to have been widened and converted into a through traffic artery. Not only would this have produced a major change in the surroundings but the vibration caused by heavy traffic would have endangered the stability of the house.
Carter’s Grove, an eighteenth-century plantation mansion associated with leading Colonial and Revolutionary figures, was threatened with encroachment by a railroad line which the Army planned to construct for training purposes. This estate is in private ownership, but its inclusion in Colonial National Historical Park—when and if means are found to accomplish that—has been authorized by Congress. The Service joined with numerous patriotic organizations in persuading the military to find a different solution to their needs.
Restoration, Stabilization, and Rehabilitation of Historic Buildings.—The official designation of historic sites and structures does not automatically assure their stability; they deteriorate regardless. Restoration is low in priority among processes of protection and interpretation, but it is occasionally the wise thing to undertake.
While funds for rehabilitation and stabilization have been small, some noteworthy accomplishments have been possible. The work of
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 361
saving the historic sutler’s store at Fort Laramie National Monument is nearing completion, after stabilizing the walls, placing new concrete footings, and repairing the interior. The old water wheel and blast machinery at Hopewell Village National Historic Site were restored; for the first time it is possible to interpret the operation of a blast furnace to visitors. At Independence National Historical Park Project, rehabilitation of two historic residences was completed, and is nearing completion for a third. These will be utilized to house project personnel. Repointing of the massive walls of the Castillo de San Marcos, Fla., continued and these are now stabilized. Similar needed repointing is being done at nearby Fort Matanzas National Monument. At Fort Pulaski National Monument, Ga., several casemates have been rehabilitated to house exhibits, and some masonry repointing has been done; moisture control in the casemates remains an unsolved problem.
The roof and gutters of the ante-bellum Beauregard House at Chalmette National Historical Park were repaired; it is boarded up until the house can be restored as an administration and reception center. The Schuyler House, Saratoga National Historical Park, underwent considerable repair and repainting. Situated several miles from the battlefield, it is to be administered by patriotic groups in Schuylerville as a house museum. Important repairs were also required at the Hawkes House, Salem Maritime National Historic Site; at the Adams Mansion; and at Hampton National Hospital Site, Md. At Hampton, a number of the majestic trees which have lent so much to the charm of the site were blown down during a recent severe storm.
The foundations of the early Colonial Governor’s house at James-town, in Colonial National Historical Park, were excavated and stabilized; the west wing of the Ambler House ruin was also given stabilizing treatment.
Some prehistoric ruins also needed attention. The most notable work included comprehensive stabilization of the west (main) pueblo at Aztec Ruins National Monument, N. Mex.; continued work of the same sort at Kin Kletso (Yellow House) in Chaco Canyon National Monument, N. Mex.; and a long start on two notable ruins in Wupatki National Monument, Ariz.
Assistance in Safeguarding America's Historic Heritage.—The President, the Congress, other Federal agencies, State agencies, and patriotic organizations and individuals have all made numerous calls on the Service for assistance either in appraising the historic values of various sites or in preserving them. Studies were made of 36 places at the request of the President or Congress. These ranged from mysterious Dighton Rock, Berkeley, Mass., carrying an inscription believed to be by the Portuguese navigator Cortoreal, dated 1511, to
362 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the John Dickinson House in Dover, Del., to the grave of Sacajawea, Indian heroine of the Lewis and Clark Expedition, and to the memorial site in Brooklyn where 256 Maryland soldiers, killed in the Revolution, lie buried in unattractive surroundings. Such studies require intelligent research and the dispassionate weighing of historical records.
Patriotic organizations, State officials, and individuals pleaded for aid in the interest of preserving 48 places of historic interest. While it is not always possible immediately to suggest means of preservation or even to prevent loss, in a heartening number of instances it was possible to help.
Other Federal agencies asked assistance in studying the historical, archeological, and recreational resources of Alaska, the Virgin Islands, Hawaii, the Saipan District, Guam, and Wake Island. Following on-the-ground investigations by two Service employees—a land planner and an archeologist—they formulated recommendations to the High Commissioner for the Trust Territories concerning preservation and use of such resources in the Territories.
Approximately 120 bills were introduced in the Eighty-second Congress in the interest of historical conservation likely to affect the Service’s program. Of these, 38 related to established or proposed areas; 36 to 28 memorial projects; 11 to national cemeteries; 6 to riverbasin programs; and 29 were of miscellaneous nature involving 25 different projects. Collaborative aid to the President, the Bureau of the Budget, and the Congress was given by the Service in connection with all of these. In many cases, the advice and opinion of the Service saved the Government considerable sums by giving sound advice adverse to projects which, if approved, would cost large amounts for development and administration.
Historic and Cultural Preservation in Time of Wdr.—The Service’s History Division, at the request of the Department of State, agreed to assume leadership in advising on matters relating to a draft of an International Convention for the Protection of Cultural Property in the event of armed conflict. Subsequently it participated in discussions with agencies of the Departments of State and the Army, in an advisory capacity, on a proposed Unilateral Declaration on the Protection of Cultural Property in the event of armed conflict. This group, with representatives of the Smithsonian Institution, National Gallery of Art, and National Archives, conferred on the various questions that had arisen in connection with this task. Though it was recommended that representatives of the United States attend the July meeting of experts in Paris which is to make a final draft of the convention, it was expected that only two observers from the United States would attend.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 363
Historical Research.—The, past year has been notable both for the quantity and the quality of research in history, carried on both by Service personnel and by others at the instance of the Service. Perhaps the most significant has been the program conducted at Independence National Historical Park Project, which requires a tremendous amount of research. Though much of it has been carried on by Service historians assigned to the project, its scope has been greatly extended through cooperative programs with the graduate faculties and students at the University of Pennsylvania and Bryn Mawr College. More than 30 graduate students are now completing studies which will meet requirements for advanced degrees and at the same time will give the Service the benefit of their research findings.
Space does not permit a listing of the very large number of historical research projects launched or completed, relating either to existing or prospective historical areas in the National Park System. In addition, a significant reconnaissance of the historical and archeological resources of Alaska was completed as a phase of the Service’s recreation study of the territory.
Archeological Explorations.—Archeological work in areas administered by the Service was advanced materially during the year. Of wide public interest were the beginnings of excavations at Fort Frederica National Monument. There the Hawkins-Davidson House foundations were uncovered and left exposed as a public exhibit. A long-abandoned well on the site yielded a quantity of interesting artifacts. The study of the furnace area at Hopewell Village National Historic Site was completed. Further work was done at Glass House Point in Jamestown; funds were donated also for work at Fort Caroline, Fla., on lands acquired by the Service during the year.
Limited excavations were resumed at Effigy Mounds National Monument, Iowa, and preliminary archeological reconnaissance was undertaken at Grand Portage National Historic Site and Isle Royale National Park. In the Southwest, Archeologist Schroeder made an archeological survey of the Lower Colorado Valley, and a site survey of Mesa Verde, begun in the spring, is continuing this summer. A survey of Organ Pipe Cactus National Monument was completed by Collaborator Paul H. Ezell. At the year’s end data were being prepared and reports written on excavations at Bandelier, Gran Quivira, Zion, and Canyon de Chelly. Excellent final reports were submitted on excavations at Site 16 and Sun Point Pueblo, at Mesa Verde.
In Region Four, archeological investigation at Fort Vancouver continued. At Hawaii National Park, two native collaborators surveyed prehistoric sites significant in native tradition. The University of California, under contract, began a survey of archeological sites in
226396—53----24
364 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Yosemite National Park and Lava Beds National Monument which is continuing this summer.
River Basin Archeology.—The interagency archeological salvage program in river basins, a joint project of the National Park Service, the Smithsonian Institution, and other Federal and State agencies, continued to rescue irreplaceable scientific data from reservoir areas prior to flooding, with the National Park Service assuming larger responsibilities for such work except in the Missouri River Basin. With an allotment of $95,783 for 1952, and with carry-over funds, the Smithsonian was able to carry on its operations in the Missouri basin throughout the summer of 1951, and with other funds, to direct 6 surveys, 11 archeological excavations and 1 historical excavation, in other basins.
The Universities of California, Oregon, Washington, Texas, and Oklahoma, under contract with the Service, performed surveys on a number of reservoir sites outside the Missouri. Similar contracts, for surveys in the Missouri Basin, covered work performed by the Universities of Kansas, South Dakota, Nebraska, Wyoming, Missouri, and Montana, the State Historical Society of North Dakota, the Nebraska State Museum, and the Nebraska State Historical Society. They worked on at least nine major sites. Through their joint efforts invaluable archeological material has been salvaged and our knowledge of the history of the Plains Indians has been increased more in 1 year than it would otherwise have been increased in 50.
IN THE NATURAL HISTORY FIELD
As is to be expected, the increased number of vistors to the national parks and other scenic-scientific areas is reflected in increases in the number served by interpretive programs. For the 52 areas which report such contacts, the year’s figure was approximately 14,000,000. That does not mean, of course, that 14,000,000 different individuals were served; but one needs only to observe the overcrowding of the Yavapai Observation Station at Grand Canyon for the several daily lectures, or the long lines accompanying park naturalists on guided trips, or the crowds in museums, or the turnouts at evening campfire programs to realize that visitors take to these easy and pleasant means of learning.
An important aspect of the work of the naturalists employed in the field is that of supplementing the other protection activities of the Service. In talks and informal discussions, opportunities are seized to convey to visitors some conception of the policies of the Service and of the regulations designed to make them effective and to protect the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 365
natural features. In many cases, interpretive programs appear to be an effective weapon against vandalism.
The best programs are those that have been developed in accordance with carefully prepared plans. Such planning has been a major concern of natural history personnel in the Washington and regional offices. Distinct progress along these lines can be recorded for Blue Ridge Parkway, Shenandoah, Wind Cave, Platt, Hot Springs, and Mount McKinley National Parks, and Dinosaur National Monument. Platt, Hot Springs, Big Bend, and Isle Royale all need park naturalists, and at least one more position is needed in both Southwestern National Monuments and Rocky Mountain National Park. A regional naturalist in Region One is also an urgent need.
Elk Control and Grand Teton— About 40 square miles in the northeastern portion of Grand Teton National Park were opened to regulated reduction of elk in accordance with Public Law 787., A take of 600 elk being agreed upon by the Wyoming Game and Fish Department and the National Park Service, 1,200 hunters were deputized as temporary park rangers. Of these, 510 reported for “duty” and killed 184 elk. This was less than 10 percent of the total kill in northern Jackson Hole and about 4 percent of the total kill for the Teton Management Area. Had no elk been killed in the park at all, the total reduction would still have exceeded the goal; the 1951 experience does not support the contention that hunting in the park is necessary for adequate control of the southern Yellowstone elk herd.
Bears and Other Dangerous Animals.—In an endeavor to persuade visitors to comply with regulations prohibiting the feeding, molesting or teasing of bears, more than 1,000,000 red-and-black, briefly-worded printed warnings were handed out to them last summer. Yet, during the summer, 38 persons were injured in Yellowstone alone, and in the majority of cases hand-to-mouth feeding was the direct cause. Troublesome largely because of having become accustomed to handouts, 47 of Yellowstone’s bears had to be destroyed. Because other wildlife of the parks is also dangerous, and because feeding or molesting them is detrimental to the animals themselves, the prohibitions formerly applied to bears were extended to include deer, moose, buffalo, mountain sheep, elk, and antelope.
Reduction Programs.—The northern Yellowstone elk herd, a perennial problem of overpopulation, was reduced last winter by about 3,800 head. Favorable weather conditions which induced the elk to move northward out of the park in late December made possible reduction of 3,200 by hunters in Montana between then and January 31. In the park, five live traps caught about 1,200. Of 629 taken out of the park and released in open hunting territory, about 60 percent
366 ☆ annual report of the secretary of the interior
were killed, in legal hunting. Another 563 were shipped out for prestocking areas in several States and to public and private preserves. With these reductions, and natural mortality, the herd was estimated to number 8,000 at the end of winter. With an expected 20 percent calf crop, the herd will still be about 4,500 in excess of range-carrying capacity in 1952.
Elk and deer reduction programs were carried out again at Rocky Mountain National Park, and a mule deer reduction program at Zion National Park.
Studies of Wildlife.—Relationships of population to food supply such as those which resulted in the controlled reductions listed above were the subject of considerable study by wildlife specialists, who also carried on a variety of other investigations aimed at ascertaining the survival rate of and factors affecting the welfare of rare or reintroduced species; determining the effects upon park populations of predator control measures near the parks; inventorying bird and other wildlife populations; and other problems affecting wildlife management. Of particular importance are the elk-range studies, and investigations of predator abundance, effect of predators on prey species, and predator migrations, launched at Olympic National Park last spring. The predator-relations study is the outgrowth of brief investigations of elk during the past 2 years.
WORK OF THE MUSEUM LABORATORY
To the uninitiated, the variety of highly valuable and necessary work performed by the Service’s museum laboratory is somewhat astonishing. One major aspect of its work is preservation of historic and scientific collections entrusted to the Service; another is the design and construction of museum exhibits. Museums are important tools of interpretation and the Service probably operates more of them than any other agency anywhere.
The laboratory was consulted in preservation techniques by the Army, the Navy, and the National Trust. The variety of work it performs is indicated by such examples as the restoration and preservative treatment given paintings in the famous Independence Hall collection of portraits as well as in five other areas; cleaning and treatment of weapons and various other metal objects; and treatment of old books, maps, and prints. As much storage equipment as could be purchased with the limited funds available was obtained and supplied to field areas in greatest need of it.
A large number and variety of exhibits were designed and built by the laboratory staff. Those for the Ocmulgee National Monument museum were completed in time for the opening ceremonies last No
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 367
vember; all exhibits except part of the figures for one diorama were in place when the new Custer Battlefield museum was dedicated in June. Exhibits for the small Ochs museum, on Lookout Mountain, Chickamauga and Chattanooga National Military Park, were installed last January. Using funds donated for the purpose, the laboratory is working on four of the dioramas for the Zenger Memorial Room in Federal Hall Memorial. It built, or is building, exhibits for 11 other areas. It performs a variety of other services, such as review of museum prospectuses, preparation of museum layouts, consultation on museum problems—extended also to several State park authorities—and operation, with the History Division, of an in-service training course in museum methods. Among the students in this year’s course was the Director of the Iraq National Museum of Natural History, here on a UNESCO fellowship.
TO AID IN UNDERSTANDING
Previous annual reports have noted the trend, forced upon the Service by overwhelming increases in numbers of visitors and by the lag in numbers of interpretive personnel, toward the use of supplementary means of giving the interested visitor some sense of the meaning of the areas administered by the Service. This trend has been heightened during the past year in the increasing use of selfguidance practices and of audiovisual aids. These have both advantages and disadvantages.
Examples of the procedures which have been adopted to meet these conditions are numerous. A synchronized tape recording and slide projection was installed at Bandelier National Monument, N. Mex., to help orient visitors waiting for the beginning of the scheduled tour of prehistoric ruins. Plans were perfected for installing a recorded talk by public address system on the boat carrying visitors to the Statue of Liberty. With the necessary closing of Montezuma Castle, Ariz., to visitors, a large scale model of that picturesque cliff dwelling was installed under glass in a shelter in the valley below it. This has proved effective in helping visitors understand the construction and use of the original structure. It seems to be a happy solution to the interpretive problem faced when it became necessary to close the ancient structure to visitors.
At Lake Mead National Recreation Area at the reception center in Boulder City, the visiting public is now given orientation on the recreational development and use of the national recreation area by a fine recorded lecture synchronized with automatically projected slides. Similar installations have been placed at Crater Lake, Acadia, and Wind Cave National Parks,
368 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
In the scenic-scientific areas, there are today 26 self-guiding trails as compared with 12 in operation a year ago. In a few of these, the guidance is supplied by signs bearing interpretative legends along the trail. Increasingly, however, booklets or leaflets keyed to numbered posts along the route are being utilized. Some of these special interpretive publications have been provided in the Service’s printing program; a greater number, however, have been produced by cooperating societies. Particularly notable have been those produced by the Southwestern Monuments Association, headquartered at Santa Fe, and by the Loomis Natural History Association, at Lassen Volcanic National Park. The former provides its handsome booklets for free use on the areas with which they deal, but interested persons may buy them to take home. The latter has issued A Guide to the Lassen Peak, Highway and other supplementary booklets as sales publications which have proved extremely popular with visitors.
Traveling Exhibits.—A start has been made on the preparation of interpretive displays, intended to serve as traveling exhibits, to cover major phases of the Service’s work, something for which there is both considerable demand and real need. The first two, planned by the History Division, and designed and built by the Museum Branch, dealt with the media and methods used in interpretation of historic and prehistoric areas, and with the interagency archeological salvage program. Both have already been exhibited at important gatherings and have received most favorable comment.
Television.—Though there is a tremendous amount of usable subject-matter in the national parks and other areas administered by the Service, the means of reaching the public with it, via television, scarcely exist. Yet interpretive staffs have participated in effective fashion on several occasions. The important historical program under way at Independence National Historical Park Project has received frequent attention in the television programs of the Philadelphia public-school system, and a number of telecasts have featured distinguished visitors at Independence Hall. Philadelphia stations have also treated the Battle of Gettysburg and the Service’s interpretive work there. Edward R. Murrow recently drew attention to Statue of Liberty National Monument in his national program, “See It Now.”
C elebrations and Pageants.—Several colorful pageants and celebrations were held in historical areas during the year. The dedication of Grand Portage National Historic Site, Minn., last August 9, was participated in by United States and Canadian diplomatic representatives, and by representatives of the Minnesota Chippewa Indian Tribal Council, the Bureau of Indian Affairs, the Minnesota Historical Society, and the National Park Service. With the Ocmulgee Auxiliary Corporation, a group interested in aiding with the develop-
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 369
ment and interpretation of Ocmulgee National Monument, as sponsor, the completion of the Ocmulgee museum was observed on November 2. Construction of the modern-style museum was started in 1938 but was halted by the war. Funds for its completion were appropriated by Congress in 1950. Col. B. C. W. Custer, descendant of Gen. George A. Custer, brought to Appomattox Court House National Historical Monument a flag of truce and a Virginia State battle flag which had figured in the closing battle of the Civil War. Their return was the occasion of brief and colorful ceremonies. The flags came from the Custer Collection, willed to the National Park Service by General Custer’s widow. Items from that collection occupy a prominent position among the exhibits in the museum at Custer Battlefield National Monument, which was dedicated before a distinguished gathering on June 25—the 76th anniversary of the Battle of the Little Big Horn. The Tennessee Historical Society, other patriotic organizations, and Service representatives participated in ceremonies commemorating the 90th anniversary of the Battle of Shiloh on April 6 and 7. Anniversary ceremonies were also held at Moores Creek National Military Park, the Lincoln Museum, and at Dorchester Heights National Historic Site.
With Service approval, a pageant of the Revolution, entitled “Then Conquer We Must,” was first performed at Kings Mountain National Military Park last October. Its second season began on June 15. The Hiawatha Pageant was also offered with great success at Pipestone National Monument on August 3, under the auspices of the Pipestone Exchange Club.
THE LAND PROGRAM
The land program of the National Park Service is long range and one directed at the ultimate acquisition of all lands situated within the approved boundaries of areas of the National Park System. Though notable progress was made during the year, this work was seriously handicapped by the loss of personal services as a result of appropriation-act riders.
Purchases.—The most extensive transaction involving the purchase of lands in an already established area has been the determination of condemnation awards for extensive holdings in Everglades National Park. Condemnation trials were divided into five groups; awards have been made in four of these. By the end of the year, approximately $1,600,000 had been expended or obligated for the acquisition of about 390,000 acres. All lands within the park are owned by the United States by virtue of a declaration of taking, filed in December 1950, on 125,000 acres involved in the five groups of cases mentioned
370 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
above. It is proposed to expend the balance of the $2,000,000 donated by the State of Florida for Everglades land acquisition for purchases within the authorized park extension.
To alleviate the acute personnel housing shortage at Great Smoky Mountains National Park, the Service purchased a life estate in 102 acres on which are several good houses and other usable buildings. Important parcels were acquired or optioned in Glacier and Rocky Mountain National Parks; two critically important lots in Colonial National Historical Park were acquired by declaration of taking, A 1.8-acre parcel, on which part of the site of the old fort is situated, was bought with National Park Trust and donated funds at Fort Raleigh Historic Site.
A major transaction, not involving lands, was the purchase of the Rainier National Park Co.’s facilities for $300,000.
Settlements were reached, by stipulation or court judgments, on 17 parcels in connection with the declaration of taking on 27 parcels of land in the Independence National Historical Park Project, filed on March 1,1951. A second declaration was filed on 12 parcels on December 12, 1951. For the first group, $791,600 was deposited with the court; for the second, including the 12-story Drexel Building, $1,224,-500 was deposited. Use and occupancy agreements with several defendants in the first group, for periods up to 5 years, have reduced the costs of acquisition materially. No settlement in the second group had been reached at the end of the year.
On this project, for which Congress had authorized and appropriated $4,435,000, options in excess of $1,000,000 have been accepted. Negotiated acquisitions costing approximately $400,000 have been completed. Total obligations, plus a small reserve fund, approach closely the total appropriated. An increase of authorization to $7,700,-000 has been approved; an appropriation under the increased authorization is the next step toward acquiring the rest of the lands in the project.
Title to the approximately 110 acres authorized for inclusion in the Fort Caroline National Historical Park Project has been acquired through declaration of taking. Estimated just compensation of $44,135 has been paid into court.
Since negotiations for purchase of the Old Stone House, in Washington, D. C., within the $90,000 appropriated for it were unsuccessful, condemnation proceedings have been instituted.
Donations.—Donations of $618,000 were made by the Avalon Foundation and the Old Dominion Foundation to match an equal amount provided by the State of North Carolina for the purchase of the lands within the boundaries authorized for the establishment of the Cape Hatteras National Seashore Recreational Area in North Carolina. The
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 371
Old Dominion Foundation is a Virginia charitable and educational foundation created by Paul Mellon, and the Avalon Foundation is a Delaware charitable trust established by Mrs. Ailsa Mellon Bruce. It was the interest of these foundations in conservation that moved them to make these generous donations. The Cape Hatteras project was authorized by act of Congress approved August 17, 1937. The National Park Service, through a land acquisition office at Manteo, N. C., will conduct the negotiations for the purchases to be made with the total fund of $1,236,000. When completed, the Cape Hatteras National Seashore Recreational Area will contain approximately 30,000 acres of unspoiled beach, the most extensive stretch of undeveloped seashore remaining on the Atlantic Coast. The Avalon and Old Dominion Foundations and the State of North Carolina, through their generous contributions, have done a great service both for the people of North Carolina and of the whole country.
Linville Falls has long been famed as one of the loveliest in western North Carolina, and public ownership has been urged for it for many years. Last winter, John D. Rockefeller, Jr., added another to his long list of benefactions to the National Park System by donating $95,000 for the purchase of the falls and Linville Gorge, 1,100 acres in all, most of it for addition to the Blue Ridge Parkway. In addition, Jackson Hole Preserve, Inc., donated 800 acres for inclusion in Grand Teton National Park, to which it had previously donated some 35,000 acres.
Through the generosity of Congressman Charles E. Bennett of Florida and numerous friends of the project, funds in the amount of $40,199 were donated to match an equal amount of appropriated funds toward the acquisition of lands associated with historic Fort Caroline, site of the French Huguenot colony which settled on the St. Johns River in Florida in 1564. A portion of the gift will be used to conduct an archeological investigation of the site.
The Commonwealth of Virginia donated nearly 600 acres of land for addition to the Blue Ridge Parkway, and the State of Mississippi 400 for the Natchez Trace Parkway.
The Collier Corp, donated to the State of Florida 35,000 acres of land north and northwest of Everglades National Park for eventual addition to the park.
The State of West Virginia, with a $350,000 appropriation, began acquiring approximately 500 acres for the Harpers Ferry National Monument project. It is understood that Maryland has available funds with which to buy about 900 acres, that State’s portion of the proposed monument.
Space is lacking in this report to acknowledge individually the numerous gifts to the United States from public-spirited citizens which
372 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
have greatly benefited the National Park Service during the course of the year. These include donations of museum pieces, antique furnishings for historic houses, books, manuscripts, and funds for important phases of National Park Service work. To all who have contributed, the National Park Service expresses its thanks.
Exchanges.—Approximately 2,000 acres of North Dakota Historical Society lands and 700 acres privately owned, all in Theodore Roosevelt National Memorial Park, were acquired by exchange. In the same area, pending are exchanges for 3,600 acres of university and school lands and 2,850 acres privately owned. Some 30,000 acres, owned chiefly by the Southern Pacific Railroad Co., in Joshua Tree National Monument, were also obtained by exchange. The State of Montana has made selections of lands it wishes to obtain in exchange for some 9,300 acres in Glacier National Park. In Olympic National Park, about 75 acres, chiefly resort properties, have been obtained by exchange for windthrown and other salvable down timber in the park.
Transfers.—The Forest Service transferred approximately 420 acres to the Blue Ridge Parkway. Also, about 10 acres were transferred from the Veterans’ Administration for addition to Mound City Group National Monument. Through Presidential proclamations, Hoven-weep National Monument was enlarged by 160 acres; Death Valley National Monument by 40 acres; and Sitka National Monument by 1 acre.
Rivers in Mammoth Cave.—An investigation was made at Mammoth Cave to ascertain what further studies are needed to determine (1) how to stop or control the sedimentation in river sections of Mammoth Cave and (2) what would constitute damage to the park by construction of the proposed Mining City Dam. It was determined that more flow and water-stage records at points in the Cave and on the Green River would have to be obtained for a number of years, and that better knowledge of the source of the Cave streams and sediment was needed. The matter has been referred to the Geological Survey.
Defense Uses of Park Areas.—At the end of the year, there were 51 national defense program types of permits in effect on areas under National Park Service administration, including 11 continued from World War II. Perhaps the most important issued during the year was one for an Atomic Energy Commission program to seek and remove uranium-bearing ore from Capitol Reef National Monument, declared vital to the defense program.
THOSE WHO VISIT THE PARKS
The period of heavy use of the areas administered by the Service is beginning earlier and ending later; visitor totals continue to increase
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 373
rapidly, reaching 36,708,494 during the last travel year. At the same time receipts from fees do not increase proportionately. This is primarily attributable to the fact that there have not been enough employees to handle collections during the longer period of heavy visitation. Increased fee income would undoubtedly exceed the cost of employing additional personnel.
Travel Surveys.—The sharp growth of the tourist industry in recent years has begun to attract the attention of the business analysts. Numerous public and private agencies concerned with tourism are interested in obtaining accurate and complete information on pleasure travel and its economic influence. Areas of the National Park System and increased use of public highways occupy prominent spots in the travel picture. As a result of the increasing motor travel, the cooperation of the Bureau of Public Roads and certain State highway departments has been obtained in conducting travel surveys in several parks. Present efforts are being directed toward making a 12-month survey of a representative national park in each geographic region of the country. The ultimate objective is a survey of each type of area so that information applicable to all areas of the System will be available.
The Montana State Highway Commission conducted a tourist survey at Glacier National Park during the summer of 1951 and has published a report of the findings. The Virginia Department of Highways launched a survey at Shenandoah last January—the first national park travel survey to sample travel for each season. Plans are now being completed for a survey of travel to Yosemite National Park. These studies are being conducted in cooperation with the Bureau of Public Roads. The published report, Crater Lake National Park, and Oregon Caves National Monument Vacation Study, was released during the year. That study was conducted by the National Park Service during the summer of 1950.
COOPERATIVE ACTIVITIES
History and Archeology.—Cooperation between the Service and the State of Washington in the field of historical archeology was perhaps the most noteworthy activity in the Federal-State cooperative program. Experienced Park Service personnel, whose work was financed by the Washington State Park and Recreation Commission, continued explorations at the site of Spokane House. The two reports written by the archeologist in charge reveal that such excavations have greatly increased knowledge of this important pioneer fur-trading post. It is expected to complete the Spokane House excavation this summer and to excavate the site of Fort Okanogan, another fur-trade
374 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
center. Consultant service has also been given to the State concerning several of its historical park areas, actual or proposed, a significant extension of the cooperation given in the State park field foi the past 16 years. .
A number of agencies sought and received assistance on technica problems of a military-historical nature, and on interpretive planning and development. Ohio sought advice on planning the proposed Anthony Wayne Parkway and the State of Washington asked foi help in preparing a tripartite agreement for the preservation and interpretation of Fort Simcoe.
State Cooperation.—For the first time, the Service has had a representative in each region assigned to State cooperation throughout the fiscal year. It was thus able to give increased assistance to State park agencies, the National Conference on State Paiks, and other agencies. State Parks—Areas, Acreages and Accommodations was issued—the first revision since 1946.
Territorial Cooperation.—In connection with the Alaska recreation resources survey, the University of Washington is conducting a tourist survey of the territory; the National Recreation Association, a study of recreation facilities and programs in Alaska towns. This work is being done under contract with the Service. The Office of Naval Research is also helping on a survey of wilderness areas in northeastern Alaska. The University of Alaska will probably participate in an archeological survey of part of the Alaska Peninsula. The Geological Survey, Fish and Wildlife Service, Office of Territories, and others have extended valuable cooperation.
Reference is made elsewhere to cooperation affecting the Trust Territories.
River Basin Studies—The trend in the Service’s participation in river basin studies has been toward a more truly basin-wide approach. Contracts were made with the National Recreation Association to assist in the New England-New York regional survey and in the Arkansas-White-Red River survey, and with Iowa State College to assist in part of the Missouri River Basin survey.
A River Basin Studies and State Cooperation Conference was held at Lake Mead in May. Representatives of the Service’s regional and district offices, the Colorado Great Basin Field Committee, the Program Staff, and Assistant Secretary Doty’s office participated.
Reservoir Recreation.—Upon approval of a cooperative agreement between the Service and the Bureau of Reclamation, the Shadow Mountain National Recreation Area was established late in June, with the Service undertaking responsibility for development and management of recreation facilities and use there. Progress was made in negotiating agreements with State and local agencies for
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 375
management of reservoir recreation areas not of national significance. Recreation area regulations were revised and simplified during the year.
IN THE FISCAL FIELD
Amendments to the 1952 appropriation acts, which set both position and monetary limits for personal services, required, for the Service as for other agencies, the establishment and supervision of controls which made heavy additional demands on the time of fiscal staffs while forcing reductions in fiscal personnel. In the Fiscal Division in the Washington office, the 45 budgeted positions were reduced to 35 by the end of the year.
The 2-month delay in passage of the 1952 Interior Department Appropriation Act added greatly to financial uncertainties throughout the Service. The monetary limitation on the amount of funds expendible for personal services for the Washington office was set at 90 percent of the budget estimates, retroactive to the beginning of the fiscal year. Consequently, it was necessary to cut employment for the 10 months remaining after passage of the act below the 90 percent level, to offset the 100 percent employment during the first part of the year and in order that the reduction might be made by leaving vacancies unfilled rather than by reduction-in-force procedures. The problem of keeping within the monetary limitation for personal services was sharpened by the necessity of making several large lump-sum terminal leave payments.
Equipment Amortization.—The program of equipment amortization recently adopted by the Service has been an outstanding success. In the past, it has been necessary to justify automotive equipment needs as nonrecurring amounts in the annual budget estimate; they could not be included in the appropriation base and were frequently lost during the budget processes. Hence the Service found itself with an automotive fleet mostly of old, worn-out vehicles, retained far beyond their economical life, and extremely costly to keep in repair. The amortization program eliminates those handicaps; it pools all equipment and assigns it to programs or projects to effect the most advantageous use of it. It also results in far better accounting, spreading the cost of the vehicles at established mileage or hourly depreciation rates to the various operations and activities on the basis of actual use. And equipment replacement funds are now included in the appropriation base, not needing to be justified as nonrecurring items.
Decentralization of Fiscal Authority.—In line with Departmental policy, the first step was taken in decentralizing, to the regional offices, certain budget-execution functions, for the following appropriation
376 ☆ annual report of the secretary of the interior
activities: Management of park and other areas, buildings and utilities, etc. (maintenance and operation); and buildings and utilities, etc. (construction). This was the first step in ultimate decentralization to the regional offices of budget execution functions for all appropriation activities at regional and field levels. It has many advantages, arising chiefly from the nearness to the scene of operations of the regional directors and their staffs and their more intimate knowledge of field problems and needs. Necessary actions and adustments are expedited; time and paper work are saved; and better working relationships are promoted.
CONCESSIONS SITUATION SHOWS IMPROVEMENT
Having a well-defined and generally acceptable policy under which to work, the Service has made heartening progress in perfecting contracts for the operation of concessions of many kinds since the Department approved the present.policy about a year and a half ago. Most contracts approved or under negotiation require the concessioners to expend, as part of the payment for the privilege of conducting operations in the parks, a percentage of their gross receipts to provide facilities that will result in better and additional public accommodations. All improvements so built are the property of the Government.
Contract Progress .—The Service has entered into 14 new concession contracts; preliminary negotiations have been completed on 15 others and started on 5 more. Sixteen contracts have been extended to give further time for negotiations or for study of operating or development problems which must be resolved before new contracts can be prepared. Twenty subconcession agreements for various services have been approved.
Agreement was reached with a number of concessioners on short-range expansion and improvement programs to be undertaken in the next 3 to 5 years. A majority of the contracts provide for a flat franchise fee plus percentages of gross receipts which vary with the character and conditions of operation.
Approved contracts include the following: S. G. Loeffler Co., and Government Services, Inc., National Capital Parks; Glacier Park Transport Co., Glacier National Park; Lassen National Park Co., Lassen Volcanic National Park; Fred Faver, Lake Mead National Recreation Area; Viola N. Montgomery, Muir Woods National Monument; Emery C. Kolb and Babbitt Brothers Trading Co., Grand Canyon National Park; Hot Springs Mountain Observatory Co., and New Moody Hotel Co., Hot Springs National Park; Virginia Sky-Line Co., Shenandoah National Park; Sequoia and Kings Canyon National Parks Co., Sequoia and Kings Canyon National Parks; Haynes, Inc., Yellowstone National Park; and Cavern Supply Co.,
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 377
Carlsbad Caverns National Park. Contracts of major importance on which negotiations have been completed include Yosemite Park & Curry Co., Yosemite National Park; Kilauea Volcano House, Ltd., Hawaii National Park; Mrs. Evelyn Hill, Statue of Liberty National Monument, and Rocky Mountain Motor Co., Rocky Mountain National Park.
Rate Schedules.—Last August, the Office of Price Stabilization issued, at the Service’s request, a regulation which permits it to continue its usual rate-approval procedure. Rates become effective 30 days after approval unless previously objected to by OPS. Negotiations are now in progress, looking to elimination of the 30-day waiting period.
Concessions Facilities.—Under the contract awarded to Fred Faver, for furnishing all public accommodations at the Katherine Wash site on Lake Mohave in the Lake Mead National Recreation Area, public requirements are being met currently. With first-quality planning and construction, there is promise of facilities of which concessioner and Service can be proud. * * * A new girls’ dormitory at Lake, Yellowstone National Park, under construction last year by the Yellowstone Park Co., was ready for occupancy during the 1952 season. In the Lake Hotel, 53 rooms in the east wing were rehabilitated, and other accommodations and facilities were improved. * * * Water storage at Bryce Canyon National Park was increased 78 percent by construction of a 312,000-gallon tank by the Utah Parks Co.
The Yosemite Park & Curry Co. has completed Oak Cottage, a 32-room guest house, at Yosemite Lodge. The company is also completing a multiple housing unit for employees of the company and a company residence in the new Tecoya area. Heavy snows last winter caused the collapse of the west section of Big Trees Lodge and severe damage to the east wing.
The Virginia Sky-Line Co. completed and dedicated a new, thoroughly modern dining room at Skyland. It is also constructing a new lodge building in the Skyland area. * * * A notable new service was introduced at Everglades National Park with execution of a 5-year agreement for sightseeing boat operation.
Lack of adequate transportation continues to limit public use of Isle Royale National Park and forced National Park Concessions, Inc., to ask for authority to discontinue operations at Windigo Inn, Washington Harbor. This has the further effect of discouraging the development of small-boat service from Minnesota take-off points.
THE FORESTS OF THE NATIONAL PARK SYSTEM
During the calendar year 1951, for which the Service’s record of forest fires is complete, 320 fires originated within the park boundaries
378 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
or spread across boundaries from outside. Perhaps the most notable fact in this connection is that of the 165 man-caused fires that started inside, only 79 were reported as probably caused by nonlocal travelers, although the visitor total was the greatest ever. The problem of carelessness with fire by those resident near the parks needs particular attention.
Fire losses were reduced in all areas except Everglades National Park, where 96 percent of the total land area burned over is situated. There fire swept over 42,984 acres, of which 40,214 acres were grassland. The large fires in Everglades were caused by lightning, and 1951 was the first year in which lightning has been officially established as a cause of fire there. Though protection against fire has vastly improved since establishment of the park, it needs to be further strengthened both in and adjoining the park.
Fire control training and preparedness were materially strengthened during the year through more effective training techniques ; by improved cooperation with other agencies; and by installation of a small smokejumper crew in Yellowstone National Park. Due to the wet season at Yellowstone, the effectiveness of this last arrangement was not put to a test.
Forest Insect Control.—Effective forest pest control was carried on in a number of areas. Maintenance control has been effective in keeping barkbeetle and defoliator losses to a minimum, in spite of inadequate funds from the control-of-forest-pests appropriation and the fact that the first allocation was not made to the Service until late October. All control of defoliators—insects that feed on the leaves or needles of trees—was performed on eight areas in the Southwest, by spraying insecticides either from mistblowers or from airplanes. A virus disease present in the needle-miner population gives hope that the lodgepole pine needle-miner epidemic in the Tenaya Lake area of Yosemite National Park, unchecked for several years, may soon be controlled. Increased activity by barkbeetles in areas adjacent to California national parks is a threat requiring watching, though it has been reduced to some extent by recent control measures on these adjacent areas. The spruce barkbeetle epidemic adjacent to Rocky Mountain National Park and the spruce bud worm in Montana are also threats to be watched.
A highlight of the past fiscal year was the completion of the Teton-Targhee Mountain pine beetle control project. This project, started in 1947, cost the United States Forest Service and the National Park Service approximately $1,271,000. Its success ended the threat to more than 2 million acres of lodgepole pine in Shoshone National Forest and Yellowstone National Park.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 379
White Pine Blister Rust Control.—Control of white pine blister rust was initiated by the National Park Service at Acadia National Park in 1921, and to date work has been undertaken on 361,330 acres in 13 national parks and 1 parkway. On about 55 percent of this acreage, control work now consists only of infrequent working. Initial work is completed on 301,665 acres. During the year, 2,081,712 ribes plants—currant or gooseberry, the alternate host of the disease— were eradicated in the 10 areas in which work was carried on.
Oak Wilt.—Although oak wilt, lethal to native oak species, has been found in widely scattered locations, Effigy Mounds National Monument, Iowa, is the only Service-administered area in which it has been discovered. Control efforts were started there in the spring of 1951 and continued this year. They involved removal of infected trees and isolating these infection centers from the rest of the oak stand. This isolation is accomplished by cutting or poisoning all oaks within 40 feet of the infected trees, as the only known means of transmission of the disease is by root grafts.
Ponderosa Pine Mistletoe Infestations.—Initial control work on the infestation of ponderosa pine mistletoe at Grand Canyon was completed during the past year, 3 years after it was initiated. This involved removal of all infection from the stand, either by pruning, poisoning, or removal of the infected trees. Last summer, representatives of the Division of Forest Pathology, after a survey, recommended control work similar to that at Grand Canyon on about 960 acres in the northern portion of Bryce Canyon National Park, where the mistletoe has caused considerable loss. Funds to launch this project were included in the 1953 fiscal year estimate.
Grazing.—Grazing records for the National Park System are maintained on a calendar-year basis. During 1951, 130 permits were authorized in the western areas for a total of 107,923 animal-unit months. After gradual annual reductions, domestic livestock grazing was terminated in Carlsbad Caverns National Park at the close of the calendar year.
Tree Preservation.—The six-man mobile tree-preservation crew, working in the North during the summer and in the South during the winter, continued its excellent work, providing tree maintenance in 21 areas in Kegion One. Except for Acadia and Mammoth Cave National Parks, where there are valuable shade trees at long-developed areas, all of the crew’s work was in historical areas. Supplementing their work, funds were provided for contract spraying of elms at Vanderbilt Mansion, Home of Franklin D. Roosevelt, and Adams Mansion National Historic Sites and Morristown National Historical Park, to protect their trees from Dutch elm disease.
226396—53——25
380 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
PERSONNEL MANAGEMENT
As was doubtless the case in many other agencies, the outstanding fact about personnel management in the Service during the past year has been the reduction in personnel and other restrictions resulting from amendments to 1952 appropriation acts. The Ferguson amendment caused drastic reductions in the administrative personnel of the Service, including the staff of the Personnel Division; the Jensen amendment required the keeping of records which complicated and tended to delay operations; the Whitten amendment to the Supplemental Appropriation Act of 1952 blocked many well-deserved promotions or delayed them for periods ranging from a few weeks to many months.
Promotion Policy—The promotion policy of the Service was restated and brought up to date. Also, important changes were inaugurated in promotion lists and promotion procedures to give better assurance that all who deserve promotion will be considered when opportunities arise.
Advance in Training Program,.—Addition of a training officer to the staff of the Personnel Division permitted stepping up the Service’s training program considerably. It enabled the Division to assist in conducting two very successful personnel instruction courses, one in the Region Two office in January, the other in the Region Three office in April. These were attended by 54 outstanding field employees.
Other results have been the preparation and publication of an orientation booklet for field employees, and the preparation of a manual for use in training supervisors, expected to be issued early this year.
Delegations of Authority— Noteworthy during the year were additional delegations of personnel authority to the Director and by him to the field. One of these gave the regional directors authority to establish appropriate pay rates for ungraded employees. Another permits field officials to make appointments and status changes in positions through Grade GS-9—two grades higher than previously. The Director was also authorized to approve collaborator appointments, without compensation. These delegations should considerably increase the speed of processing personnel actions and lead to increased efficiency of operation and better employee morale.
Occupational Studies.—Occupational studies for historical aides, guides, communications positions, and administrative officer positions were completed. The first two were undertaken in connection with the writing of specifications for such jobs. An occupational study of park superintendent positions has been started, as has a study of supervisory park ranger positions in Region One.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 381
Personnel Changes.—Following are the principal promotions, transfers and retirements which have been effected during the year:
Retirements.—Washington: Arthur E. Demaray, director; John D. Coffman, chief forester; Frank A. Kittredge, chief engineer; C. D. Montieth, chief, Electrical Branch, Design and Construction Division; Burns C. Downey, chief, Rate Control Branch, concessions Management Division; C. Max Bauer, geologist, Natural History Division. Field: Charles J. (White Mountain) Smith, superintendent, Zion and Bryce Canyon National Parks; Ernest P. Leavett, superintendent, Crater Lake National Park; Max R. Wainwright, superintendent, Lehman Caves National Monument.
Transjers and promotions.—Washington: Conrad L. Wirth, from associate director' to director; Thomas J. Allen, from regional director, Region One, to assistant director; Lawrence F. Cook, from assistant chief forester to chief forester; Paul McG. Miller, from chief, Minor Roads Branch to chief engineer, Design and Construction Division; Erwin H. Cort, first from rate analyst to chief, Business Analysis Branch, and then to chief, Rates Control Branch, Concessions Division; Frank H. Longfellow, from chief, Restaurant Branch, OPS, to chief, Business Analysis Branch, Concessions Division; Charles B. Foster, Harry M. Elsey, and Paul Pernecy, Jr., from business accountant, to chief, Field Audit Section, assistant chief, Financial Control Branch, and assistant chief, Commercial Audit Branch, respectively, Audit Division.
Field: Elbert Cox, from associate regional director to regional director, Region One; Daniel J. Tobin, from superintendent, Lassen Volcanic National Park, to assistant regional director, Region One; John C. Preston, from superintendent, Mount Rainier National Park, to superintendent, Great Smoky Mountains National Park; Preston P. Macy, from superintendent, Olympic National Park, to superintendent, Mount Rainier; Fred J. Overly, from chief, Real Estate Branch, Lands Division, to superintendent, Olympic; James W. Flolland, from superintendent, Shiloh National Military Park, to regional historian, Region One; Ira B. Lykes, from manager, Prince William Forest Park, to superintendent, Shiloh; Charles E. Humberger, from chief ranger, Isle Royale National Park, to superintendent, Mount Rushmore National Memorial; Earl H. Semingsen from chief ranger, Everglades National Park, to superintendent, Wind Cave National Park; Fred T. Johnston, from assistant superintendent, Yellowstone National Park, to superintendent, Lassen Volcanic National Park; Warren F. Hamilton, from assistant superintendent, Natchez Trace Parkway, to assistant superintendent, Yellowstone; Curtis K. Skinner, from chief ranger, Yellowstone, to assistant superintendent, Mount Rainier; Harthon L. Bill, from assistant superintendent, Mount Rainier, to
382 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
assistant superintendent, Yosemite National Park; John B. Wosky, from assistant superintendent, Yosemite, to superintendent, Crater Lake National Park.
Awards.—The Department of the Interior Distinguished Service Award was made to retiring Director Demaray, Chief Forester Coffman, and Chief Engineer Kittredge, and, posthumously, to the late Chief of Concessions Oliver G. Taylor, as well as to former Ranger Blake C. Vande Water. The Department’s Conservation Service award went to Paul K. Petzoldt, for his heroic voluntary search, with Ranger Vande Water, for the New Tribes Mission plane which crashed on Mount Moran, Grand Teton National Park, in November 1950. Dr. Jesse L. Nusbaum, departmental archeologist, received an efficiency award under title X of the 1949 Classification Act.
LEGISLATION
Although Congress adjourned shortly after the beginning of the 1953 fiscal year without acting on several bills desired by the Service, a number of others were passed and approved. Appropriations to complete land acquisition at Independence National Historical Park Project, for the addition of land to Mound City Group National Monument, and for the acquisition of Gila Pueblo, near Globe, Ariz., for use as Southwestern National Monuments headquarters were authorized. Land exchanges were authorized at Death Valley and Badlands National Monuments. The Coronado International Memorial Act was revised to provide for establishment of a national memorial. Several measures will effect a saving for the Federal Government or improve administration. These include conveyance of Centre Hill Mansion at Petersburg National Military Park to the Petersburg Museum Corp.; conveyance of a road right-of-way in Acadia National Park to the town of Dedham, Maine; conveyance of surplus Blue Ridge Parkway lands to the Forest Service; authorization of maintenance and operation of acquired properties at Independence National Historical Park Project ; and provision for the protection of scenic values along the Grand Canyon approach road.
LITIGATION
The case of Peterson v. United States, involving the question of Federal jurisdiction over private lands within Sequoia and Kings Canyon National Parks, was concluded in favor of the United States. Both the District Court and the Court of Appeals held that cession of exclusive jurisdiction from the State of California gave the United States power to regulate such lands. Petition for certiorari was denied by the Supreme Court.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 383
The District Court for the Southern District of California found for the plaintiff in the suit brought against the United States by William L. Claypool under the Federal Tort Claims Act to recover damages for injuries resulting from an attack by a bear in Yellowstone National Park. Damages had not yet been awarded at the end of the year.
KEEPING THE OWNERS INFORMED
The provision of information about its activities and its policies is a function which the public has a right to expect of any Government agency. It may be performed in a great variety of ways. A basic obligation is to give the facts as honestly and straightforwardly as possible, and to avoid propaganda which relies on concealment or distortion.
Dealing directly with millions of joint owners of the properties it manages, the Service must meet extraordinarily heavy demands for information. And since accurate printed informational material is essential to both enjoyment and protection of the parks, one of its most necessary tasks is the production of numerous publications.
All of this is work for trained personnel; not something which the administrator can undertake as a sideline. Th$ Service has no information personnel in its regional offices; hence, much work of kinds that other agencies perform in the field must be done by the small Washington office information staff. Never large enough to undertake more than a part of the legitimate functions which might be performed, this staff was reduced from 11 to 8 employees as a result of an amendment to the 1952 Appropriation Act. This severely handicapped the performance of legitimate functions.
Publications.—For every four visitors in 1941, there were seven in 1951. Today’s printing dollar will probably not buy half as much as that of 1941. Yet there are fewer dollars for production of informational literature than in 1941. This fact compels the most rigid economies—reductions in size and content of publications, and careful, almost niggardly distribution procedures. Visitors are handicapped in not receiving information to which they are entitled and that is needed for their protection and the protection of the areas.
During the year, 6,807,000 pieces of free informational literature were requisitioned—less than one to every five visitors. Thousands of these were supplied to meet requests received by the Washington and field offices. In addition, there were issued four more items in the historical handbook series—for Shiloh and Petersburg National Military Parks and Fort Sumter and Statue of Liberty National Monuments. Projected, though none has yet been issued, is a series of
384 ☆ annual report of the secretary of the interior
natural history handbooks. Also, another series of modest booklets is planned, to acquaint the public with various phases of the Service s work. The first of these should appear during the 1953 fiscal year.
Press Releases.—Most field areas issue occasional press releases to nearby newspapers. In the Washington office, their preparation is a very minor phase of informational activity, dhose which are issued deal factually with matters of legitimate news and, in accordance with the law, are sent only to publications or persons who have requested them.
Motion Pictures.—After inviting competitive bids, the Service awarded a contract to Encyclopedia Britannica Films, Inc., to revise and distribute the Atwater Kent Foundation-Ted Phillips film of Yosemite National Park, a gift to the Service in 1949. The purpose is to assure the widest possible distribution of this fine picture. The United States Treasury will receive a royalty on all copies sold. This spring, Mr. Phillips has been taking footage for a film, for General Petroleum Corp., to tell the Grand Canyon story, something in which the Service has made numerous efforts to interest motion-picture companies.
Yellowstone, Wind Cave, and Everglades staffs cooperated with the Walt Disney studios in connection with the shooting of footage for three of the True Life Adventure Series which have done so much to waken Americans to the wonders of Nature. “The Olympic Elk,” one of this series taken in Olympic National Park, was released during the year.
THE PARKS OF THE NATION’S CAPITAL
The National Capital Parks, which together have the status of a field area of the National Park System, present problems and are the locale of events which differ materially from those of other areas administered by the Service. The sense of proprietorship felt toward the capital city by Americans everywhere extends to these parks; as many major events of the year indicate, they are something more than a metropolitan park system.
Memorial Bridge Equestrian Statues.—Fulfillment of efforts to complete the ornamentation of the District of Columbia approaches to the Arlington Memorial Bridge was marked by ceremonies last September when four heroic equestrian statues were dedicated on the Memorial Bridge Plaza. The statues had been cast in Italy as a gift to the people of the United States from the people of Italy. The President of the United States and His Excellency Alcide de Gasperi, Prime Minister of Italy, participated in the ceremonies.
The "White House.—Prior to reoccupancy of the White House in March, after renovation, the Office of National Capital Parks restored
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 385
and improved the lawn areas surrounding the Executive Mansion. Temporary buildings erected in connection with the restoration work were removed. Other work included a major planting of boxwood on the north grounds, replanting of the east and west gardens on the south side of the mansion, introduction of an azalea garden, moving and planting several large trees, and resodding of approximately 4 acres of lawn.
Mahatma Gandhi Memorial.—The National Commission of Fine Arts approved a site, not to exceed 6 acres, in Barnard Hill Park for the Mahatma Gandhi Memorial, in accordance with an act of the Eighty-first Congress. The India League of America, sponsors of the memorial, plan to erect a memorial building containing an auditorium, library, and museum.
The Netherlands Gift.-—On April 4, Queen Juliana of the Netherlands, at ceremonies held in Meridian Hill Park, made a token presentation of a 32-bell carillon to the people of the United States in behalf of the people of the Netherlands. The gift was accepted by the President of the United States. The permanent carillon of 49 bells is now being cast in the Netherlands. A permanent site for the bells has not yet been chosen.
A New Park, and Other Matters.—By transfer from the Department of Agriculture, Blue Pond Park was added to the National Capital Parks system. In its 380 acres, a stream valley and lake give it good park development possibilities. Lying north of the National Agricultural Research Center, it is within a mile of the Baltimore-Washington Parkway. * * * Preliminary steps have been taken for transfer of complete control of the Carter Barron Amphitheater, in Rock Creek Park, from the Sesquicentennial Commission to National Capital Parks. A fund of $200,000 from the Commission’s appropriation, to be used to complete the facility, was also authorized. * * * National Capital Parks and the Trees and Parking Division of the District of Columbia government, working jointly, discovered 470 cases of Dutch elm disease in the District during 1951; 65 were on park lands. The use of DDT spray and removal of infected trees continue to be the principal methods of control. Though the number of diseased trees has increased rapidly since the first was discovered in 1947, the horticultural staff predicts a decrease in 1952.
STORM, SNOW, AND FLOOD
On September 1, 1951, a cloudburst caused one of the most severe flash floods in the history of the Great Smoky Mountains. The Newfound Gap Highway was washed out in five places, and completely destroyed in two. The Alum Cave trail to Mount LeConte was demolished. There were extensive landslides on the slopes of Mount
386 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
LeConte. Both bridges into the Sugarlands maintenance area were washed out and had to be repaired before road-repair equipment could be taken out. The Jim Carr Grist Mill, of great interest to visitors, was washed away. Much other damage was done. Miraculously, no park visitors were injured. The Newfound Gap Road, opened for through travel 8 days after the flood, is now being completely repaired. Additional severe damage was caused by rain and wind on three occasions during March.
The Cascade Mountain, Sierra Nevada, and Rocky Mountain regions all had extraordinarily heavy snowfall last winter. At Lassen Volcanic National Park, 224 inches of snow piled up during a 28-day period. Mesa Verde had a winter of record severity. At Badger Pass, in Yosemite, the snow depth reached 17 feet. Snowfall in Sequoia and Kings Canyon exceeded all previous records. On March 20, the depth at Crater Lake headquarters was 221 inches, also a new record. The snow pack and water content in the higher elevations at Rocky Mountain exceeded all previous records.
The National Park Service was put to more than usual expense in keeping park roads open in the areas of heavy snow. Though much energy was expended—at considerable cost—on removing snow from roofs, many Park Service and concessioner structures suffered serious damage.
Rain-makers claim credit for the greatly increased amount of rainfall and snowfall in southern Utah, the effects of which were highly beneficial to Bryce Canyon and Zion National Parks. Increased precipitation throughout much of the Southwest after a long and severe drouth resulted in extraordinarily fine displays of spring flowers in many of the southwestern areas administered by the National Park Service.
NOTES OF INTEREST
Kilauea Erupts.—The 18-year quiescense of Halemaumau, Kilauea Volcano fire-pit, was broken near midnight, June 27. The start of the eruption produced a molten fountain of lava 700 feet high. The eruption fissure, extending northeast-southwest across the fire-pit floor, became a curtain of fire; lava fountains played along its 3,000-foot length to a height of 400 feet. Within 30 minutes after the eruption began, the whole crater floor was a seething, boiling cauldron.
In the first 2% days, 51,360 visitors were recorded. They posed serious traffic and safety problems. A predeveloped traffic pattern and highway sign program was put in operation immediately; successfully, too, since 70,000 visitors (up to June 30) came and saw without an accident. Most visitors came after dark, since the eruption showed up most spectacularly in the black of night.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 387
Though a barricade was promptly established 10 feet back from the rim of Kilauea Crater, an acute safety problem developed because of the huge cracks behind spectators’ vantage points. An elevated steel ramp, away from the unstable rim, has been suggested as a means of meeting this problem, likely to recur at any time.
River Trips in Dinosaur.—The controversy over Dinosaur National Monument dams has focused much public attention on that area. Many persons interested in determining for themselves the quality of the area have visited and explored it, including the taking of boat trips down the Green and Yampa canyons. Forty-five persons made such trips in the 1951 fiscal year, and approximately 120 in 1952.
Work done during the year now enables motorists to drive to Harpers Corner, offering a splendid view of the confluence of the rivers; the road to Pats Hole is also being improved.
Parle Visitor Fatalities.—During the calendar year 1951 there were 42 visitor accident fatalities—1.13 per million visitors. Motor vehicle accidents took a toll of 23 lives, drownings 16, falls 2, and lightning 1. There were no mountain climbing fatalities.
Airplane Crashes.—The wreckage of a C-47 Air Force plane was discovered in Lassen Volcanic National Park on May 30. It was identified as one which had been en route from Spokane, Wash., to Travis Air Force Base on December 26, 1951. Army officials identified the bodies of three crew members and five military passengers. * * * A military plane crashed into the side of Mount Crillion, Glacier Bay National Monument, at about the 10,000-foot level on July 20,1951, killing all on board. Because of the hazardous conditions, no attempt was made to remove the bodies.
SAFEGUARDING SPECIAL RESOURCES OF FEDERAL LANDS
Historical, archeological, and paleontological field research on lands under Interior Department jurisdiction may be undertaken only ifnder permit issued by the Secretary of the Interior—a requirement of the Antiquities Act of 1906. It is, as it was intended to be, a major safeguard against “pothunting” and against the conduct of research by persons or groups not qualified to undertake it. Investigations of research projects and of the qualifications of those proposing to conduct them, in advance of permit issuance, are the responsibility of Departmental Archeologist Jesse L. Nusbaum, headquartered at the Region Three office of the National Park Service, in Santa Fe, N. Mex.
The increasingly high cost of conducting such research is the principal reason for a slight drop in number of projects during the 1952 fiscal year. There wTere 28 applications for Antiquities Act permits. One applicant was denied a permit for lack of qualification and, subse
388 ☆ annual report of the secretary of the interior
quently, multiple violations in anticipation of receiving a permit were investigated and confirmed by the Bureau of Land Management.
Field work was continued during the year under previously issued permits; on 14 projects work was resumed under permit renewal or was initiated under new permit on 24 projects. Two archeological and nine paleontological programs were conducted in Big Bend, Everglades, Glacier, and Zion National Parks, and Arches, Badlands, Capitol Reef, Canyon de Chelly, Death Valley (four projects), Petrified Forest, and Rainbow Bridge National Monuments.
Participating in this active program were the Universities of Alaska, California, Colorado, Florida, Harvard, Michigan, Oregon, Southern California, Stanford, Texas, and Utah; museums included American Museum of Natural History, Arizona State, Frick Laboratory of the American Museum, Museum of New Mexico, National Museum of Canada, Peabody Museum of Harvard, and the Southwest Museum. Dr. Nusbaum has carried on such field inspections as funds would permit to assure conformity with permit requirements and approved field methods. There has also been constant effort to educate the public on the necessity of safeguarding surviving antiquities against damage or loss through pothunting, unscientific excavation and, in a wholesale scale, use of huge earth-moving equipment. Pending decision is Dr. Nusbaum’s request that the West Coast Pipeline Co. meet the cost of archeological survey and salvage excavation on Interior lands along the right-of-way of its projected 1,100-mile pipeline from West Texas to near Los Angeles.
Increases in population and industrial development in. hitherto relatively isolated areas bring with them threats to the protection of rich archeological treasures, as, for example, in the San Juan Basin.
Cooperation with Canada.—Dr. Nusbaum, at the request of Canadian archeological authorities, advised them regarding the adoption in Canada of legislation similar to our 1906 Antiquities Act. His recent experience in salvage archeology in connection with construction of fuel pipelines was also made available to Canadian authorities for similar operations in Western Canada.
BUREAU OF INDIAN AFFAIRS
Dillon S. Myer, Commissioner
Greatly increased emphasis on the ultimate transfer of Indian Bureau function either to the Indians themselves or to appropriate State and local agencies was reflected during the fiscal year 1952 in almost every phase of the program of the Bureau of Indian Affairs.
One of the outstanding developments was the establishment of a new Division of Program in the Central Office of the Bureau. The prime function of the new Division is to stimulate, guide and assist the development of joint programing by tribal leaders and Bureau personnel looking toward improvement of the basic economic status of Indians and step-by-step withdrawal of the Bureau from their affairs. Toward this end, staff personnel of the Division visited a large number of Indian areas, consulted with Bureau field personnel and tribal leaders and addressed numerous Indian community meetings on the subject of program development. The result was to bring the centrally important programing work of the Bureau into much sharper focus and to lay the groundwork for more tangible progress in the direction of actual Bureau withdrawal from tribal affairs.
Another development of major significance was the introduction in Congress of bills sponsored by the Bureau and the Department which would provide the authority necessary for complete Bureau withdrawal from the State of California (S. 3005, H. R. 7490, H. R. 7491) and from the area of western Oregon formerly under the jurisdiction of the Grand Ronde-Siletz Agency (S. 3004, H. R. 7489). Before the bills were introduced, Bureau field personnel held extensive consultations with the various Indian groups which would be affected and with key officials of the two States. Because of the many complex land and water problems involving the Indians of California, it was anticipated that the effectuation of complete Bureau withdrawal would require from 3 to 5 years after enactment of the authorizing legislation. Among the 41 bands of the Grand Ronde-Siletz area, it was expected that after enactment of the legislation the job of withdrawal
389
390 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
could be completed within a year. While none of the bills was enacted prior to congressional adjournment, committee hearings were held and witnesses heard in both the Senate and the House of Representatives.
As part of the general pattern of withdrawal activities, the Bureau took additional steps during the year to accelerate the transfer of responsibilities for educating Indian children t othe regular publicschool system of the country. In a number of areas, where there are both Indian and non-Indian children to be educated, public schools and Indian Service schools were merged under a plan of pooled resources and joint responsibility for operations. In other areas, where the school-age population is almost exclusively Indian, consultations were held with local school districts or with State educational officials looking to the outright transfer of responsibilities for the operation of Indian Service schools. Plans for transferring 25 Indian Service schools on this basis were developed before the close of the fiscal year and were expected to be consummated during fiscal year 1953. At the close of the year the Bureau had contracts providing for the education of Indian children with 14 State departments of education and 27 local school districts. One major new contract was consummated during the fiscal year with the Territory of Alaska.
Similar activities were carried on looking to the transfer of responsibilities for the protection of Indian health from the Bureau to appropriate State or local agencies. While no transfers of Indian Service hospitals were accomplished during the year, basic authority for such transfers was provided by enactment of Public Law 291 which was approved April 3,1952. This act also authorized the admittance of non-Inclians as patients in Indian Service hospitals in areas where other hospital facilities are not available.
In presenting its appropriation estimates for the fiscal year 1953, the Bureau requested funds to be used specifically for contracting under the Johnson-O’Malley Act with non-Federal hospitals for the care and treatment of tubercular Indians, particularly Navajos. It was hoped that a total of 400 beds in various hospitals throughout the country could be provided in fiscal year 1953 as one important means of relieving the serious tuberculosis problem on the Navajo Reservation. The Bureau also continued its contracting with States under the Johnson-O’Malley Act for provision of public health and preventive medical services to the Indians by the county health departments. At the close of the year the Bureau had 30 contracts of this kind in effect with States, counties, or local health units.
In the field of law enforcement the Bureau conducted numerous negotiations with various tribal groups and with State authorities looking toward a transfer of jurisdictional responsibilities within
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 391
Indian reservations from the Federal Government to the States. Bureau-sponsored bills were introduced in Congress providing for a transfer of Indian civil and criminal jurisdiction to the States of Minnesota, Wisconsin, Nebraska, California, Oregon, and Washington. Although none of these bills were enacted, committee hearings were held on several and one (the California transfer bill) was passed by the House of Representatives.
The 10-year rehabilitation program for the Navajo and Hopi Tribes, which was initiated in the fiscal year 1951, moved forward on many fronts during its second year of operations. Construction projects to improve and expand the school facilities were launched and carried forward at seven key locations on the Navajo Reservation. These included six conversions of existing day schools to accommodate boarding students and construction of a large new boarding school at Shiprock, N. Mex., designed for 750 pupils. Work was also advanced on projects designed to improve the basic health installations, to enlarge the existing irrigation facilities, to achieve better conservation of soil and moisture resources, and to bring about better transportation and communication systems in the Navajo-Hopi area. Arrangements were made for a basic survey of mineral resources covering a substantial part of the reservation area to be conducted during the summer of 1952 by the Universities of Arizona and New Mexico. Prospects for further progress under the long-range program were encouraging since a total of $9,259,000 was made available for the program under the Bureau’s appropriation for the fiscal year 1953 as compared with $8,645,520 in 1951 and $6,675,100 for 1952. At the same time, however, it was becoming increasingly apparent that, because of inflationary factors, the full program contemplated when Public Law 474 of the Eighty-first Congress was enacted could not be carried out with the $88,570,000 authorized by that act.
Leasing of Indian lands for oil and gas production reached an all-time high during the fiscal year. Activity of this kind was especially pronounced at the Fort Peck Reservation in Montana, at several of the Sioux reservations in North and South Dakota, and at the Ute Mountain, Southern Ute, Jicarilla Apache, and Navajo reservation areas in southwestern Colorado and northwestern New Mexico. Altogether approximately 600,000 acres of Indian lands were leased for oil and gas production in fiscal 1952 compared with approximately 400,000 acres the previous year. The amount received by Indians in bonuses as compensation for the signing of oil and gas leases almost doubled, increasing, from less than $4,000,000 in fiscal 1951 to more than $7,000,000 in 1952. The total income realized by Indians from such leases in the form of bonuses, royalties, and rentals rose from approximately $13,000,000 in 1951 to more than $15,000,000 in 1952.
392 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
As another part of the general movement toward withdrawal of Bureau supervision and services, intensive efforts were made during the year to encourage Indians to seek loans from banks and other types of credit institutions rather than from the Bureau. An important move in this direction was the modificaion of the regulations governing Indian trust -land so as to permit the mortgaging of such lands under certain prescribed conditions. As a result of this change, Indians owning allotted land were put in position for the first time to borrow from the private and public sources on a basis of equality with other citizens. A survey of Indian borrowing conducted during the year showed that in 1951 Indians received nearly $20,000,000 of credit from non-Bureau sources that could be accounted for and the actual amount was probably much greater. The total amount of Bureau loans of all types outstanding on June 30, 1951, was approximately $24,000,000.
In the field of administrative management there were two developments of major importance. One was the work accomplished by a property survey team from the Bureau’s Central Office which visited 5 of the Bureau’s 11 area offices during the year and colloborated with the area staffs in completing an inventory of all movable property on hand, installing new procedures for controlled procurement and property management, and disposing of all unserviceable and obsolete property and scrap. The other was a movement to establish personnel classification officers in each of the Bureau’s area offices in order to decentralize the large amount of classification work previously performed in the Central Office. By the end of the fiscal year, classification positions had been established in six of the area offices and filled in four.
PROGRAM DEVELOPMENT
In the Bureau’s annual report for the fiscal year 1951 reference was made to the need for “a group of qualified personnel, free of responsibility for the everyday administration of Indian affairs, who could devote their full attention to the job of developing cooperatively with each of the major Indian groups an individualized program of resource development accompanied by constantly expanding Indian control over the management of their individual and tribal affairs.” This need was met early in the fiscal year 1952 by the establishment and staffing of a Division of Program in the Bureau’s Washington Office.
During the fiscal year the new Division devoted its attention largely to two main tasks. One was to develop the major outlines of policy and procedure that should govern programing activity throughout the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 393
Bureau. The second was for individual members of the Division staff to work actively with Indian tribal groups and local agency staffs in stimulating and guiding the formulation of specific programs aimed at the ultimate objective of Bureau withdrawal from Indian affairs.
■On the policy side primary emphasis was given to the principle of consultation with the Indians. In connection with contemplated transfers of functional responsibilities to State or local agencies, this means that the views of the Indians to be affected will be sought and carefully considered before any final action is taken. In the development of comprehensive programs affecting specific Indian groups, the Bureau not only seeks the views of the Indians involved but encourages their maximum participation in the actual job of data analysis and program formulation. In fact, this Bureau’s ideal concept of its role in program development is that of a consultant to the Indian groups. As a practical matter, however, it is recognized that much of the initiative and responsibility for program formulation will have to be assumed—at least in the early stages—by Bureau representatives.
Another principle which received considerable emphasis during the year was that the development of a withdrawal program affecting any particular Indian group must be preceded by and based upon a compilation of all the relevant factual data. This includes such things as an inventory of tribal and individual Indian resources, a study of the laws and treaty obligations affecting the group, an appraisal of the status and effectiveness of existing tribal organization, and many others. The actual task of compiling factual data of this type with respect to several major Indian groups was one of the important jobs undertaken by the Division of Program during the fiscal year.
Another facet of Bureau policy on withdrawal was defined in February 1952 following a visit to the Washington Office of the Bureau by several leading members of the Osage Tribe of Oklahoma. In a letter to the chairman of the Osage Tribal Council the Commissioner of Indian Affairs enunciated three major points which were subsequently reproduced and brought to the attention of other tribes throughout the country. The three points are:
1. If any Indian tribe is convinced the Bureau of Indian Affairs is a handicap to its advancement, I am willing to recommend to the Secretary of the Interior that legislative authority be obtained from the Congress to terminate the Bureau’s trusteeship responsibility with respect to that tribe.
2. If any Indian tribe desires modification of the existing trusteeship in order that some part or parts thereof be lifted (such as the control of tribal funds, the leasing of tribal land, as examples), and if the leaders of the tribe will sit down with Bureau officials to discuss the details of such a program of partial termination of
394 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
trusteeship, we will be glad to assign staff members to work with the group with a view to developing appropriate legislative proposals.
3. If there are tribes desiring to assume themselves some of the responsibilities the Bureau now carries with respect to the furnishing of services, without termination of the trusteeship relationship, we are prepared to work with such tribes in the development of an appropriate agreement providing for the necessary safeguards to the tribe and its members.
This statement constitutes, in effect, a standing offer by the Bureau to work constructively with any tribe which wishes to assume either full control or a greater degree of control over its own affairs.
Actual programing activities of the Bureau during the fiscal year were focused primarily on five different types of Indian groups.
First were those groupings in which a substantial number of Indians had expressed a positive desire to achieve full independence from Federal trusteeship and supervision in the near future. In this category were the Indians of California (except for the Agua Caliente Band of Palm Springs), the 41 bands of western Oregon formerly under jurisdiction of the Grand Ronde-Siletz Agency, and the Klamath Tribe of south-central Oregon. Specific legislation designed to facilitate complete withdrawal was developed in consultation with the first two groups and presented to the Congress but not enacted. While no legislation was drafted affecting the Klamath Tribe, a number of consultations on the question of Bureau withdrawal were held during the year involving tribal leaders, representatives of the Oregon State government, and Bureau participants.
The second category included two tribes with substantial assets which are financing with tribal funds a major share of the cost of services and trusteeship provided for them by the Bureau—the Osage Tribe of Oklahoma and the Menominee Tribe of Wisconsin. Although both tribes indicated some initial reluctance to contemplate the prospect of Bureau withdrawal, a number of consultations were held with them during the fiscal year and efforts were being continued to elicit their active cooperation in the development of constructive programs.
The third category might be called the Missouri Basin group. This includes seven tribal groups which will be more or less directly affected by various flood-control and irrigation projects planned for the upper Missouri Valley and which are consequently faced with the necessity of planning some readjustment in their living patterns. The seven reservations involved are Fort Berthold in North Dakota, Standing Rock in North and South Dakota, and Cheyenne River, Crow Creek, Lower Brule, Rosebud, and Yankton in South Dakota. Programing studies of one kind or another were carried on at all of
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 395
these reservations during the year. The most intensive work, however, was done at Standing Rock and Cheyenne River.
In the fourth category were several Indian groups, more or less remote from local agency headquarters of the Bureau, which are currently receiving from the Bureau only nominal services and supervision. Groups of this kind which were studied by the Bureau in an exploratory manner during the fiscal year included the Sac and Fox of Iowa, the several Indian bands and tribes of Michigan, and a number of tribes in Kansas and northeastern Oklahoma.
The fifth category included an assortment of tribal groups such as the Southern Ute and Mountain Ute of Colorado, the Jicarilla Apaches of New Mexico, the Red Lake Band of Chippewas in Minnesota, the tribes under jurisdiction of the Winnebago Agency in Nebraska, and the various bands under the western Washington Agency. Programing discussions were held with all of these groups during the fiscal year 1952 and additional sessions are planned for 1953.
INDIAN HEALTH
Although there was no marked reduction in mortality and morbidity rates among Indians during 1952, a number of basic developments will mark the year as the beginning of a new’ era of accomplishment in the health services.
Inauguration of a training course in sanitation for qualified young Indians and employment of graduates on their home reservations, expansion of the practical nurse training school for Indian girls, increasing cooperation with the United States Public Health Service with assignment of commissioned medical and dental officers to Bureau facilities, management improvement advances in hospital operations, increasing cooperation with State health departments in the field of public health and prevention of diseases, and definite action in line with the Bureau’s withdrawal objectives all occurred during the year.
As part of the general emphasis on withdrawal objectives, the Bureau stated during the year that it will not continue to operate health facilities when other similar facilities are available to the eligible Indians without segregation. Final decision on the use of these alternative facilities is, however, to be made only after discussion with the tribes involved or with their governing councils. In line with this policy, the Fort Berthold Indian Hospital at Elbowoods, N. Dak., was closed August 18, 1951. Nine community or sectarian hospitals now provide hospital facilities and members of the State medical association provide medical services to the eligible Indians of this reservation. A small agency health staff is maintained at agency headquarters. This
226396—53---26
396 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
plan of providing services in established community facilities and through private practitioners of medicine was approved by the tribal council, the State health council, the State hospital, medical, and pharmaceutical associations, and the State commission on Indian affairs. At the close of the fiscal year the program was operating to the complete satisfaction of the Indians, the hospitals, the physicians, and the agency. Surveys made during the year pointed to the possibility of closing a minimum of seven additional Bureau hospitals in the near future.
The highest number of physicians and dentists since the micl-1930’s were on duty during fiscal 1952. Even with an increase in physicians, at one time totaling 152, there has been no change in the estimated needs appearing in previous annual reports. A minimum of 250 physicians, including specialists, are needed—210 to staff the hospitals adequately and 40 to provide field services and preventive and public health activities. The past year saw the number of contracts for public health and preventive services with States (including the Territory of Alaska), counties, and local health units reach a total of 30. Under these contracts, $155,604 was paid by the Bureau.
Medical and Hospital Care
During the year, 62 hospitals and 10 out-patient dispensaries were in operation. Five of these were medical centers with specialized staffs, three were tuberculosis sanatoriums, and the remainder were general medical and surgical units. Their sizes vary from 18 to 420 beds. Of these hospitals 40 have fewer than 50 beds. In the continental United States 48 are located in isolated areas varying up to 85 miles from the nearest railroad, 12 are identified as 1-physician hospitals ; but only 4 located in Alaska do not have part-time consultants immediately available.
At one time during the year, there were 152 physicians and 39 dentists on duty. Of these numbers, 85 physicians and 23 dentists were civil-service employees, 67 physicians and 16 dentists were commissioned officers of the United States Public Health Service assigned to the Bureau. The majority of these commissioned officers, having received their professional training at Government expense, have from 17 to 24 months of obligated service to perform. On June 1, 1952, there were on duty 74 civil-service medical officers of the Public Health Service as compared with 37 on June 30, 1951. There were 23 civil service and 16 commissioned dental officers.
During the year, there was a net loss of 13 civil-service medical officers. This loss was due chiefly to the lack of attractive salaries, to the isolated locations of assignment, to a lack of educational and training facilities within the service, and to a lack of other benefits.
Annual report of bureaus and offices ☆ 397
Nursing Service
As is the case with doctors, the shortage of graduate, professional nurses continued to be felt at many of the Bureau’s small hospitals, especially those in remote areas lacking educational, social, and recreational advantages.
Recognizing the need for additional well-trained, subsidiary personnel, especially practical nurses, the Bureau has proceeded with plans to open a school of practical nursing at the Mount Edgecumbe Medical Center, Sitka, Alaska. Although this school is in its initial stages of development and the first year’s class will of necessity be small, it is anticipated that future graduates of the school, together with graduates of the Kiowa School of Practical Nursing, Lawton, Okla., will be valuable supplements to the nursing staff in hospitals in the States as, well as in Alaska. Tentative accreditation by the National Association for Practical Nurse Education has been requested for the Mount Edgecumbe School during its first year of operation.
The status of the nursing staff, as of May 1, 1952, was as follows:
Total number of hospital nurse positions----------------------------------- 84G
Total number of hospital nurse vacancies----------------------------------- 135
Total number of public health nurse positions------------------------------ 87
Total number of public health vacancies------------------------------------ 29
Total number of practical nurse positions---------------------------------- 175
Total number of practical nurse vacancies---------------------------------- 35
Sanitation Activities
Environmental sanitation surveys of reservations and agencies in the Pacific Northwest were conducted in October and November 1951, by the Sanitary Engineer Consultant assigned to the Bureau by the Public Health Service in 1950. This completed a total of approximately 45 such surveys in 18 States and fulfillment of the primary purpose of the assignment. Recommendations were submitted concerning the type and scope of program designed to reduce the current high death and morbidity rates among the Indian population of those diseases usually attributed to faulty sanitation.
Studies were made of existing State and local public health facilities that might be of help in this respect. Unfortunately, in most instances those areas in greatest need of sanitation services are so located as to be without the advantage of full-time public health units under State or local auspices. Therefore, such services, at least for the present and near future, will have to be the responsibility of the Bureau.
During the fiscal year, an important step was taken toward assuming that responsibility. Through the area offices and in collaboration with the respective tribal councils, there were selected 12 Indian youths, 18 to 31 years of age, as sanitarian aides. Through the
398 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
cooperation of the Public Health Service training staff these men were given an 8 weeks’ orientation course at Phoenix, Ariz. Upon completion of the course, these sanitarians returned to their respective reservations where they are now engaged in demonstrating to their own people practical measures directed toward raising the level of sanitation at Indian homes and communities.
Tuberculosis Control
Tuberculosis case finding surveys continued through the year on the reservations. Such surveys were also made at every boarding school operated by the Bureau at the beginning of the school year and will be continued in the future. These surveys w’ere made by mobile X-ray units of the Bureau and of the State health departments and the United States Public Health Service in cooperation with the Branch of Health.
BCG vaccination of the newborn was established as a routine with consent of the parents in the majority of Bureau hospitals. This program is based upon data that indicate that the unvaccinated child is seven times more likely to contract tuberculosis than is the vaccinated child. After the first 5 years’ operation of this program, it will be unnecessary to continue vaccination of school students (begun in 1948) unless a student is found to have lost his immunity. An increasing number of tuberculosis patients were hospitalized under contracts in sanatoriums not operated by the Bureau. This program is scheduled to enlarge markedly during fiscal year 1953.
Oral Health Activities
The oral health program of the Bureau made its greatest advance to date during the fiscal year 1952.
The most outstanding progress was made in the field of preventive dentistry and public health. During the year a program of caries prevention was organized and instituted throughout the Bureau’s jurisdictions. Topical application of sodium fluoride solution to the teeth of Indian children was made available to several thousand pupils in Indian schools by teams in five areas. At the Intermountain Indian School selected cases of malocclusion among the younger pupils were studied and treatment instituted as a preventive service.
The clinical care service program has gained steadily in level of quality care and in the quantity of such services. Conservation of teeth has become the rule rather than the exception, a policy that should have been insisted upon in past years.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 399
Essential manpower is still below the need. As of June 1, 1952, all dental officer positions, which could be filled from available funds, were filled.
Approximately 40,000 children received preventive and corrective oral health services during this year 1952, an increase over the previous year. These services were made available to the school children at over 200 clinical sites.
INDIAN WELFARE
On June 30, 1952, the Indian Bureau’s welfare program in California came to an end as county departments of public welfare throughout the State assumed full responsibility for providing any needed social services to Indian residents whether living on or off a reservation. Among the social services to be provided are child welfare services to Indian children in their own homes and to those in foster homes, as well as provision for general assistance to needy Indian families. California Indians will now receive needed social services on the same basis as other citizens of the State.
During the fiscal year 1952 emphasis was placed on better planning for the care of children made possible by the addition of a child welfare consultant to the central office staff. Studies are being made of family situations with efforts directed to working out any problems that keep children from their own family groups and from attending public schools.
During the winter reservations in the States of North and South Dakota experienced severe blizzard weather with heavy snows blocking roads and covering pastures and fields, with a consequent increase in requests for general assistance. However, the general case load throughout the Service decreased slightly, largely because of the transfer of cases to the program for aid to the totally and permanently disabled under the Social Security Administration.
The average number of persons given general assistance in 1952 was 6,059 a month compared to 6,392 in 1951. The monthly average of children placed in foster homes totals 387.
EDUCATION FOR INDIANS
During the fiscal year 1952 approximately 52,800 Indian children were enrolled in public schools. Of this number an estimated 21,800 have been fully accepted in the public schools with no aid from the I ederal Government. Aid was supplied for the remainder—31,000 children—to local districts which were unable to assume the full cost because of nontaxable Indian lands in the districts through contracts
400 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
negotiated under the provisions of the Johnson-O’Malley Act. The average cost to the Bureau amounted to approximately one-half of the total per pupil cost to the district.
In 1952, 14 State contracts and 27 district contracts were in effect. This is an increase of one State contract over the preceding fiscal year. A decrease of 15 district contracts from the preceding year was because of the consolidation of district contracts on a county basis in one area.
The Indian Bureau has withdrawn from direct school operations in the States of Idaho, Michigan, Washington, and Wisconsin. Bureau responsibility in these States (excluding Michigan) is exercised through financial assistance to the States under the provisions of the Johnson-O’Malley Act.
The Bureau operated during the year a total of 93 boarding schools, 233 day schools in 14 States and Alaska with an approximate enrollment in all schools of 38,000 Indian children. Of this number, 40 schools are high schools offering both vocational and college prepara-t ory courses, and are accredited by the States in which they are located. Haskell Institute at Lawrence, Kans., is also accredited by the North Central Association of Colleges and Secondary Schools.
Since many of the pupils entering these schools could not speak English and were unfamiliar with many phases of modern living, emphasis was placed on the acquisition of English, and the development of habits, knowledge, and skills that would enable the students to make the adjustments necessary to their economic welfare.
Oklahoma provides education for all Indian children, except those who need boarding school care. A special services contract amounting to $320,000 was awarded to Oklahoma as compensation for the nontaxable land in the State.
Texas now holds a contract providing for the payment of $18,000 to the State for health, education, and welfare services for the Indian children on the Alabama-Coushatta Reservation near Livingston, Tex.
Contracts amounting to $14,862 were entered into with Brown and Jackson Counties, Kans. Seventeen school districts in which Indian children attend public schools were involved. District contracts will not be negotiated for fiscal year 1953 since the attorney general of Kansas has ruled that the State of Kansas cannot enter into such contracts.
The Kickapoo Day School, located near Horton, Kans., was closed effective the beginning of fiscal year 1952. During 1951 this school had an average daily attendance of nine pupils and three employees. The school district in which the school was located now provides education for the children. The budget for the operation of this school for the fiscal year 1951 was $9,921.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 401
Arrangements were completed during the year for the cessation of Federal operation of the Heart Butte Day School on the Blackfeet Reservation in Montana. The local public school district will operate this school during the fiscal year 1953.
Discussions were also undertaken during the year with the Havre, Box Elder, and Big Sandy School Districts on the subject of placing federally operated day schools on the Rocky Boy’s Reservation in the public school system.
In the Aberdeen area three Federal schools were closed and one Federal school converted to a public school. This action shifted approximately 160 children to public schools. In addition, 10 schools are operating under a cooperative financial arrangement between the Federal Government and school districts or counties. These schools enroll approximately 1,900 children. In other words, about 2,000 additional Indian children are now attending schools cooperatively supported and managed, or under complete public school administration.
In the Minneapolis area the only Bureau schools still operating were Pipestone Indian Schoo], Pipestone, Minn.; Iowa Sac and Fox Day School; and Cherokee in North Carolina. A total of 1,370 Indian pupils was enrolled in Wisconsin and 2,626 in Minnesota, in public schools receiving Federal aid under Johnson-O’Malley contracts. Of these numbers, 1,021 and 2,118 respectively, were elementary pupils, or a total of 3,139. The average daily attendance for Pipestone, the only school of elementary level accepting boarding school enrollment from Minnesota and Wisconsin was 123.
The Portland area also made progress in transferring the responsibility for Indian education to the States. Each of the three States in the area—Washington, Oregon, and Idaho—is now operating under Johnson-O’Malley contracts, with a complete transfer of educational facilities to Washington and Idaho. In Oregon, the transfer is complete, except for the operation of a small reservation boarding school, a day school on the Warm Springs Reservation and a nonreservation boarding school at Chemawa.
During recent years there has been a steady increase in the number of children enrolled in Navajo Reservation schools. Figures for the 1951-52 school year show that this tendency is still in effect as there was an increase in enrollment of 750 during 1951-52 over 1950-51. Enrollment has increased from 5,916 in 1942-43 to 13,480 in 1951-52.
Through State contract money, some of the Navajo children are benefiting from public schools which are open to them. During the year four amalgamated schools (involving a pooling of public school and Indian Bureau resources) were opened on the Navajo Reservation at Chinle, Window Rock, Mexican Springs, and Navajo Pumpiim Station.
402 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Attendance of Indian children in Arizona public schools increased to 3,521 (preliminary figure by Arizona State Board of Education) in the 1951-52 school year from 3,024 the previous year. The Bureau’s contract with the Arizona State Board of Education for the fiscal year 1951-52, under the Johnson-O’Malley Act, was for $180,042, bringing the total amount paid to Arizona for education of its Indian youth to $942,600. Three-fourths of the salary of the State director of Indian education, who also serves Arizona as assistant State director of public instruction, was paid by the Bureau. Area officers are trying to get the State board of education to arrange for a full-time worker on Indian education matters.
With the closing of the Whiterocks Boarding School on the Uintah and Ouray Reservation, scheduled for fiscal 1953, the Bureau of Indian Affairs will be out of the school business in the State of Utah, except for the Intermountain School for Navajos at Brigham City. Integration of the Indian children within the public system has been accomplished in a manner satisfactory to all concerned. Some of the school buildings are being turned over to the State which will operate them as a part of the public school system.
Only three Bureau-operated schools remain in the State of Nevada: the Stewart Indian School, the McDermitt Day School, and the Goshute Day School.
In Alaska the Bureau is operating 92 days schools with 146 roomunits as well as three boarding schools to provide educational opportunities for more than 5,000 native children who live in the isolated areas of the Territory. During the fiscal year 5 schools were successfully operated by the Territory under the Johnson-O’Malley contracts, and initial steps were taken to contract with the Territory for the operation of 8 additional schools during the 1952-53 school year. In addition, the transition of the Alaska Native Service school at King Cove to an independent school system under the Territorial department of education was completed. This school has an enrollment of 49 and has 2 units.
An analysis of all Alaska Native Service Schools was made to determine target dates for transfer to the Territorial school system. Plans call for completing the transfer to the Territory by 1960. Additional schools to be transferred each year are as follows:
School year Number of schools Enrollment School year Number of schools Enrollment
1953-54 13 604 1957-58 14 549
1954-55 14 390 1958-59 15 478
1955 56 14 729 1959-60 11 459
1956-57 7 508
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 403
INDIAN EMPLOYMENT
Placement of Indians in employment took place in fiscal 1952 at an encouragingly high level and on a much wider scale than ever before. Out of a total of approximately 59,000 Indian placements reported during the year, the Bureau’s placement staff participated directly in about one-third. In contrast to the Bureau-assisted placements of 1951, which involved mainly Nava] os and Hopis, those placed with Bureau assistance in 1952 were from a large number of tribal groups throughout the western United States and Alaska. Nearly 6,000 of the placements reported were in permanent employment and about two thirds of these involved Bureau participation.
In many areas the Bureau placement program made a significant contribution to defense activities through recruitment of Indians for steady employment in army depots and other military installations and construction projects located in isolated areas, where recruitment of labor is a major problem. This was especially true in Alaska where several hundred Indians and Eskimos were brought into their first contact with steady employment.
In order to assist Indians leaving reservation areas for permanent employment in becoming established in their new locations, the Bureau initiated a program of financial aid for such resettlers in January 1952. During the balance of the fiscal year assistance of this type was extended to approximately 1,000 Indians, including some 480 family units.
In the field of training to provide Indians with skills which they need for permanent employment, the most significant development of the year was the establishment of an apprenticeship program in the Navajo-Hopi area to teach 27 skilled trades. This activity, which was part of the 10-year rehabilitation program for Navajo and Hopis, was initiated in cooperation with a number of labor unions, the State Employment Services of Arizona and New Mexico, and the Labor Department’s Bureau of Apprenticeship Training. It is being operated under the direction of a joint apprenticeship committee consisting of Bureau officials, Navajo and Hopi Tribal representatives, and officials of the Arizona and New Mexico State Federations of Labor.
Up to the fiscal year 1952, the placement program was in operation in only seven areas—Aberdeen, Billings, Juneau, Minneapolis, Muskogee, Portland, and Window Rock. Except for the Navajo-Hopi program in the Window Rock area, placement staff was assigned only at the area level and there was no provision for financial assistance. During the 1952 fiscal year, three additional area placement offices were established—at Albuquerque, Anadarko, and Phoenix; eight
404 ☆ annual report of the secretary of the interior
agency placement offices were established at the larger agencies—Pine Ridge, Rosebud, Turtle Mountain, Fort Berthold, Standing Rock (to cover Cheyenne River also), Consolidated Chippewa, Papago, Fort Belknap (to cover Fort Peck also), and additional staff was provided in Alaska and Oklahoma to cover nonreservation areas. Field placement offices, to develop permanent employment opportunities for Indians in the larger urban areas and to assist in problems of adjustment, were established at Los Angeles, Denver, and Salt Lake City replacing the former field offices in those cities which were concerned chiefly with seasonal placement of Navajos. In addition, one entirely new field placement office was opened during the year in Chicago.
The Bureau placement staff worked in close cooperation during the year with the United States Employment Service and its affiliated agencies, and with the Railroad Retirement Board, to make additional employment services available on Indian reservations. Specific working agreements were reached between the Bureau and the Arizona and New Mexico state employment service agencies whereby these State agencies would establish offices on the Navajo and Hopi Reservations in space provided by the Bureau.
ADMINISTRATION OF INDIAN LAND
In the administration of Indian land, during fiscal 1952, major consideration was given to the establishment of procedures to facilitate the orderly withdrawal of Federal services and supervision over the real property of the Indians, the development of the mineral resources, and the elimination of tenure problems which have resulted directly from the land allotment system when Congress enacted the general allotment act of February 1887 (24 Stat. 388).
The principal asset of Indians today is their remaining landholdings, which in many cases include valuable stands of timber and mineral deposits. Some of the land is extremely valuable for home sites and commercial enterprises. To effect an orderly withdrawal it is necessary to assist the Indians to marshal their resources, principally real property, to reduce scattered landholdings and undivided interests in lands to the least possible number and to prepare programs for the most advantageous use of these resources.
In fiscal 1952 the Bureau continued a study of the existing regulations pertaining to land transactions and assembled material for inclusion in new manuals covering the various phases of land work. This involved, among other things, the delegation of authority to the Area Directors to approve practically all transactions arising in connection with the major land activities. Significant progress was made in the preparation of manuals for guidance of the field officers in proc
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 405
essing and the making of decisions on numerous types of land transactions.
Land Transactions
During the fiscal year, patents in fee were issued covering a total of 333 parcels of Indian land comprising a total area of 61,283.04 acres. Under supervised sale, 496 parcels of Indian-owned land comprising an area of 61,312.21 acres were sold for a total consideration of $1,713,537.84.
The demand for land by non-Indians and the high prices being paid have resulted in a steady increase in the number of Indians requesting sales of their land, the removal of restrictions or trust, and patents in fee, so that they may dispose of their holdings. In fiscal 1952 it became obvious that many Indians are progressing economically to the point where they are able to acquire additional tracts of land or to acquire all of the inherited interests in tracts in which they have inherited part interests. Other Indians are seeking to consolidate their holdings into workable units. As a result, the transfer of land continued at a rapid rate, but the number of calls for assistance was far in excess of those that could be handled by the available field staff, which was responsible not only for processing the land conveyances but also for appraisal of lands, oil and gas and mineral leasing, rights-of-way, and agricultural and business leases.
At the end of the fiscal year 1952, there were nearly 1,300 requests, in one form or another, from Indians for assistance in obtaining; patents in fee that were not acted upon. The requests, that could not be handled by the present staff, for sale of Indian land totaled 4,940. Other requests not disposed of, for land conveyance, including exchanges between individuals, partitions among heirs, removal of restrictions against sale, and the like, totaled 1,550. There was also a backlog of work relating to purchases, leases for agricultural and business purposes, the preparation of data related to the determination of heirs to the lands in estates of deceased Indians, and the records of the titles to the land.
Interest in Indian Oil Grows
Interest in the oil and gas potentialities of Indian lands in the Dakotas and Montana reached a new high in fiscal 1952 following discoveries in the Williston Basin and the Murphy discovery well brought in on the Fort Peck Reservation. This is the first production on the reservation.
During the year, major operators paid substantial bonuses for oil and gas leases on Indian lands within the Fort Berthold, Standing
406 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Rock, Cheyenne River, and Pine Ridge Reservations in the Dakotas and also on the Crow Reservation in Montana.
Development in the San Juan Basin of northwest New Mexico and southwestern Colorado resulted in heavy leasing activity on the Southern Ute, Ute Mountain, Jicarilla, and Navajo Reservations.
Discoveries on the Uintah Reservation, Utah, have stimulated leasing on the reservation. In all of these areas there is considerable wildcat drilling.
A contributing factor in the increased lease sales was the elimination during the year of the provision in the regulations that lessees may hold only a limited acreage. Approximately 600,000 acres were leased during the year for a bonus in excess of $7,000,000. Approximately 2,100,000 acres were held under lease at the end of the year. From 11,776 oil wells and 408 gas wells a royalty income of $6,853,825 was collected. The total income to the Indians from mineral bonuses, royalties, and rentals was in excess of $15,000,000.
The discovery of oil on the Fort Peck Reservation, Mont., resulted in requests that large areas be put up for lease. At the first lease sale ever held on the Fort Berthold Reservation, N. Dak., 17,290.16 acres sold for a bonus of $34 an acre. On the Cheyenne River Reservation, S. Dak., 20,320 acres were sold for a bonus of $60,000. Although no production was obtained on the Jicarilla Reservation in New Mexico, it continued to hold the strong interest of the operators. During the year the Jicarilla Apache realized almost $2,000,000 from bonuses. On the Uintah and Ouray Reservation, Utah, 22,500 acres brought a bonus of $1,700,000. On the Southern Ute and Ute Mountain Reservations, Colorado and New Mexico, 92,000 acres brought a bonus of $1,000,000.
While the reservations in the Dakotas and Montana ranked high in new leasing activities, the Indian lands in Oklahoma continued to hold the lead in production. A number of waterflood projects on the Osage Reservation have been approved. Development is not sufficiently advanced to predict the potentialities of the waterflooding. There was an increase in the number of leases sold and the bonus received in Oklahoma at both the Anadarko and Muskogee Area Offices. At the Anadarko office a record sale was held on March 12, at which 11,663 acres sold for a bonus of $231,904.84.
On the Quapaw Reservation, Okla., three lead and zinc mining leases, involving 305.22 acres, 18 subleases involving 930.48 acres, 6 tailing and remilling leases involving 876.60 acres, 3 chat and boulder leases, involving 279.92 acres were approved. Total income from mining operations for this jurisdiction was approximately $700,000.
Aside from the profits to the Navajos resulting from royalties and employment of Indian miners, the production of uranium on the
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 407
Navajo Reservation became a topic of national interest. During the year an ore-buying station was constructed and placed in operation at Shiprock, N. Mex. It is expected that actual construction of a uranium processing mill will start at Shiprock early in the ensuing year. Another ore-buying station was constructed in the Grants area of New Mexico, where there are a number of Navajo allotted uranium leases. Contracts were negotiated with the Universities of New Mexico and Arizona to conduct mineral surveys during the summer of 1952 on parts of the Navajo and Hopi Reservation with a view to locating the principal economic mineral products.
The impetus in Navajo uranium activities resulted in considerable measure from the careful study and initiative of the Navajo Tribal Advisory Committee. In 1952 the committee adopted a definite procedure for the issuance of mining permits to Navajos and others and encouraged the Navajos to participate both as mining operators and mining employees.
During the year, authority to approve uranium mining permits was delegated to the Navajo area office. The provisions of the prior delegations to the Osage Agency and to the area offices in Oklahoma were broadened with the result that in Oklahoma the administration of Indian mining leases in practically all phases is handled locally. Experience has demonstrated that the delegations to the Navajo area office and the Oklahoma Area Office has resulted in a reduction in the expense of handling the leases and brings quicker and more effective service to the Indians and the mining industry.
SOIL CONSERVATION
In the 11 years since the Indian soil-conservation program was initiated, much has been accomplished in protecting the Indian soil from erosion and in increasing its productivity. Even more has been accomplished in changing the mental attitudes of Indians and in motivating them to take progressive conservation action. However, only 10.2 percent of the total conservation program needed on Indian lands has been accomplished. The program needs to be accelerated materially in order to reduce the loss of Indian farm lands from the present level of 80 acres per day to a negligible figure and to use each acre properly in accordance with its capabilities.
With a Bureau contribution of $1,501,248 in appropriated funds, a soil-conservation program on Indian lands involving total expenditures of $11,806,831 was carried out in fiscal 1952 through contributions made by cooperating land operators. For every dollar of appropriated funds expended, the cooperators contributed $6.86 of the soil- and moisture-conservation program. On 16 reservations on which
408 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
an analysis lias been continuing for several years, it was found that for every dollar spent by the Bureau, farm production increased $32.51 and for every dollar the co-operator spent, it increased $3.38.
During the year material progress was made in soil surveys and land classification which are preliminary to actual initiation of soil-and moisture-conservation operations. This information has been utilized in cooperation with other personnel to establish realistic values of Indian lands and equitable lease rentals. This has brought more income to the owners when the land is leased or sold.
The summer of 1951 saw the continuation of the serious, prolonged drought in Arizona and New Mexico. To assist the Navajo and Hopi people in increasing their permanent water facilities, an erosion-coni' trol structure, called a deep-pit charco, was designed and introduced. During the year approximately 60 of these structures were installed in response to need, complete with permanent storage basin, collecting wings and dikes, desilting basins, and protected inlets. The value of these structures in controlling erosion, silt movement, and runoff was amply demonstrated.
During the year the basis was laid for a student trainee program. The primary purposes of the program are twofold: (1) to have additional technical personnel available during the good summer working period to render valuable field assistance in such subjects as soil surveys, land classification and engineering; (2) to provide technical personnel upon college graduation for immediate employment in the Bureau’s conservation program. During the last month of the fiscal year, the program was operating for the summer of 1952 in seven of the areas.
Indians are increasingly taking a more active part in soil conservation. They have been instrumental in the forming of a number of soil conservation districts. In every case when the formation of a district is to be voted upon, the Indians have voted practically unanimously in favor of formation. In 1952, as a result of their efforts, 17 additional soil conservation district areas (including both new districts and enlargements of existing districts) were created to take in Indian lands. Indians are serving competently in increasing numbers on soil conservation district boards and Production Marketing Administration county committees. Many are also dealing now in direct relationships with such districts and committees rather than through the medium of Indian Bureau channels.
Over one-half of the Indian lands are not yet within soil conservation districts. In these cases, the Indians, with Bureau encouragement, are establishing soil conservation enterprises which are doing much the same type of work as the district organizations.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 409
FOREST AND RANGE LAND
The Secretary and his duly authorized representative, the Commissioner of Indian Affairs, are required by law to practice effective sustained yield management on the Indian forest lands of tribes organized under the Indian Reorganization Act.
On non-IRA lands timber is sold under authority of 36 Stat. 857, sections 7 and 8. It is also the policy of the Secretary of the Interior to manage these lands in accordance with the principles of sustained yield management. Included under both categories are approximately 16 million acres with an estimated volume of 41 billion feet, board measure. According to present knowledge, 6 million acres of this area is commercial timber lands with an estimated volume of 30 billion feet, board measure.
The Bureau of Indian Affairs is also responsible for the protection of approximately 50 million acres of forest, grass, and brushlands and for sustained yield range management on approximately 48 million acres of such lands suitable for forage production for domestic animals. Most of the Bureau activities in connection with fish and wildlife consist in attempting to persuade the Indians to adopt better management methods and in gathering statistics and estimates relative to game and fish populations, the annual harvest, income and related matters.
The Secretary’s policies with respect to timber management are applied wherever economically feasible to Indian forest lands. Some of the reservations are so small that cutting can be conducted only on a periodic basis. On all of the larger reservations the annual cut is adjusted to what is considered to be the annual growth increment or potential increment. In some instances, however, it has become necessary to cut in excess of increment because of the excess of overmature age classes of trees and heavy losses in such classes caused by insect or disease attacks. In every instance the ultimate goal is development of age classes distributed in such manner that a sustained annual yield of various forest products can be maintained.
It is believed that management of the range lands has been effective in promoting a high yield of domestic animals and at the same time conserving and protecting the grass and soil resources. On some of the larger reservations of the Southwest, however, living necessities of large Indian populations have resulted in the grazing of too many animals on the range. This, together with prolonged drought, has resulted in severe damage to the range and the soil. It is obvious that all of the Indians cannot continue to live on livestock operations and that the solution lies in developing livelihoods for them in other lines of endeavor off the reservations.
410 ☆ annual report of the secretary of the interior
The operating table on page 46 gives major statistics covering Indian forest and range management over the past 3 years.
With particular reference to timber sales, it will be noted that both volume of timber cut and value of timber cut have increased considerably during the 3-year period 1949-51. This is due principally to increase in volume and stumpage value of timber cut under contract. This timber sold for an average stumpage price of $10.96 per thousand feet, board measure, during 1949. In 1950 the average per thousand price dropped to $10.25, largely because of the recession in the lumber industry of the previous year. In 1951 the average price increased to $12.58 per thousand. Included in the timber cut under contract totals for the year 1951 are 40,362 thousand feet, board measure, and value of $654,922 for timber cut by three large Indian sawmills.
Operating statement and comparison of forest and range management activities over the past 3 years
Calendar years
1949 1950 1951
Timber sales: Total volume of timber cut—thousand feet, board measure (including timber cut under permit and free use) Total value of timber cut Volume of timber cut under contract—thousand feet, board measure - - - 573, 236 $5,411, 061 471,630 $5,169, 462 1,154 134,460 $206,495 $195,300 562,091 103,399 881,352 $1,368, 736 $2, 966, 783 $2, 554,184 688, 791 $6,067,847 563, 401 $5, 755, 403 904 33,808 $168, 282 $105, 710 620, 404 99, 922 967,193 $1, 806, 605 $3,450, 049 $2, 536, 998 719,076 $7,720,989 586, 633 $7,387,827 931 52,076 $274, 523 $322,882 650, 029 94, 039 884, 782 $2,238, 499 $3, 478,478 $3, 097,824
Value of timber cut under contract Fire suppression: Total number of fires -
Area burned in acres _ ______ - --
Damage - - __ - -- -- -
Cost of suppression _ _ - --
Range management: Number of cattle grazed : . Number of horses grazed Number of sheep and goats grazed Cash income from grazing permits Value of free grazing
Fish and Wildlife: Value of fish and wildlife harvest. Total cash income collected Total value other income, including free use . Grand total value and receipts Obligations from gratuity funds for forest and range management and fire presuppression
$6, 538,198 5, 762,566 $7, 562,008 6, 299,491 $9,626, 326 6,909,464
12,300, 764 13, 861,499 16, 535, 790
Fiscal years
1949 1950 1951
$1,009,289 $1,343, 629 $1,525,756
IRRIGATION
Progress in irrigation construction achieved during the year on the New Mexico portion of the Navajo Reservation resulted in extending existing irrigation systems and developing new and additional water storage. The improvements made are expected to provide sustenance for approximately 430 persons in 1,975 acres of additional land in calendar year 1952.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 411
Feasibility studies of the proposed Shiprock project, the largest irrigation development contemplated for the betterment of economic conditions among the Navajos and Hopis, were made in terms of various ultimate project sizes and in conjunction with studies made by other agencies and groups. Irrigation water for this project will be diverted from a reservoir formed by the proposed Navajo Dam in the San Juan River. The ultimate needs of the Indians of this San Juan River water, to which they have time-honored prior rights, and the additional claims by other projects in the area, including a transmountain diversion to the Rio Grande Valley, have created an excessive demand upon the river’s available supply.
Construction work completed on the Wapato irrigation project of the Yakima Indian Reservation in Washington included enlargement of the pumping plant and main canal to provide water for 2,000 additional acres under Satus No. 3 unit, and completion of a pumping-plant to provide water for 10,000 acres of completely undeveloped lands under Satus No. 3 unit. These areas are approximately 90 percent Indian-owned and will produce crops estimated at $2,000,000 annually. Construction work accomplished during the fiscal year is as follows: One pumping plant having three 1,000-horsepower pumps; another having three 500-horsepower pumps; and a third plant of two smaller pumps for the maximum combined discharge of 75 cubic feet per second under a head of 30 feet. In addition, three power substations and 21.5 miles of 34.5 kilovolt transmission lines were completed for the pump installations. The Satus No. 2 main canal was also enlarged by a capacity of 300 cubic feet per second for 9 miles and two waste-way structures were constructed, also 3 miles of Satus No. 3 main canal were constructed with a capacity of 225 cubic feet per second.
In the land-development program on the Colorado River Reservation there are now over 32,000 acres under irrigation, approximately 23,000 acres of which have been subjugated in the period since 1946. For the colonization of Indians from less productive reservations, assignments of 40-acre tracts have been made to 242 Navajo and Hopi Indian families and 8,000 acres of newly developed lands are available for their use and assignment. Crops produced in 1951 on 25,500 acres of the project were valued at $3,312,000. During the fiscal year it was necessary to reduce the ground water table of the irrigated lands. This was accomplished by deepening, widening, and extending the existing drainage canals and drilling and equipping four drainage wells.
Because of increased precipitation in the Southwest, the prospects were that over half of the project lands of the San Carlos irrigation project could be farmed in 1952 as compared with about 25 percent in
226396—53——27
412 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
1951. The ground water level under project lands is lowering at an alarming rate and a continuing program of drilling replacement wells of greater depth was necessary for irrigation purposes. During the fiscal year a new contract was negotiated with the Bureau of Reclamation for delivery of 14,000 kilowatts of electric power to the project's distribution system. New rate schedules for this power are now being formulated. Crops valued at $6,072,300 were produced on 37,330 acres of the San Carlos project during the calendar year 1951.
Four irrigation wells were completed on the Chui Chiu portion of the Papago Reservation in Arizona as part of the urgently needed program to develop approximately 12,000 acres of irrigable lands for the Papago Indians. Irrigated lands constitute the only natural resource available to these Indians. Irrigation development also continued in the subjugation of additional acreages on the Fort McDowell and Salt River Reservations in Arizona.
Lands farmed in New Mexico and in the Pueblos will also be increased and benefited because of the increased precipitation. Construction work on the Acoma, Jemez, Laguna, San Juan, Santa Clara, and Zuni Pueblos and the Consolidated Ute and Mescalero Reservations consisted mainly of new canal construction, realinement of existing canals and the installation of masonry concrete and metal control structures. Substantial contributions of labor and materials were made by the Indians of the Taos, San Juan and Santa Clara Pueblos for the programs of irrigation construction, operation and maintenance and flood control.
On the Flathead irrigation project in Montana the rebuilding of approximately 15 miles of the rural electric distribution system was required to increase the power transmission capacities made necessary by the demands acquired during the past 5 years from old and new customers. Negotiations to establish adequate power rate schedules were undertaken between representatives of the project and the irrigation districts. Construction of canal and control structure improvements continued and included the replacement of approximately 50 structures. A complete drainage plan for the project was also considered by project representatives and officials of the irrigation districts.
On the drainage program of the Wind River Reservation, 7 miles of new drainage canals were constructed. In the Two Medicine Canal of the Blackfeet irrigation project, work was begun on the installation of buried membrane lining to prevent critical water losses and recurring breaks in the canal banks.
Flood waters from the Missouri and Milk Rivers in the spring of 1952 damaged irrigation canals, laterals and control structures on the Fort Peck and Fort Belknap Reservations. Estimates are that $35,000 will be requested for necessary repairs.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 413
Ill California water supplies on miscellaneous small irrigation units were supplemented by additional pipe line construction and the drilling and equipping of wells. Negotiations for the development of approximately 10,000 acres of irrigable Indian lands in the Coachella Valley of southern California were initiated and carried forward.
INDIAN ROADS
In line with the general emphasis on withdrawal objectives, the Bureau has been undertaking an orderly transfer of the responsibilities for maintenance of roads serving Indian areas to county highway departments throughout the country. The approach which has been adopted involves first bringing the Indian roads up to county standards and then turning them over to the counties for future maintenance.
As far as road maintenance is concerned, counties clearly have an obligation to serve the Indians as they do other citizens since maintenance is financed from gasoline taxes and motor vehicle license fees which are paid by the Indians as they are by other citizens. Road construction, however, is financed to a large extent by revenues from land taxes which are not paid on restricted Indian lands. For this reason Federal appropriated funds are being used for the construction of additional reservation roads where needed (such as at the Navajo and Hopi. Reservations) and for bringing existing Indian roads up to county standards.
During the fiscal year the Bureau turned over 64 miles of Indian roads to local agencies for maintenance. This included all of the Indian roads in Iowa and part of those in Wisconsin, Minnesota, Florida, Oklahoma, and other States. Altogether the Bureau has now transferred to the counties 1,038 miles of roads for which it formerly had maintenance responsibilities. In recent years the rate of transfer has been retarded by the shortage of construction funds needed to bring the roads up to county standards.
During the fiscal year, a survey was made of the Indian road needs in California as part of the general program of Bureau withdrawal from Indian affairs in that State. All Indian roads in the State were surveyed by a team of road engineers. The existing standards were compared with criteria developed by the Automotive Safety Foundation, and a program of bringing all of the Indian roads in the State up to a standard that will be acceptable to the counties was begun.
Road maintenance work was performed on 19,503 miles of road. Regular maintenance was performed on 8,500 miles and occasional maintenance on the remaining 11,003 miles. About the same amount of funds ($2,240,000) was available as in the 1951 fiscal year, but the
414 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
actual work had to be curtailed somewhat to compensate for higher wage rates and increased costs of supplies and materials.
Only $1,358,000 was appropriated for road construction for 1952. The Navajo-Hopi road construction program, already lagging behind other phases of the 10-year rehabilitation programs, was allocated $858,000 which was used to grade and drain 44.7 miles and to surface 36.1 miles, 15.5 miles of which was blacktop and 20.6 miles of which was gravel surfacing. New bridges aggregating a span of 362 running feet were built.
The remaining $500,000 in road construction funds was used to correct small critical deficiencies on Indian roads throughout the country.
CREDIT
During the past year the program of assisting Indians to obtain financing for their economic improvement from non-Bureau sources was intensified. Some of the reasons why more Indians are not receiving financing from non-Indian Service lenders include the low economic status of Indians, lack of bankable security, lack of training in modern business practices, and the lack of knowledge and experience on the part of other agencies in dealing with Indians. In order to overcome some of these problems, action was taken to acquaint lending organizations in the areas where Indians reside with the policies and procedures in connection with making loajis to Indians.
Special arrangements were made with the Farmers Home Administration and the Veterans’ Administration so that the benefits of the lending programs of these agencies might be extended to Indians on the same basis as to other citizens. As trust or restricted land is the principal asset which a majority of the Indians have to offer as security for loans, the regulations were revised on September 22, 1951 (25 CFR 241.52), to permit the mortgaging of such lands. In order to facilitate the program, authority was delegated to the Area Directors of the Bureau to approve mortgages on individually owned trust or restricted Indian land given by the Indian owner to secure a loan from any bureau or agency operating under authority of Congress, a National or State bank, or any building and loan association operating under authority of the law of any State, if the loan is made to finance a productive enterprise operated by the borrower, is to provide housing facilities for him, or is for the purchase or construction of other improvements to be utilized by him. Such mortgages, however, are not permitted on forest land or land in a grazing unit, the loss of which by foreclosure would interfere with the management or use of the timber or grazing unit.
This revision of the regulations and delegation of authority should help to remove one of the obstacles formerly preventing Indians from
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 415
securing credit from sources outside of the lending' program being conducted by the Bureau and should also preserve the benefits of retaining land in a trust or restricted status.
Although a beginning has been made toward achieving the goal of having Indians receive all of their financing from the same sources that serve other citizens, most of the loans from such sources have been made to Indians in the higher economic groups. Until the Indians reach the point where they will have adequate bankable security, the lending program being administered by the Bureau in conjunction with Indian organizations will have to be continued to help the Indian people improve their economic status through financing productive enterprises.
As of June 30, 1952, $11,523,400 had been appropriated for the revolving fund for the purpose of making loans to Indians and Indian organizations. Repayments on loans and interest collected on loans are credited to the revolving fund and become available for further loans by the United States. Because of this revolving feature, loans totaling $21,584,993.25 had been made through June 30, 1952. Loans receivable as of that date were $11,335,261.33. Payments totaling $12,217,703.54 were due through June 30, 1952, of which $10,244,052.43 had been repaid; payments of $997,082.73 had been extended; $5,582.38 had been canceled; and $245,948.25 was delinquent. Payments totaling $725,037.75, for which credit had not been given at the close of the fiscal year, were in transit. Interest payments totaling $583,444.00 had been made as of June 30, 1951, and payments totaling $64,799.10 were in transit.
Of the repayments due through June 30, 1952, 89.78 percent had either been made or were in transit; 8.17 percent of due payments were extended; 0.04 percent had been canceled; and 2.01 percent was delinquent.
Tribes have supplemented funds borrowed from the United States with their own funds. They were using $8,537,444.58 of tribal funds in their credit operations on June 30, 1952. In a few instances tribal credit operations are conducted entirely with tribal funds.
Under the provisions of the act of May 24, 1950 (64 Stat. 190), which authorized cash settlements of “in kind” livestock indebtedness, cash had been accepted for 5,468 head of cattle and 894 sheep in the amount of $552,141.57 through June 30, 1952. Approximately 37,000 head of cattle were outstanding as of June 30, 1952. Efforts are being-made to convert the revolving cattle pool to cash in order to eliminate a credit system peculiar to the Indians which does not provide for training in modern business practices.
The amount of funds used in relending by Indian corporations, tribes, and credit associations, and by the United States direct to in
416 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
dividual Indians and cooperative associations during fiscal year 1952 was the largest for any year since credit operations were started in 1936. Loans are made to individuals by relending organizations to establish them in income-producing enterprises, as well as for educational purposes.
In addition to loans to individuals, enterprises are financed by corporations and tribes to provide new employment opportunities and training and job experience for their members. Enterprises such as salmon canneries, tourist and motel centers, logging and timber stores, and arts and crafts associations have been financed. As of June 30, 1952, a total of $40,911,059.68 had been loaned by relending organizations. About 37 percent of this amount has been used in the operation of enterprises, 3 percent has been loaned to cooperative associations, and about 60 percent to individual Indians. Of the amount due 92.82 percent had been repaid, 1.68 percent extended, 0.48 percent charged off, and 5.02 percent was delinquent or in process of liquidation.
It is estimated that 5,363 borrowers are now self-supporting as a result of their loans and other assistance given them.
INDIAN EXTENSION WORK
Through the encouragement and technical advice of Extension workers, Indians have been interested in the greater use of their lands and livestock. Since the inauguration of the Extension program in 1930, some 400,000 acres of cropland and 7,200,000 of range land have been taken out of a leased or nonuse status and put to use by Indians. Their range cattle numbers have increased from 170,700 in 1932 to 317,300 in 1951 and their dairy cattle from 11,300 to 39,400. The income from livestock enterprises increased from $1,229,000 in 1932 to $32,509,000 in 1951. While the increase in market prices has been an important factor in this gain, it is also attributable to the improvement made in farming methods, more scientific breeding of Indian livestock, the use of better seed, more and better cultivation, and better use of irrigation water.
Indian cattle now, because of their good breeding quality, and high market grade are not only welcome on all livestock markets, but are in demand and often top the market price. One of the most successful and largest artificial insemination projects with range cattle in the United States and probably in the world is being carried on by the San Carlos Apache Indians in Arizona. Some thousand purebred range cows are so bred each year and from their offspring the Indians obtain the bulls for their individual herds.
In the past 16 years the average agricultural income per Indian family on 25 selected Indian reservations has been increased from $313 to $1,526.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 417
Home Extension Work
Among the major problems of Indian people today are nutrition, health, and housing. The 8 reservations having Indian Service home extension agents show 128 organized home extension groups and 62 special interest groups with an enrollment of more than 2,200 Indian women. The home extension agents have helped Indian families through these group organizations appreciate more fully the importance of proper diets, care and preparation of food and better home sanitation. The limited staff of 15 home economists reached over 8,000 different homes during the calendar year 1951. There were 3,032 homes which showed definite adoption of some improved practices as a result of home extension work.
During the past year assistance was given to 36 families in planning new homes and 130 families in remodeling old homes. Improved water and waste disposal systems, improved room arrangement, remodeling and refinishing furniture, selection of household furnishings and equipment, methods of pest control, selection and use of electrical equipment were a few of the home managements problems with which home extension agents assisted Indian families in 1951.
More than 1,700 Indian women were assisted during the year with clothing construction. Approximately 16,500 articles of clothing were made which were valued at over $41,000. Another important item was the 13,300 articles of household furnishings that were made during the year, having an estimated money value of more than $38,000. During 1951 the reports show over 2,200,000 quarts of food canned, 630,000 pounds of food dried, 3,800 pounds of food stored. With the high cost of food the production, preparation and storage of foods is important to Indian families.
Another phase of extension work is the 4-H Club program among Indian youth. It is set up on a nonsegregated basis in cooperation with the State extension services. During the fiscal year 549 4-H Clubs were organized on the various reservations with a total project enrollment of more than 11,000 Indian children and a completion record of 78 percent. The value of 4-H Club products was estimated at over $200,000 during the past year.
Contractual Agreements With States
Currently there are six contracts in effect with five States covering extension services to Indians. Prior to 1950 there were no State contracts, although the Indian women of the Fort Peck Reservation in Montana were being provided home extension assistance under a contract between the Fort Peck Indian Agency and Roosevelt County which had the approval of the Montana State Extension Service.
418 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Since 1950 agreements have been entered into with the States of Washington, Nevada, and Oklahoma and an additional contract has been entered into with the State of Montana covering Glacier County. During 1951 the Menominee Tribe was assisted in entering into a contract with the State of Wisconsin for agricultural extension services on the Menominee Reservation.
INDIAN ARTS: ANDJCR AFTS
The Indian Arts and Crafts Board continued its efforts to develop the arts and crafts already indigenous to each Indian area into articles marketable for present day use, high in quality of workmanship and design; to increase the prestige of the Indian artist and craftsman in his community, individually and in groups, by the public recognition of his work; to give training to talented young Indians in managing their own organizations so that they, in turn, can train other young Indian people in such efficient ways as will enable them to take their place in the competitive markets, ultimately without assistance.
In the southeastern part of the United States special attention was given during the year to the arts and crafts needs among the Seminoles of Florida and the Choctaws of Mississippi and to a strengthening of the program among the Cherokees of North Carolina. The North Carolina Cherokees have almost quadrupled the volume of their sales since 1948—from about $9,000 to approximately $34,000—and have increased the membership of their crafts organization from an original 10 to approximately 275, A tribally owned and operated crafts shop is maintained on the reservation.
In northern Great Plains region an arts and crafts specialist was assigned by the Board to assist the craft centers on the Turtle Mountain, Fort Totten, Rosebud, and Pine Ridge Reservations in the enlargement of their production and marketing programs.
A specialist was also appointed for the Alaskan area to teach, design, encourage, and be the liaison officer between the craftsmen and the market.
The Navajo Arts and Crafts Guild, now grown into the Navajo Tribal Industries, has greatly expanded its production and sales. Competent management, intensified training, a combination of part-time home work with shop centers, together with the interest shown by the tribal council, is resulting in a progressive program. The first year of operation under the new organization showed a small net gain.
The weaving program at Sequoyah, Okla., formerly a combination of school work and commercial production, in order to develop the association into a more effective production and marketing organization was separated from the school system during the year. The
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 419
director of the association can now give his full attention to design, production, and sales.
At Billings, Mont., the Northern Plains Indians Crafts Association opened a retail shop, specializing in authentic intertribal Indian crafts, including noncompetitive products from other areas as well as those from the surrounding region. A successful venture is predicted.
In addition to the specific areas mentioned, the Board also extended assistance to other smaller groups and to many individual Indian craftsmen.
LEGISLATION AND LITIGATION
Drafts of the following important bills designed to implement the Bureau’s withdrawal objectives were prepared or revised during the year by the Bureau’s legal staff:
H. R. 3624: To confer jurisdiction on the State of California with respect to offenses committed on Indian reservations within such State.
H. R. 6695 : To amend title 18, United States Code, entitled “Crimes and Criminal Procedure,” with respect to State jurisdiction over offenses committed by or against Indians in the Indian country, and to confer on the State of Oregon civil jurisdiction over Indians in the State.
S’ 1077: To confer jurisdiction on the State of Washington with respect to offenses committed on Indian reservations within such State.
H. R. 7489: To facilitate the termination of Federal supervision over the affairs of Indian tribes and bands and individual Indians that were under the jurisdiction of the former Grande Ronde and Siletz Agencies, Oregon.
H. R. 7490: To facilitate the termination of Federal supervision over Indian affairs in California.
House subcommittee hearings were conducted on all the above bills with the exception of S. 1077.
In addition to these bills, House subcommittee hearings were also held on H. R. 1551—Wisconsin ciyil and criminal jurisdictional bill and on rehabilitation bills for the Papago Tribe (H. R. 1214), for the Indians of western Oklahoma (H. R. 1635), and for the Sisseton-Wahpeton Sioux (H. R. 4132). The full House Committee on Interior and Insular Affairs conducted hearings on H. R. 1786 which is a rehabilitation bill for the Five Tribes Indians of eastern Oklahoma. During the year legislation was enacted and approved providing for per capita payments to the Utes (Public Law 120, 82d Cong.), the Shoshone and Arapaho Tribe (Public Law 133), and Menominee Indians of Wisconsin (Public Law 118).
420 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The total number of reports on public bills prepared in the Bureau during the year was 56, and hearings on approximately 35 public bills were attended by Bureau, representatives.
Significant Court Decisions
Of the Indian cases decided during the year special note should be taken of the cases summarized below for the rules of law which they establish.
“Identifiable Group” Under the Indian Claims Commission Act
In Ernest Risling et al. as the Representative and on the Relation of the Indians of California v. United, States^ the Court of Claims held that the Indians of California are an “identifiable group” under the jurisdictional provisions of section 2 of the Indian Claims Commission Act. In overruling the Indian Claims Commission, the court found that the history of the Indian Claims Commission Act showed the intention of Congress to permit groups of Indians other than tribes or bands to present claims under the act.
Heirship Determination
The Court of Appeals of the Ninth Circuit on May 13 held tn the case entitled Lee Arenas v. United States (M-13012), that the United States as trustee for Eleuteria Brown Arenas was not bound by the lower court’s decision in which it was determined Lee Arenas was his wife’s sole heir. The court found that court which made the heirship finding did not have jurisdiction to ascertain heirs to trust property and that the act of June 25, 1910, is broad enough to cover the determination of heirship even though a trust allotment is issued after the death of the allottee and that the Secretary’s determinations thereunder are final and conclusive.
Attorney Contracts
A proposed revision of attorney contract regulations (25 CEB 15) was prepared iir July and printed in the Federal Register on August 11, 1951. In order to give all interested parties an opportunity to express their views, the Secretary conducted hearings on the proposed regulations January 3 and 4. Following these hearings, the Secretary decided that the proposed regulations should not go into effect and that further departmental study of the problem was required. Meanwhile, a Senate subcommittee began investigations of the sub
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 421
ject in order to determine whether new legislation is required in this field. This investigation was still in progress at the close of the fiscal year.
MANAGEMENT
The coordination and direction of the work of approximately 13,000 employees in the Bureau of Indian Affairs is a management undertaking of major consequence (see table on page 70). Communication and correlation problems arise because of the widely dispersed field installations throughout the continental United States and Alaska.
Highlights of action during the past year to improve management included: (1) a survey of the Bureau’s reporting system and the establishment of a mechanism designed to control reports, (2) solution of over-all problems involving organizational relationships, policies, and procedural standards through the further development, revision, and amplifications of the Indian Affairs Manual, (3) revision of parts of the Code of Federal Regulations to eliminate a great deal of procedural detail by including it in appropriate chapters of the manual, and (4) distribution of carefully prepared management notes to all supervisors to acquaint them with the latest techniques of modern management and to furnish background information on the Bureau’s management-improvement program.
In line with the manpower-conservation program of the President, measures were adopted to insure the fullest participation by employees at all levels in the maximum utilization of their skills and abilities. Policy and objective statements regarding a sound and comprehensive Bureau promotion-from-within program were promulgated. Provision was made for each employee to receive detailed information and guidance concerning employee conduct and employee-supervisor relations. The incentive awards program was given added stimulus by the distribution of a chapter in the Indian Affairs Manual. The outline sets forth the essential steps necessary to qualify for an award. A short-term employment form was adopted. The procedure simplifies the appointing, changing, and separation by personnel actions in those positions not subject to the Classification Act of 1949.
Departmental and Bureau officials, in cooperation with representatives of the General Accounting Office, have developed an accounting system for the Bureau’s many activities which follows, insofar as practicable, the accounting principles used in private business. The system is designed to serve management needs through a coordinated system of program, accounting, and budgetary reporting; to furnish accounting support for budget estimates; and to provide a basis for verification of the accountability of persons administering public and trust funds and property.
422 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Bureau of Indian Affairs: Distribution of March employment, by area, appropriation, and activities
ANNUAL REPORT OF BUREAUS AND OFFICES < 423
424 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
A records survey was made at the Portland area office. This action brought about a better classification of records and improved utilization of filing equipment. Records having historical value were scheduled for General Services records centers. The greatest possible protection wTas given records retained at the field offices. This type of records-management work will be done at the other area offices.
A special team visited field offices and assisted with the installation of new property procedures. This team gave special attention to the disposition of scrap. Thousands of tons of critical material were channeled for sale. Wherever useful supplies were found in excess of current needs, these were listed for transfer to other activities or Federal agencies where a need existed.
The facilities of the General Services Administration were used extensively during the past year for the procurement of supplies and equipment for direct delivery to field installations. Purchasing has been centralized at the area offices. This has resulted in more advantageous use of supplies and equipment on hand and has done much to eliminate excessive stocks.
Arrangements were worked out during the year for the operation by the General Services Administration of the procurement and warehousing functions at Gallup, N. M. This has been extremely beneficial to the Window Rock area office and the Navajo Indians.
OFFICE OF THE SOLICITOR
Mastin G. White, Solicitor
General.—The Office of the Solicitor continued to perform, during the fiscal year which began on July 1, 1951, and ended on June 30, 1952, its functions of furnishing legal advice to the Secretary of the Interior and the other principal administrative officials of the Department, of supervising and coordinating the legal work and legislative program of the entire Department, and of acting for the Secretary of the Interior in the final disposition of certain types of administrative proceedings.
The office was unable, with the personnel available, to dispose promptly of all incoming matters, and some ground was lost during the year in the “battle of the backlog.” Whereas a total of 359 items of work were on hand and awaiting attention in the Office of the Solicitor at the beginning of the fiscal year, this total had increased to 391 by the end of the fiscal year.
Opinions.—The Office of the Solicitor rendered 55 formal legal opinions during the fiscal year. Some of the legal questions dealt with in these opinions are indicated below:
M-36086.—Compliance by an employee of the Department with departmental instructions requiring that detailed reports be prepared concerning incidents resulting in property damage, personal injury, or death would be an action taken “in the proper discharge of his official duties” and, therefore, would be outside the scope of the prohibition contained in 18 U. S. C., sec. 283, with respect to Government personnel aiding or assisting in the prosecution or support of claims against the United States.
M-36085.—Where Congress, in a statute authorizing a particular activity, provides that the activity may be carried on by the administering official or agency “notwithstanding any other provisions of law,” such official or agency is freed, insofar as that particular activity is concerned, from restrictive provisions of law contained
425
426 ☆ annual report of the secretary of the interior
elsewhere in statutes of general applicability, and is restricted only by whatever limitations Congress prescribes in the enabling act.
M-36095.—As the power of the Secretary of the Interior with respect to the granting of rights-of-way across Indian lands for oil or gas pipe lines is wholly discretionary, the Secretary may grant such rights-of-way subject to whatever conditions he deems to be appropriate.
M-36098.—Section 14 of the Veterans’ Preference Act of 1944 is not applicable to officers or employees of territorial or insular governments established under the authority of the United States.
M-36106.—A released-time program under which public school pupils in Guam would be released during one period of the school day for religious instruction under the-auspices of churches designated by their parents or guardians, but under which the religious instruction would be given at places provided by the churches and the public school authorities would assume no responsibility for the recruitment of pupils for religious instruction, would keep no attendance records with regard to such classes, would give no school credits for the completion of courses in religion, and would not approve or supervise the teachers of religion, could be conducted without violating the first amendment to the Constitution of the United States or the Organic Act of Guam.
M-36110.—An Indian band is a legal entity and may file a claim against the Government under the Federal Tort Claims Act because of damage allegedly done by a Government employee to an automobile owned by the band.
M-36117.—Alaska, an incorporated Territory, is not “outside the United States” for the purposes of section 2 of the Buy American Act.
M-36119.—The adoption by an Indian tribe of a constitution under section 16 of the Indian Reorganization Act does not relieve the tribe of the necessity of complying with section 2103 of the Revised Statutes in making contracts; but the Secretary of the Interior, in issuing a charter to an Indian tribe under section 17 of the Indian Reorganization Act, may grant the tribe freedom to make contracts without complying with the requirements prescribed in section 2103 of the Revised Statutes.
M-36121.—Under the act of June 25, 1910, as amended, providing for the determination of heirs and the approval of wills of deceased Indians who have left trust or restricted estates, the Secretary of the Interior has implied authority to allow all just claims against such estates.
M-35125.—So long as public lands are subject to the jurisdiction of the Secretary of the Interior, he may, on his own initiative, revise
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 427
and correct erroneous actions previously taken within the Department respecting such lands.
M-36127.—The statutory authority of the Secretary of the Interior to determine the heirs of deceased Indians carries with it, by necessary implication, the authority to determine whether a particular Indian is deceased; and, in a proper case, the Secretary may rely upon a presumption of death and order the distribution of the restricted estate of the decedent.
M-36131.—The use by a State of its convicts in the performance of fire-suppression work on Federal lands within the State would not constitute the “employment” of convict labor by the State within the meaning of that term as used in Executive Order 325-A.
M-36135.—The Bank of American Samoa is a territorial, rather than a Federal, agency or instrumentality and, therefore (assuming it to be a corporation), is not subject to the provisions of the Government Corporations Control Act.
Appeals.—The office prepared a total of 286 decisions on formal appeals taken to the head of the Department by members of the public who were aggrieved by the actions of bureau officials. The appeals involved in these decisions are divided into the following categories: Appeals in proceedings relating to lands, 189; appeals relating to Indian probate proceedings, 39; contract appeals, 40; and appeals on claims involving property damage, personal injury, or death, 18.
Some of the points decided in disposing of formal appeals during the fiscal year are mentioned below:
Southern Pacific Railroad Company (A-26143).—Where public land has been withdrawn under the provisions of the Reclamation Act, a railroad company cannot obtain a right-of-way over the land under the act of March 3, 1875, so long as the withdrawal remains in effect; and the Secretary of the Interior, in connection with the modification of such a withdrawal in order to permit the acquisition of a railroad right-of-way across the land, may make his action contingent upon compliance by the railroad company with such conditions as the Secretary deems necessary or advisable in order to serve the public interest.
Annie L. Hill et al. v. E. A. Culbertson (A-26150-26157).—The authority of the Secretary of the Interior to cancel an existing oil and gas lease on a tract of public land extends only to situations where the lessee has failed to comply with the requirements of the lease, or the lease was obtained in contravention of some statutory provision or departmental regulation or under circumstances providing grounds whereby a contractual relationship between private parties could be canceled.
226396—53----28
428 ☆ annual report of the secretary of the interior
Wayne N. Mason et ano. (A-261I6).—Where an isolated tract of public land containing two or more subdivisions is to be disposed of at a public sale, and two or more owners of contiguous lands assert their preference rights to purchase the tract, it is the ordinary rule that the subdivisions are to be equally apportioned,, as far as possible, among the competing preference-right claimants.
Janies Des Autels (A-26245) .—Where the amount tendered as filing fee and rental in connection with an application for a noncompetitive oil and gas lease on an area of public land is insufficient for the acreage sought, and the application is subsequently modified to eliminate the excess acreage, the modified application is effective only as of the date of the modification; and it is subordinate to proper applications filed by other persons during the interim.
Seaboard Oil Company of Delaware (A-26246).—A lessee that filed a statement pursuant to section 15 of the act of August 8,' 1946, electing to have its oil and gas lease governed by the applicable provisions of the 1946 act rathpr than by the provisions of law in effect theretofore, cannot subsequently revoke such election.
United States Oil and Development Corporation (A-26269).—Assuming that under section 39 of the Mineral Leasing Act the Secretary of the Interior may assent to a suspension of operations and production under an oil and gas lease for a period of time antedating the giving of the assent, and thus extend the life of the lease for an equivalent period, such relief, being a matter of grace, should be granted only to lessees who use reasonable diligence to obtain it.
The Ohio Oil Company (A-26292).—Where a portion of an area of land acquired by the Department of the Army for an ordnance depot is fenced outside the depot proper and is temporarily leased to a private person for agricultural uses, such leased portion nevertheless constitutes land “set apart for military purposes” and is not subject to leasing under the Mineral Leasing Act for Acquired Lands.
Bettie JI. Reid et ano. (A-26330).—If the Department determines that a tract of public land which is not within any known geological structure of a producing oil or gas field will be made available for oil and gas development, the Department is under a mandatory duty, imposed by statute, to lease the land to the qualified person first applying for it; and where a noncompetitive oil and gas lease was erroneously issued to a junior applicant, the lease is subject to cancellation.
C. A. Rose (A-26354).—Where an obviously erroneous bureau decision failed to recognize the preferential right of the first qualified applicant to obtain a noncompetitive oil and gas lease on a tract of land being‘leased by the Department, and the applicant, although his right of appeal was expressly called to his attention, failed to take an appeal within the period allowed by the departmental regulations
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 429
for that purpose, the preferential right must be regarded as having been abandoned.
Mary M. Morley (A-26373).—A married woman, in the absence of proof of desertion by her husband or other circumstances making her in reality the head of the family, is not eligible to make a homestead entry.
Durham and Sauer (CA-124).—Where a contracting officer is charged with full responsibility for the execution of a contract, subject only to review, on appeal, by the head of the Department or his duly authorized representative, the contracting officer’s decisions cannot be altered or countermanded by supervisory bureau officials who are not parties to the contract.
The Standard Transformer Company (CA-129).—Where a contractor breached a supply contract by failing to make delivery within the time specified in the contract, and the Government permitted the contractor to complete the performance of the contract, the contractor, in the absence of a pertinent provision in the contract covering the subject of damages for such delay in delivery, is only liable for such consequences of the breach as may reasonably be supposed to have been within the contemplation of the parties at the time when the contract was made.
Estate of Joseph Carter (IA-17).—The personal and domestic relations of the members of Indian tribes are regulated according to their tribal customs and laws, except as Congress expressly directs otherwise; and when the Secretary of the Interior, in the process of determining who shall inherit a restricted Indian estate, makes findings regarding the marital status of the deceased Indian and the legitimacy of his children, the Secretary is not bound by the provisions of State or territorial laws on the subject.
Estate of Lyon Saupitty (IA-52).—The law of the State of Oklahoma on the revocation of wills has no applicability to the will of a Comanche Indian domiciled in that State, devising trust property situated in Oklahoma.
Estate of Kneale Blackbird (IA-62).—An examiner of inheritance can consider and allow a claim against the restricted estate of a deceased Indian only upon notice to the interested parties and affording them an opportunity for a hearing.
Tort and Irrigation Claims.—The Office of the Solicitor disposed of 84 claims based upon property damage, personal injury, or death.1
Legislation.—The following statutes of major importance to the Department of the Interior were enacted by the Eighty-second Congress during the fiscal year 1952:
1 In addition, the office disposed of 18 formal appeals taken by members of the public from decisions rendered by field attorneys upon such claims.
430
ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Defense Production Act of 1950 was twice amended and extended during the fiscal year, first by Public Law 96, approved July 31,1951, and again by Public Law 429, approved June 30,1952. Titles I, II, III, and VII of the Defense Production Act are the foundation for many of the functions performed by the Department of the Interior in aid of the national defense program. Under the terms of Public Law 429, these titles will continue in effect until June 30, 1953. That statute, as well as Public Law 96, made numerous changes in the text of the Defense Production Act. In general, the changes bearing upon the work performed by this Department, unlike the more radical alterations made in some of the other features of the act, were clarifying and perfecting in nature. However, participation by the United States in the International Materials Conference was limited by Public Law 429.
In order to protect the scenic qualities of the approach highway to Grand Canyon National Park, mining locations within the adjoining lands in Federal ownership were subjected to restrictions by Public Law 77, approved July 12,1951.
A necessary step in the development of Independence National Historical Park in Philadelphia was accomplished through the enactment of Public Law 212, approved October 26, 1951. In order to provide a proper setting for Independence Hall and its adjacent historic sites, many of the surrounding commercial properties are in the process of acquisition by the National Park Service. The new act provides for the administration of the acquired properties pending their ultimate demolition, and for the use of the revenues derived from them in furtherance of the park project.
Disposition of the large sum of money awarded the Ute Indians on account of a taking of their lands by the United States was provided for in Public Law 120, approved August 21,1951. This act authorizes the use of the money in accordance with a long-range program for the development of a self-supporting Ute economy. A significant feature of this program is that it was worked out by the Indians themselves, rather than by Federal officials.
Better use of Indian hospital facilities and better medical services to Indians are contemplated by Public Law 291, approved April 3, 1952. This legislation authorizes the acceptance of non-Indian patients in Indian hospitals, the transfer of Indian hospitals to State or local administration where appropriate, and the obtaining of medical services for Indians through contracts with local physicians. At the same time, the Indians are assured priority in the use of health facilities provided for their benefit. Through the cooperative procedures authorized by this legislation, a more adequate degree of medical care
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 431
can be provided for both Indians and non-Indians in many sparsely settled regions of the country.
The current need for strengthening the enforcement of the laws and regulations protecting migratory birds was recognized by Public Law 182, approved October 20, 1951. Under this act, the portion of the receipts from the sale of Migratory Bird Hunting Stamps that may be used for administrative and enforcement purposes is increased from 10 percent to 15 percent.
The excess-land provisions of the Federal reclamation laws were relaxed for the San Luis Valley project in Colorado by Public Law 415, approved June 27, 1952. The general prohibition upon the delivery of water to lands in single ownership within a Federal reclamation project that exceed 160 acres in area was made inapplicable to the San Luis Valley project, and a new special prohibition was established to the effect that no landowner on this project shall receive a water supply greater than that reasonably necessary to irrigate 480 acres of land served by the project. The act expressly states that it is intended to meet special conditions existing on the San Luis Valley project, and that it is not to be considered as altering the general policy of the United States with respect to the excess-land provisions of the reclamation laws.
Two noteworthy actions were taken during the fiscal year in the way of resolving interstate disputes over rights to the use of water through the interstate compact procedure sanctioned by the Constitution. The Yellowstone River Compact entered into by Montana, North Dakota, and Wyoming was consented to by the Congress in Public Law 231, approved October 30, 1951. The Canadian River Compact entered into by Oklahoma, Texas, and New Mexico was consented to by the Congress in Public Law 345, approved May 17, 1952. The first of these compacts will facilitate the undertaking of irrigation and power improvements that form important parts of the Missouri River Basin plan previously approved by the Congress. The taking effect of the second was a legal prerequisite for the initiation of the municipal water supply project in northwest Texas authorized by the Congress in 1950.
The Federal-Aid Highway Act of 1952 came into being through the enactment of Public Law 413, approved June 25, 1952. This act authorizes the appropriation of specified sums for national park roads, national parkways, Indian reservation roads, and defense access roads. In addition, the work of the Department of the Interior will be facilitated in some particulars by the other appropriation authorizations contained in this measure.
Submerged Lands of the Continental Shelf.—The fiscal year 1952 ended without any specific guidance having been provided by the
432 ☆ annual report of the secretary of the interior
Congress for the executive branch with respect to the administration of the oil and gas deposits contained in the Continental Shelf of the United States. In the absence of such specific guidance, the executive branch has not deemed it feasible, during the several years that have elapsed since the rights of the Federal Government in the Continental Shelf were upheld by the Supreme Court in the cases of United States v. California (332 U. S. 19 (1947)), United States v. Louisiana (339 U. S. 699 (1950)), and United States v. Texas (339 U. S. 707 (1950)), to do anything more than (1) stipulate with California regarding the continuation of oil and gas operations in the submerged areas along the California coast during the pendency of the ancillary proceedings before the Supreme Court to determine the extent to which these oil-producing submerged lands are Federal lands of the Continental Shelf and the extent to which they are State-owned lands underlying navigable inland waters; and (2) grant permission, as a conservation measure, for the continuation of the oil and gas operations which were in progress off the coasts of Louisiana and Texas at the time when the Supreme Court entered its decrees in the cases against these States, plus the issuance of permits for additional drilling where this has appeared to be necessary in order to achieve cor servation objectives.
During the second session of the Eighty-second Congress, the Congress passed Senate Joint Resolution 20, the primary purpose of which was to convey to the coastal States the submerged lands of the Continental Shelf situated inside the respective States’ seaward boundaries as of the time when they entered the Union. Senate Joint Resolution 20 was vetoed by the President for the reason, among others, that “it would turn over to certain States, as a free gift, very valuable lands and mineral resources of the United States as a whole—that is, of all the people of the country.” Thereafter, the second session of the Eighty-second Congress came to an end without any action having been taken by the Congress on the matter of overriding or sustaining the President’s veto. Thus, the proposed measure failed of enactment.
OFFICE OF TERRITORIES
James P. Davis, Director
INTRODUCTION
All policies and programs of the Office of Territories have the same central theme—to arouse, encourage, and assist the people of the Territories in attaining the highest possible level of political, economic, and social advancement. Within this concept are included all of the activities and programs of administration, representation, and management which make up the work of the Office.
This report will show significant progress of many kinds and in each of the functional areas covered. Thus, in the political field the completion and approval of the Constitution of Puerto Rico, the rising support of statehood for Alaska and Hawaii, the completion of a proposed new organic act for the Virgin Islands, the successful operation of the first civilian administrations of American Samoa and the Trust Territory of the Pacific Islands, and the fine record of the legislature and people of Guam under their own government are all significant.
In the economic and management fields likewise there are worthwhile developments to report. In Alaska substantial highway and public works construction and the final phase of The Alaska Railroad rehabilitation program have been carried out. In the Virgin Islands important public works projects for harbor improvement, hospital and school facilities and a new telephone system are under way. The Virgin Islands Corporation has taken over and is modernizing the St. Croix electric power system and will soon do likewise for St. Thomas. In Guam, private enterprise is expanding rapidly and, with advances being made in public services, the Territory is acquiring the stability and character of a modern American community. In American Samoa and the Trust Territory the foundations have been laid for sound government administration and steps taken to chart the course for economic and commercial development.
433
434 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Office has continued during the past year to report territorial progress and problems to the President and the Congress, and it is most gratifying to record the sympathetic attitude of both the executive and legislative branches of the Government toward Territorial problems—with the exception only, of the congressional refusal of statehood. Federal agencies have been encouraged and assisted in carrying out their responsibilities in the Territories. The Office has participated in dealing with problems of foreign policy of concern to the Territories and is the operating agency for training aspects of the Point 4 program in the Caribbean. It is also responsible for the operation of The Alaska Railroad and the Alaska Road Commission, the Puerto Rico Reconstruction Administration, the Virgin Islands Corporation, and the public works program of Alaska and the Virgin Islands.
Alaska, Hawaii, and Guam have shared in the general prosperity common to all the States. To a lesser extent, this general prosperity has affected others of the Pacific islands. In American Samoa and in the Trust Territory, both civil governments and island populations and their governments are faced with problems brought about by a varying transition from subsistence to money economies. Such difficulties as have been encountered have been accentuated by appropriation limitations which have restricted government budgets. The Office of Territories will continue to work for the economic advance of these areas in the knowledge that political development is often conditioned by the rate of progress toward economic health.
ALASKA
Legislation
The statehood bills introduced early in the Eighty-second Congress were perhaps the most important legislation pending during the fiscal year affecting Alaska. After a hard legislative battle in which great gains in support of statehood were clearly shown, the bill was recommitted by one vote. It may be expected to come up again next year.
Quantity restrictions on the unloading of explosives in Alaska ports posed a serious problem for the important construction and mining-industries in the interior. This situation was relieved by legislation passed in the second session of the Eighty-second Congress (Public Law 562, approved July 16, 1952) which authorizes the unloading of properly packaged explosives in Alaska in accordance with local ordinances or other comparable regulations.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 435
Coal Production
In a major effort to expand coal production in Alaska, the Office of Territories worked with other Interior agencies and the military authorities in evolving a new coal program. Basically, this program consists of (1) assisting the expansion, where appropriate, of existing producers; (2) opening to lease those coal reservations no longer required for Government purposes; (3) reactivating the coal-testing laboratory at Anchorage; (4) the acquisition of additional hopper cars by The Alaska Railroad; (5) the construction of any necessary rail spurs or access roads; and (6) a program of awarding military contracts well in advance of the summer mining season. It is expected that the above steps will assure adequate coal supplies for both civilian and military needs.
Alaska Public Works Program
The Alaska public works program authorized by Public Law 264, Eighty-first Congress, now in its second full year under Office of Territory management, continues to provide, within the limitations of available appropriations, public works including sewer and water facilities. Completed installations are to be purchased by these communities at prices averaging 50 percent of cost. Work has been completed on 12 of the 18 projects totaling $4,900,000 which were allotted prior to June 30, 1950, with the other 6 to be completed within a few months. Construction has been started on 10 of the 12 projects of the 1951 program totaling about $4,100,000 and they are 40 percent completed. Of the 14 projects of the 1952 program amounting to nearly $6,500,000, construction is under way on 10 projects. In the 1951 appropriation act, the Congress required that any project financed be certified as of value to defense. Applications on file at the time this legislation was enacted were so certified by the Department of Defense.
The Eighty-second Congress recently provided $12,554,200 for 15 projects of the 1953 program. The communities affected had previously arranged, by election, to assume their share of the project costs. Allotments have been made and construction plans are in advanced stages of development.
Maritime Problems
A west coast shipping strike, called in the last week of May 1952, prevented the sailing of ships, other than emergency, of one of the two principal domestic steamship lines serving Alaska. Unsettled
436 ☆ annual report of the secretary of the interior
at the close of the fiscal year, the strike resulted in some delay in carrying forward certain important construction and mining activities which normally reach their peak toward the latter part of June, and added to unemployment problems caused by an unusually large inflow of workers from the States. The strike emphasized the continued dependence of Alaska upon maritime service.
Progress in Rail Transport
The Alaska Railroad had over $18,000,000 of revenue in the fiscal year 1952 for the biggest income year in its history. While this is primarily freight revenue, the improvements brought about by the rehabilitation program are most strikingly illustrated by the streamlined passenger train, the Aurora, which is providing daily service from Anchorage to Fairbanks during the summer on an accurately maintained 12-hour schedule. Less dramatic but of greater importance to military and civilian needs for transportation has been the speed-up of freight service through improved roadbed, track, and equipment, and the 80- and 90-car trains, powered by three or four Diesels in tandem, that move out of Anchorage daily.
The rehabilitation program, now almost complete in terms of original plans, has enabled the railroad to provide transportation at a cost to shippers—except for terminal charges—equal to or less than the rail charges of the late 1930’s. Rail costs have thus been a constantly decreasing portion of the cost of goods used and sold in Alaska. Increases in labor and material costs during the year, however, overbalanced the increases and a small operating deficit was incurred. A new rate structure, approved to become effective early in the fiscal year 1953, involved in part an equalization of rates between the military port of Whittier and the commercial port of Seward. The cost to civilian shippers will be little changed except in the case of a few commodities which had inequitable rates in the old tariff.
The insistence of the Military Establishment on exclusive rights to use the port of Whittier made it necessary to alter previous intentions to abandon the Seward-Portage line and use Whittier for both civilian and military traffic. Furthermore, military authorities now consider two rail ports essential to defense. This inevitably means the rehabilitation of this portion of the rail line, but funds for this purpose have not yet been appropriated.
Improvement in Highway Transport
Perhaps the' most important basic development program in Alaska is the highway program of the Alaska Road Commission. Since
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 437
1949 road mileage has increased from 2,926 to 3,141. During the year the Anchorage-Seward Highway was opened to traffic, thus affording for the first time, a road link between two of Alaska’s most important cities. In addition, more than one-third of the road mileage classed as “through roads” has been hard-surfaced. The main emphasis in the fiscal year 1952 was placed upon further improvement of an integrated road system, surfacing the principal routes and replacing inadequate bridges, and elimination of hazardous sections of road so as better to serve both defense requirements and the highway transport demands of the civilian economy.
During the year the Office of Territories, after a 2-month field investigation, completed a major survey of wage and salary and labor relations problems for the Alaska Road Commission. In accordance with the facts disclosed by this survey, the Commission is making important changes in its personnel policies. As a result of the changes already made, savings in payroll have been achieved which, on an annual basis, will amount to several hundred thousand dollars.
Air Transport Developments
In March 4952 the Civil Aeronautics Board announced new procedures to go into effect in the following month which would facilitate the issuance of permits for common-carrier operations across the Alaska-Canada border. The Civil Aeronautics Board and the Canadian Air Transport Board propose to hold concurrent proceedings on applications requiring authorization from both Boards.
Public Law 160, approved October 10, 1951, permits the Secretary of Commerce to lease for 20 years real estate belonging to public airports in Alaska for the purpose of erecting buildings necessary to their operation. Previous leasing periods permitted by statute were insufficient to encourage private operators to erect hangars and other facilities. During the fiscal year 1952 airports at Eagle, Haines, Kougarok-Quartz Creek, Seward, Sitka, Valdez, and Circle Hot Springs were approved for construction or improvement under section 16 of the Federal Airport Act of 1946.
Alaska Science Conference
The success of the first Alaska Science Conference, held in Washington, D. C., in November 1950, prompted a resolution to hold a second conference at Mount McKinley National Park under the joint sponsorship of the University of Alaska and the newly organized Alaska Division of the American Association for the Advancement of Science. The objectives of the conference, held September 4-8,
438 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
1951, were to review individual investigations in order that Canadian and American scientists might better coordinate and develop their research projects in Alaska and adjacent areas of Canada. It is planned to hold the third annual science conference at Mount McKinley National Park in September 1952.
THE COMMONWEALTH OF PUERTO RICO
Achievement of Internal Self-Government
The new Constitution of the Commonwealth of Puerto Rico, authorized by Public Law 600, Eighty-first Congress, was drafted by the constitutional convention, ratified by the Puerto Rican people, and accepted by the Congress to become effective on July 25, 1952, under proclamation of the Governor.
The constitution replaces those provisions of the 1917 Organic Act which established the structure of the Government of Puerto Rico and prescribed the handling of its internal affairs. Other parts of the Organic Act remain in effect as the Puerto Rican I ederal Relations Act.
In establishing a framework of government for the Commonwealth, the constitution sets forth a bill of rights somewhat more extensive than that of the Federal Constitution, provides for a three-branch government, and includes various general, transitory, and administrative provisions, including a mechanism for amendment. Legislative responsibility rests in the legislative assembly normally composed of 27 senators and 51 representatives directly elected every 4 yenrs. This membership may be increased by additional members from minority parties if the majority party receives more than two-thirds of the membership of either house. The executive responsibility rests in a Governor, directly elected every 4 years, assisted by a secretary in the direction of each of eight departments: State, interior, education, health, treasury, labor, agriculture and commerce, and public works. The judiciary responsibility rests in the supreme court which, in addition to constituting the court of last resort in Puerto Rico, is also responsible for administration of the judicial system of the island. Secretaries of departments and justices are appointed by the Governor with senate confirmation.
Puerto Rico’s Contribution to the World Responsibilities of the United States
As in the previous year, Puerto Rico made an important direct contribution to the various programs of mutual security through technical assistance. Administered by the Office of Territories through
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 439
the Point 4 office of the Puerto Rico Planning Board, the program involves supervised training for foreign nationals both under auspices of the United States technical assistance program (Public Law 165, 82d Cong.) and under those of the United Nations. The Government of Puerto Rico appropriated $25,000 for technical assistance in 1952 and, in addition, absorbed all costs in the various agencies without benefit of those reimbursements customarily required by Federal agencies. Under these United Nations and United States programs a total of 273 trainees has visited Puerto Rico to receive training during fiscal year 1952. As of June 30, 1952, 141 of these were in the island. Specific countries represented included 19 Latin-American countries, other Caribbean areas, Ceylon, India, Nepal, Pakistan, Israel, Gold Coast, Egypt, Liberia, Formosa, Thailand, Philippines, and Malaya.
Under the United States programs alone, the previous year’s emphasis on the Latin-American region continued to be significant. It included 14 training grants awarded by the Office of Territories to Latin Americans at the approximate total cost of $28,900, and an extensive vocational program for trainees from the Caribbean area at a total cost of $93,000. Thus, the total in grants under the United States program was approximately $122,000, while administrative funds available for the year totaled $45,820.
During the coming year it is expected that Puerto Rico will continue to play an increasing role in the various technical assistance programs. Its significance as a partly developed area, its bilingual competence, its experience with agriculture and commerce under tropical conditions, and, above all, the enthusiastic interest of its Governor, its Planning Board, and other governmental bodies, give it a unique usefulness as a laboratory for underdeveloped areas all over the world.
Puerto Rico also continued to contribute heavily to military aspects of the world responsibility of the United States. As the fiscal year closed, most of the Sixty-fifth Infantry Regiment was about to be returned to Puerto Rico from Korea, where it has fought with distinction and valor with the United Nations forces and has incurred some 2,000 casualties. In addition, both voluntary recruitment and the selective-service process continue to draw heavily on Puerto Rican youth.
Industrial Development
From the beginning of the industrial development program to the end of the fiscal year, approximately 180 new plants had been opened in Puerto Rico' with the help of the Economic Development Administration. The calendar year 1951 alone showed an increase of $20 million in Puerto Rico’s manufacturing output. The Transportation
440 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Authority handled approximately 500,000 air passengers and 14,000,-000 pounds of cargo at the San Juan airport alone, in addition to operating outlying airports, running the busses of the San Jnan metropolitan area, and servicing ocean vessels at all ports of the island.
The list of new industries in the island includes a wide variety of industrial processes. Mechanized textile and leather operations are numerous, among them; electric and electronic manufactures, light tools and appliances, various plastic products, chemicals and drugs, frozen foods, candy, sports goods, jewelry, paint, toys, and artificial flowers are also represented.
The Caribe Hilton Hotel, in which the Government of the Commonwealth had made a large investment, continues to be most successful. During its first 2 years of operation, 1950 and 1951, it returned $1 million to the Government of Puerto Rico as the agreed share of profit. The Governor has estimated that direct and indirect benefits of this enterprise to the economy of the island already exceed $6 million.
Changes in Sugar Production
The production of sugar in Puerto Rico increased from 1,280,000 tons in the preceding year to 1,375,000 tons in fiscal year 1952. As a result, even after sales on the world market, Puerto Rico has a large sugar carry-over which will have to be absorbed during the coming years. A very important increase of 170,000 tons in the Puerto Rico quota established in the extension of the Sugar Act by the Congress was secured largely through the work of the Department in cooperation with the Departments of State and Agriculture.
Puerto Rico Reconstruction Administration
Operations were financed from the revolving fund, in accordance with allotments by the President, as follows : Operation and maintenance of housing projects Operation of Castaner farm project-----------
Servicing of loans to cooperatives-----------
General administration-----------------------
Repairs to buildings, etc--------------------
Construction of 250 latrines-----------------
Replacement of unserviceable roofs-----------
Surveying and other services-----------------
Seed-lending program-------------------------
$248, 323
53,658
9, 629
1236,721
116, 322
12, 200
40,800 . 15,500
37,947
Total_____________________________________________________ 771,100
1 Includes $45,100 for liquidation activities.
Under the plan for continued liquidation of this Administration in an orderly fashion, the loans and notes receivable are being liquidated
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 441
as rapidly as possible and the individual rural and urban housing units are being sold to the present occupants on a 20-year basis with the Government’s interest fully protected by the deed-mortgage plan.
The Castaner farm produced $35,168.63 in excess of operation costs from the sale of diversified crops and furnished seasonal employment throughout the year to members of more than 200 resettled rural families. The sugar cooperatives, Association Azucarera Cooperativa Lafayette and Cooperativa Azucarera Los Canos had a successful grinding year and, in all probability, will grant a substantial bonus to their members as a result.
Meanwhile, essential projects for the fiscal year 1953 are being continued with allotments aggregating $776,600 out of the revolving fund. That fund, derived exclusively from PRRA operations, had a net available balance on June 30, 1952, of $3,146,307, of which $937,682 was collected during the fiscal year.
THE VIRGIN ISLANDS
Extensive hearings on H. R. 2644, a bill to revise the Organic Act of the Virgin Islands, were conducted by the House Subcommittee on Territories and Insular Affairs during January of 1952 in the islands and during March in Washington.
Following these hearings and further discussions between the Department and the subcommittee, a bill (H. R. 7393) was introduced in which were incorporated all the improvements and modifications on which the subcommittee had agreed. This bill was acted upon favorably by the House, but received no action in the Senate. It is expected that similar legislation will be introduced early in the Eighty-third Congress.
Development of Tourism
Tourism continued to be a leading and increasing economic activity during the fiscal year 1952 with full operation of the new hotels built during 1950 and 1951. A report by the Virgin Islands Tourist Development Board in June 1952 showed that actual employment in direi t tourist facilities during the winter season involved a total of 1,636 employees on St. Thomas alone, or about 32 percent of that Island’s labor force. Although the severe shortage of hotel facilities on St. Thomas and St. Croix has ended, additional recreational facilities are urgently needed to promote further tourist interest in the area. There are also good possibilities of developing St. John as a tourist center.
As the fiscal year closed, the Government of Denmark notified the Government of the United States of its intention to mark the one hun
442 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
dred and fiftieth anniversary of friendly diplomatic relations between the two nations by the gift of replicas of certain furnishings removed from Government House, Christiansted, St. Croix, at the time of the transfer of sovereignty in 1917. Portions of Government House were accordingly prepared for the installation of the replicas and, as the year ended, Governor de Castro and Danish Ambassador Kauffman were arranging for the event to take place August 4,1952.
As had been jointly urged by the Departments of Interior and Agriculture, the Congress in Public Law 228 authorized the Department of Agriculture to expand its program in the Virgin Islands, particularly in the fields of extension and research, and appropriated $100,000 for this purpose. As the year closed, plans were being completed for beginning work under the new program.
The Virgin Islands Corporation
The Virgin Islands Corporation is a wholly owned Federal corporation the purpose of which is to promote the general welfare of the Virgin Islands through economic development. Toward this end it is primarily engaged in growing and manufacturing sugar, promoting tourism, developing land and water resources, making loans to commercial enterprises under circumstances where no other financing is possible, and operating the St. Croix power system. Toward the close of the year, the Congress also appropriated funds to enable the Corporation to take over the St. Thomas power system from the St. Thomas Power Authority.
The sugar operations resulted in a crop of approximately 11,600 tons of raw sugar and 441,600 gallons of molasses, the highest yield in many years. In spite of this improved yield, a financial loss was sustained, largely because the small size of the quota assigned to the Virgin Islands under the Sugar Act forced sale of roughly half the crop on the world market at a heavy loss. A small increase in the quota during the coming fiscal year, together with continuing operational improvements, is expected materially to reduce the loss.
Promotion of tourism was assisted by an appropriation of $30,000 to the Tourist Development Board to be used for other purposes than payment of salaries.
Under the land and water development program, two earth dams of 14 and 30 million gallons capacity, respectively, were constructed, while several existing smaller dams were constructed, improved, or repaired. Plans also went forward for 68 medium-sized dams to be undertaken early in 1953, and two new wells were dug which are producing satisfactorily. Brush clearance also went forward in cooperation with the Production and Marketing Administration of the Department of Agriculture, mapping operations were carried out, ma
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 443
chinery was procured for large-scale grass seeding for land improvement and 3 acres were seeded by airplane to West Indian mahogany on advice of the Department of Agriculture’s Forest Service.
Operation of the St. Croix power system was undertaken during 1952. Following authorization by the Congress, the Corporation paid off a prior loan from the Rural Electrification Administration, Department of Agriculture; acquired the St. Croix Power Authority’s system; and established a Power Division within the Corporation. A substantial program of improvements was launched and a uniform, simplified rate structure was instituted with an over-all appreciable reduction in rates. At the same time, the Division operated at a profit for the year of approximately $11,000.
Public Works Program
Progress with public-works construction in the Virgin Islands during the fiscal year has been gratifying. The four hospitals at St. Thomas, St. John, Christiansted, and Frederiksted are well along in construction and should be completed before December 31, 1952. Telephone-exchange buildings have been completed for St. Thomas, Christiansted, and Frederiksted, and the other telephone communication facilities under construction, as well as the sea-wall improvements, are expected to be completed early in the next fiscal year. The water-supply catchment areas on St. John are expected to be completed before December 31, 1952.
Planned improvements to existing roads, with a few exceptions, have been completed in this fiscal year. The survey for the Center-line Road on St. John has been completed and construction of the road is expected to begin early in the next fiscal year.
Preliminary plans and specifications have been approved for the school program consisting of nine new schools and changes to seven existing schools. Final plans and specifications for the Christiansted Consolidated School consisting of a high and an elementary school, and improvements of the La Vallee Elementary School on St. Croix have been approved and bids for their construction will be opened August 28, 1952. Final plans and specifications for the Charlotte Amalie High School, and alterations to Madison, Herrick, and Monroe Elementary Schools on St. Thomas are expected early in the next fiscal year.
PACIFIC TERRITORIES
This was a year of historic significance throughout the Pacific Territories—marred only by the failure to grant Hawaii the statehood it
226396—53--29
444 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
so richly deserves. It marked the first year of civilian administration in American Samoa and in the Trust Territory of the Pacific Islands—a year during which these Territorial governments, despite severe financial handicaps, made important gains in economic, health, and educational fields while severing ties with the previous naval government. This was Guam’s second year of civilian government under an organic act, and the first in its history under the United States without direct Federal subsidy. The progress made by all branches of the Government of Guam justifies fully the confidence of the Congress in the ability of the people of Guam to govern themselves.
Federal legislation and programs on behalf of our Territorial populations strengthen the bond between these strategic areas and the mainland and help maintain the respect and confidence of other free Pacific peoples in the United States.
HAWAII
Statehood Again Deferred
The Department, following the strong leadership of the President, concentrated its efforts for Hawaii on the enactment of statehood legislation, which was again introduced early in the Eighty-second Congress and later amended to take account of the adoption by the people of Hawaii of a State constitution, which their elected representatives had drawn up in accordance with procedures outlined in previous statehood bills. Administration and congressional leaders decided to focus their efforts on obtaining Senate approval of the legislation in the knowledge that the House would overwhelmingly approve the measure as it has in previous Congresses.
The Senate’s action on the Hawaii bill became unavoidably dependent upon approval of the Alaska statehood bill when the Senate decided to consider the Alaska bill first. Unfortunately, the Senate elected, by the narrow margin of one vote, to send the Alaska statehood bill back to committee for further consideration, and Hawaii as wTell as Alaska statehood was again postponed.
Legislative Gains
The Department’s legislative program for Hawaii was, except for statehood, very successful. In cooperation with the Delegate and the Governor of Hawaii, the Department pressed for and obtained legislation to compensate the Territory for its care of leprous patients; to remove, with appropriate safeguards, unrealistic restrictions on the port handling of commercial explosives, to amend the organic act as recommended by the Territorial legislature, and to authorize bond
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 445
issues for public improvements. An essential measure on which legislative action was not concluded was the authorization of Federal funds for water-resources investigations. Several urgently needed flood-control projects, deferred in accordance with the President’s economy program, as wrell as a project to construct a barrier to protect the city and harbor of Hilo from destruction by lava flows from Mauna Loa volcano, should be undertaken as soon as conditions permit.
Through Federal legislation and executive action, a number of areas no longer required for military use were restored to Territorial use and control. The Governor’s land-use committee, established by direction of the President and composed of representatives of the Armed Forces and Territorial agencies, submitted its final report indicating agreement on the disposition of areas, with the exception of six on which further consultations are being held.
Economic Recovery
Increased military defense activities since the outbreak of the Korean war have enabled Hawaii to recover from the economic slump into which it had fallen following demobilization at the end of World War II. Meanwhile, the Territory sought to free itself from excessive dependence on military spending and to meet the demands of a growing population by increasing and diversifying its agricultural production, by promoting the development of new industries, and expanding its tourist trade.
Despite a costly strike in the pineapple industry, labor-management relations within the Territory showed marked improvement. However, a maritime strike tied up west-coast shipping from May 26, 1952, until mid-July, emphasizing the fact that the Territory has suffered from similar disputes for almost a decade. Some solution must be found which, while fair to both labor and management, recognizes the paramount public interest in the continuance of transportation during labor disputes.
The Secretary of the Interior participated with Vice President Barkley in the Territory’s celebration of Pearl Harbor Day. The Secretary visited most of the islands in the Hawaiian group, discussed with Territorial leaders the means of promoting Hawaii’s development, and made several major addresses.
GUAM
The Department, though responsible by statute only for supervision of the relations between the Federal Government and the government of Guam, takes pride in the accomplishments, of the Ter
446 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
ritorial government and in the manner in which our citizenry on Guam has fulfilled its national-defense and other civic obligations.
The Territorial civil-service system instituted last year was strengthened by the establishment of an effective retirement system. Many of the Department heads and more than 90 percent of the employees of the Territorial government were recruited locally. A land-management and planning program has been established based upon an excellent statute. The judiciary has been reorganized under a statute which accords with recommendations made by Judge Albert B. Maris of the United States Court of Appeals for the Third Circuit. Under this statute, the District Court of Guam, which has the jurisdiction of a district court of the United States, has been given certain local jurisdiction as well.
Additional authority has been granted to the Board on Utility Rates in regulating the operation of public utilities. The Governor’s long-range public-improvement program was adopted by the legislature, and plans are being made for the construction of new schools, a new hospital, and expansion of power facilities. A juvenile-court law was passed providing for an enlightened system for handling juvenile delinquents. A civil-defense program has been instituted. A College of Education to train teachers has been established on Guam in cooperation with Ohio State University. A Guam Finance and Development Administration has been created and provided with a revolving loan-and-guaranty fund to assist local farmers and businessmen. All these and many other actions of the Guam government reflect the magnitude and fundamental character of the tasks which confronted the new civilian government.
Civil Rights
A substantial civil-rights gain was achieved when Governor Skinner removed the requirement of many years’ standing that United States citizens must first obtain the Governor's permission before entering Guam. Prior permission of the Secretary of the Navy is, however, still required as a security matter under Executive order. The Territorial legislature repealed previous laws prohibiting intermarriage between persons of different races.
Toward a Housing Program
The Office of Territories arranged for a team of Federal housing experts to study housing needs on Guam. Upon conclusion of the survey, the Office cooperated with the National Housing Agency in obtaining enactment of the necessary legislation as part of the Housing
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 447
Act of 1952. Before the end of the year, steps had been taken to* establish Federal home-loan and mortgage-guaranty facilities on Guam. The need for housing is urgent and will require the best efforts of the Federal and local government if it is to be met.
Immigration and Tax Problems
Extended discussions held with the Immigration and Naturalization Service resulted in the Service establishing a station on Guam and undertaking to enforce those United States immigration laws which are applicable.
The authority of the government of Guam to levy and collect income taxes was upheld by the District Court of Guam in a suit brought by a taxpayer who challenged the Territorial government’s authority to levy and collect income taxes under the provision of the organic act which states that the income-tax laws in force in the United States shall likewise be in force in Guam. The case is now on appeal to the United States Court of Appeals from the Ninth Circuit and will be heard in the fall.
Other Technical Assistance to the Territory
The Department sent a representative to Guam as a member of an interdepartmental group to study certain Federal problems involved in the employment of alien Filipinos on Guam. Recommendations were made looking to the protection of Guamanian workers from the competition of imported workers whb are paid relatively low wage rates, the enforcement on Guam of the Fair Labor-Standards Act, and the enactment of a local minimum-wage law. Arrangements were made by the Department for the assumption by the Department of Agriculture of direct responsibility for enforcement of Federal plant and animal quarantine regulations. Two experts were sent to Guam by the National Park Service to advise on plans and programs for community recreation and for conservation of historic sites and monuments.
The Public Administration Service of Chicago completed its study of the organization of the government of Guam. This was the last of four such studies financed from the President’s Management Improvement Fund, which were contracted for by the Department after consultation with the Territorial government.
The seven-man commission which was appointed by the President under the organic act submitted its report to the Congress with recommendations as to which laws applicable to Guam on August 1, 1950, should be declared inapplicable and which laws not applicable
448 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
on that date should be made applicable. Most of the Commission’s recommendations were incorporated in an omnibus bill (H. R. 6808) on which hearings were held in the House but no action taken. Other recommendations were either embodied as amendments to pending legislation and in certain cases enacted or were submitted as separate legislative proposals. The Commission’s recommendations provide the basis for the Department’s legislative program for the Eighty-third Congress.
Public Domain Transferred to Island Control
Of outstanding importance in the rehabilitation of the island community was the transfer by the Secretary to the government of Guam of all public-domain land under departmental jurisdiction, comprising some 30,000 acres. This arrangement was qualified by the proviso that none of the land should be alienated for other than rehabilitation or homesteading purposes without prior approval of the Secretary.
Further Developmental Programs Needed
Much remains to be done on Guam to enable the Territory to realize the full potentialities of its human and natural resources. Food production must be accelerated, and manufacturing enterprises should be greatly expanded to meet local needs. Public and private construction is urgent. Further improvement in educational, health, and other public services are needed. The government and people of Guam can be expected to undertake most of these developmental programs on their own initiative with the resources now available to them. They will, however, need some assistance from the Federal Government, principally through proper extension of Federal laws and services as recommended by the President’s Commission, and the transfer to the Territorial government of lands controlled by the Armed Forces which are no longer required for military purposes.
AMERICAN SAMOA
By Executive Order 10264, responsibility for the government of American Samoa was transferred from the Secretary of the Navy to the Secretary of the Interior on July 1, 1951. The first act of the ■ Secretary was to define the Department’s relationship with the Territorial government and to outline in broad terms the Department’s policy. Under that order, executive authority within the Territory is vested in the Governor and other officials appointed pursuant to law and is exercised under the supervision and direction of the Secre
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 449
tary of the Interior. The Governor has been delegated legislative authority under the supervision and direction of the Secretary except that no measure affecting the power of the Fono (the local legislative advisory body) or the judiciary may become effective without the approval of the Secretary. The Secretary appoints the chief justice, and judicial authority is established independent of the executive and legislative instrumentalities of the government.
Within the Territory, the replacement of naval personnel was concluded within the first few months. Public services continued uninterrupted throughout the transition, despite financial and other restrictions, and by the end of the year rapid progress had been made in establishing a sound foundation for government in the future.
Complex wage and personnel problems were inherited from the previous administration. To meet these problems, as well as that resulting from the Civil Service Commission ruling that Stateside employees could not be considered Federal employees, the Department contracted for a comprehensive personnel survey with Research Associates of Hawaii, and the classification, compensation, and merit system resulting from the study has been established, thus providing a sound basis for employment in the future. A retirement plan was also drawn up for installation during the ensuing year.
Another pressing problem that required solution was the establishment of an effective system for accounting and fiscal control, including accounting for accrued obligations and revenues which had not been done previously in the Territory. Representatives of the General Accounting Office made a survey of the situation and assisted in the installation of a new accounting system.
The Department sponsored a survey of the medical problems and program in American Samoa by an official of the United States Public Health Service. Arrangements were also made for the United States Labor Department to send an expert from the Hawaii Employment Service to survey the availability of Samoan workers for employment in Hawaii and on the mainland and to establish a regular system for reporting the availability of such workers. In addition, the Department sponsored a survey of the Territory’s judicial system by Judge Albert B. Maris. His recommendations will serve as the basis for legislation at both local and Federal levels to improve the functioning of the judiciary and to provide for appeals into the Federal court system.
While these surveys of basic administrative problems were progressing, the government of American Somoa was pushing forward, as rapidly as its limited budgetary position permitted, to meet the urgent problems of a rapidly increasing population.
450 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
As part of a stepped-up educational program, 14 new schools and 12 living quarters for teachers were built by village labor. The 4,162 students enrolled in private and public schools during 1951 increased in 1952 to 5,018, of whom 3,898 were in government schools. An outstanding development in the education field was the establishment of the Feleti Memorial Teacher-Training School, which will be operated on both governmental and foundation funds to provide expert instruction to graduates of the high school.
The small number of professional public health personnel in Samoa made notable achievements in the past year. A program for local treatment of leprous patients was inaugurated which, however, must be expanded to care for patients now being treated at a British leprosarium in the Fiji Islands. A program to immunize the entire population against typhoid and smallpox was instituted and, in addition, 9,000 children were immunized against diphtheria, whooping cough, and tetanus. A high light in the dental program was the intensive treatment of the population on Swains Island, 200 miles north of the capital of American Samoa.
Agricultural progress was made during the year with the importa tion and distribution for planting purposes of selected superior-strain coconuts and cacao pods, and of a large variety of truck-garden crop seed for testing purposes. Programs for improvement of cattle and poultry breeds and for the control of insects are in progress.
Industrial activity in American Samoa consists only of the production of local handicraft items, which, with the government’s assistance in marketing, provides a modest cash income for many families otherwise dependent wholly upon subsistence farming. Steps are now being taken for the Government of American Samoa to offer for lease a fish cannery which was purchased in order that its employment and income potential would not be lost to the people through its sale for export from the territory.
Much still remains to be done in American Samoa. Continued attention is required for the development of the local legislative advisory body, the Fono, to bring it to the point where it can assume legislative powers. Serious attention must be given to the problems resulting from population growth. Due to the limited amount of arable land, improvement of agricultural production and development of new industries are urgently needed. Better transportation, both surface and air, is a vital necessity if the economic situation in Samoa is to be substantially improved.
TRUST TERRITORY OF THE PACIFIC ISLANDS
The formal transfer of responsibility for the Trust Territory of the Pacific Islands to the Secretary of the Interior took place July 1, 1951,
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 451
pursuant to Executive Order 10265. This was followed by an order of the Secretary of the Interior similar to that for Samoa, delineating the extent and nature of the authority of the Government of the Trust Territory and prescribing the manner in which relationships of the Government with the Congress, with other Federal agencies, and with foreign governments and international bodies are to be established and maintained.
As was anticipated, a major task during the first year of responsibility for the Trust Territory was in completing details of the transfer from the Department of the Navy. Fortunately, prior to the transfer, arrangements had been satisfactorily completed to provide communications, air service, and other necessities of government for this vast area. Civilian administration of the shipping service was established on August 1 and replacement of naval government personnel with civilians was completed during the ensuing 2 months.
With the basic framework and needs of the government thus established, attention was directed to improving the services, functions, and program of the government. A new accounting system was established and was reviewed and approved by the General Accounting Office. A survey was also arranged with the United States Public Health Service of the medical and public health programs of the territory. There is urgent need for funds to improve hospital facilities.
Judge Albert B. Maris made a study of the judicial system in the territory and his recommendations are being placed in effect. The General Accounting Office detailed two of its experts to review the functioning of the Island Trading Co. and at the close of the year a further study of the company was under way by an economic consultant to the territorial government to recommend what the future of that government-controlled corporation should be. Through the company’s handling of copra marketing and the operation of a copra stabilization fund, maximum returns are ensured to producers and the shock of sharp fluctuations in world prices lessened.
Trust Territory officials restudied the surface transportation problem with a view to adapting the service more closely to the needs of the Territory and reducing costs. They recommend that the six former Navy AKL ships be replaced with schooner-type vessels and that a large vessel, in addition to the former Navy AK now in use, be acquired to provide direct service between District centers and the west coast mainland. Almost 200 islanders, employed on these vessels, are obtaining valuable experience and broadening through travel in the area and occasionally to foreign points.
Financial and related economic problems of the Trust Territory were the source of almost all of the difficulties encountered by the territorial government. The heavy cut by the Congress in the amount requested for the fiscal year necessitated constant assessment of expenditures in
452 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
order to ensure that the most urgent of the many needs was always being met. The Congress did not approve supplemental budgetary requests through which it was hoped to alleviate shortages in supplies and to replace worn-out facilities in order to end the constant flow of funds into the repair of such facilities.
Nevertheless, the Trust Territory Government has maintained a satisfactory record of administrative achievement. There has been increased participation by islanders in local government. The total of regional advisory bodies was increased to four with the approval of a charter for the Congress in the Ponape District. Local Micronesian sheriffs have taken over responsibility for island law enforcement and the High Commissioner has appointed 21 islanders as justices of District courts.
The arrangements made at the time of the transfer to send some fifty islanders to the Central School of Medicine at Fiji have proved very satisfactory. The first graduates have assumed responsible positions in all of the six districts. Two Micronesian medical practitioners were sent to Hawaii for training in ophthalmology and a new class of nurses completed training at the Guam Memorial Hospital. On Saipan, selected men were trained as X-ray technicians and a new hospital for the insane was opened. Sanitation measures have been improved through wider acceptance of insect- and rodent-control measures and better understanding of waste disposal problems.
In education, 141 elementary and 6 intermediate schools and the Pacific Islands Central School were maintained in full session, in addition to courses in adult education. There has been an integration of school and community activities, an expansion of in-service training of local teachers, and the development of more effective curricula and text materials in local languages and in English.
Efforts to develop the economy have been directed not only to improvement of present crops such as copra, but also to the introduction of cacao, to the accelerated production of high-grade poultry, and to the development of a cattle industry in the Northern Marianas. Copra sales will be greatly fostered by the passage of Federal legislation which makes the two cent internal revenue tax on the first processing of coconut oil inapplicable to oil produced from Trust Territory copra.
Negotiations with the Japanese Phosphate Mining Co. and Japanese Government officials led to the continuation of phosphate mining on Angaur Island under favorable conditions. Consideration has been given to the advisability and practicability of mining bauxite deposits on Babelthuap Island. The Trust Territory Government has received a substantial return from the sale of war-generated scrap and has taken steps toward contracting for the salvage of sunken vessels in Trust Territory waters.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 453
A complete and detailed review of the administration of the Trust Territory is undertaken each year by the Trusteeship Council of the United Nations. During the year, the Department collaborated with the Department of State and the High Commissioner in presenting the annual report for the year ending June 30, 1951. This report, as in the case of previous years, was well received by the Council, which noted “with satisfaction the transfer of authority to civilian administration without any disruption of the various services.”
Organic legislation, which was introduced in both the Eightieth and Eighty-second Congresses but which was not acted upon, remains a pressing need in order to establish by law the basis of the civil government and the rights and duties of the inhabitants of the territory. Also of importance is the need for establishing the headquarters of the government within the territory. The present arrangement, with headquarters in Hawaii, is recognized by all as being far from satisfactory. Another pressing need, as previously mentioned, is for funds to replace worn-out and wholly inadequate facilities and accommodations. Their constant breakdown and repair is a wasteful drain of time and money. Their replacement would not only save money but permit officials to devote their time more profitably to the substantive tasks of administration.
OTHER PACIFIC ISLANDS
The Office of Territories laid plans for providing education to children on Canton Island and continued to carry out its responsibilities in the Equatorial Islands. It also consulted with the Department of State on matters pertaining to disputed islands in the Pacific.
■
♦
■
■
DIVISION OF GEOGRAPHY
Meredith F. Burrill, Director
The Division of Geography was established to discharge the duties of the Secretary of the Interior with respect to the act of July 25, 1947, which established the Board on Geographic Names. The Division performs research and other staff functions relating to the standardization of geographic names.
Virtually all of the Division’s work in 1952 was concerned with areas outside of the continental United States. Geographic and linguistic research preceded the standardization of more than 150,000 geographic names for the use of Federal agencies. Over 5,000 individual name decisions were processed. More than 200,000 tabulating cards were punched for publication in gazetteers, and well over 400,000 names were edited on maps and in text for correctness of spelling and accuracy of application. The Division’s inquiries service supplied 15,000 names to users by telephone and mail.
Most of the above data indicate increases over 1951, reflecting added responsibilities undertaken by the Division in the standardization of names for military maps of foreign areas.
Concurrently with the appointment of a special Advisory Committee on Arabic and Persian, the Division initiated systematic staff research as a basis for romanization of names from Arabic and Persian sources.
UNITED STATES BOARD ON GEOGRAPHIC NAMES
The Board on .Geographic Names is an interdepartmental organization established for the purpose of standardizing geographic nomenclature for use by the Federal Government. Representatives of 11 Federal departments and agencies make up its membership. Rear Adm. K. T. Adams (retired) became chairman during the fiscal year 1952.
JFK
456 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Board and its committees held frequent meetings during the year to act on policies, names, publications and related matters. Basic foreign name policies were considerably extended to cover new areas and additional matters in areas previously covered. The volume of the Board’s activity is reflected in the statistical data included in the report of the Division of Geography.
The Board issued a revised Catalog of Publications and decision lists for Burma, Thailand, China and associated areas, Malaya and Singapore, Indochina, Guatemala, and Alaska.
The Advisory Committee on Antarctic Names virtually completed its recommendations for standardizing the names in that area that have been used or proposed, and the Advisory Committee on Names in Alaska continued to review and furnish recommendations on Alaskan name problems. A new Advisory Committee on Arabic and Persian was created to provide expert technical advice on names derived from Arabic and Persian sources.
DIVISION OF INTERNATIONAL ACTIVITIES
Joseph C. McCaskill, Director
The Secretary created the Division of International Activities on November 24, 1950, by Secretarial Order No. 2598. In his memorandum to the heads of bureaus and offices with respect to the establishment of the Division the Secretary stated:
The increasing responsibilities of the department in resource conservation and development require that greater emphasis be placed on our activities in the field of foreign policy and programs, both in the Office of the Secretary and in bureaus and offices concerned.
The need for this emphasis stems from two developments: First, the reorganization of the Department of State envisaged dependence by that Department on technical agencies of the executive branch for commodity and other such specialized support * * * The Executive Order of the President of October 13, 1950, including this Department in the administration of the Trade Agreements Program, is a concrete example of this enlarged responsibility.
Second, the Point 4 Program * * * has been enacted and the procedures for its administration depend largely upon the work of action agencies such as the bureaus of this Department. This program presents a challenging opportunity to use our experience and knowledge as a natural resource agency to cooperate on projects in those areas where resource development and management is the key to raising living standards.
The creation of the Division of International Activities represented a stepping-up of existing operations by the Department rather than a new venture into uncharted waters. In the discharge of its domestic responsibilities, Interior had, over the past decade, been increasingly concerned with their relationship to international affairs. Consideration had to be given to the impact of United States programs, such as stockpiling and allocation of scarce materials, on the economies of friendly foreign powers. Reciprocally, the pertinent international factors, as for example, Japanese tuna production, had to be assessed before Interior could frame its domestic programs. Thus, in many of the resources fields of concern to the Interior Department, there can be no isolated domestic programs; rather, they become domestic aspects of free-world programs.
457
458 ☆ ANNUAL report of the secretary of the interior
The Division of International Activities seeks to interpret to the Department the reciprocal interrelationship of departmental activities and foreign affairs, to foster cooperation and consistent action among the foreign operations of the bureaus and offices in the Department, and to serve as the focal point of contact of the Department with other agencies in the international field.
This reporting year is the first complete year of activity by the Division of International Activities. The Division conducted its operation during fiscal year 1952 with a total staff of 12, including professional and clerical personnel.
Since the establishment of the Division, the Department’s participation in international activities has been highlighted by:
A formal visit by the Secretary of the Interior to Venezuela and Mexico, important suppliers to the United States of petroleum, iron ore, and other minerals.
Representation on the International Tin Study group, the United Nations Commodity Conference on tin, and the United States Tin Mission to Malaya.
Participation in the Tariff Negotiating Conference of the General Agreement on Trade and Tariffs, and in the United States-Venezuelan trade negotiations.
Participation in the fishery treaty with Japan.
A considerable increase in the Department’s role in the Point Four program.
Leadership in the study and preparation of recommendations submitted by the United States to the Economic and Social Council of the United Nations designed to improve international activities in the field of water control and utilization.
SUMMARY OF ACT I VITI ES—1952
Point 4 and Other Technical Assistance Programs
In cooperation with the Technical Cooperation Administration (TCA) of the Department of State, and the Mutual Security Agency (MSA), the Department of the Interior is providing assistance to the Governments of an increasing number of countries in planning for the long-range development of their natural resources.
In this connection, the Division of International Activities undertook negotations during the year with TCA and MSA in an effort to develop working agreements with these agencies which would assure an adequate and effective role for the Department of the Interior in all phases of technical assistance in the natural resources field. This would include planning and programing, carrying out of assistance projects in the field, developing effective training programs for for
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 459
eign nationals, and providing advice and assistance to both TCA and MSA officials in assessing the role of natural resources assistance in the over-all technical cooperation program.
As a result of the negotiations, a training agreement has been completed with MSA and a projects agreement is nearing conclusion. Agreements both on training and field projects are under negotiation with TCA.
To facilitate the development of departmental positions on the agreements mentioned above, and on other major policy, organizational, and procedural problems, the Division established a departmental working group consisting of representatives of the interested agencies of the Department. Meetings of this group with officials and specialists of TCA, MSA, and appropriate United Nations agencies were arranged by the Division, in order to facilitate coordination between Interior Department bureaus, other agencies of the Government, and the international agencies.
Members of the staff of the Division represented the Department on the Inter-departmental Advisory Council on Technical Cooperation, the principal interagency advisory group to the Administrator of TCA, and on similar interagency groups concerned with major problems related to both bilateral and multilateral technical assistance programs.
The Division received from TCA and allocated $2,615,944 to the bureaus and offices of the Department for their participation in the Point 4 program during fiscal year 1952. Within that period, the Department had 112 specialists in the field giving cooperative assistance to 26 TCA countries. In anticipation of a satisfactory working agreement with MSA, the Department also undertook a number of foreign technical assistance projects for MSA, sending 35 specialists to 8 MSA countries. Also, a technician was sent to one country for the United Nations.
In addition to the above, 10 Department of the Interior specialists were sent on request to 5 countries at the full expense of those countries.
The training of foreign technicians and leaders in modern methods of natural resource development and the orientation of foreign official observers in the Department’s functions, operations, and field activities was an important phase of the technical assistance programs during the year.
In some instances, full training grants were awarded by TCA, MSA, other State Department programs, or the United Nations. In other cases, the foreign governments concerned provided the funds.
In this phase of the work, the Department gave specialized training to 249 technicians and leaders from TCA countries, and orientation to 78 official observers from those countries. Training was given to
226396—53---30
450 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
62 trainees and leaders from countries where MSA operates, while 97 officials from those countries came to observe and study Interior’s natural resources programs. Also, the Department trained 62 foreign technicians, sponsored by the United Nations, and received two official observers under the U. N. In addition, 7 Japanese nationals, sponsored by the Department of Defense, were received by the Department as trainees or observers.
United Nations and International Conferences
The United States, in the last fiscal year, took the leadership in the United Nations Economic and Social Council to bring about a greater degree of coordination among the various international agencies working in the field of water control and utilization.
By request of the United Nations Economic Committee, the principal United States Federal interagency committee concerned with United States policy and activities for the United States delegation to the United Nations Economic and Social Council, the Department took the responsibility of chairing an interagency working group to review the work of international organizations engaged on water problems and to make recommendations thereon. The group was established in February 1951 with the Director of this Division as Chairman, and the staff of the Division acting as secretariat.
The above group’s first major report recommended policy guides with respect to the water activities of the United Nations, the Food and Agriculture Organization, and other international organizations. It also urged establishment of a central staff in the United Nations Secretariat to provide technical leadership and to assist in coordinating the work of the various United Nations agencies with respect to their water programs.
The United States delegation embodied these recommended points in a proposal to the United Nations Economic and Social Council which accepted them by resolution in its 1952 session. In this connection the Director of the Division served as advisor to the United States delegation.
Through the Division, the Bureau of Land Management and other interested bureaus, the Department actively participated in developing United States policies with reference to land tenure. The Department participated in the first World Conference on Land Tenure, at the University of Wisconsin, in the fall of 1951. Officials of the Department presented papers and took an active part in the meetings. Agencies of the Department are cooperating with the United Nations Food and Agriculture Organization in the planning and programing of its forthcoming Latin-American Conference on Land Utilization to be helddn Brazil early in 1953.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 461
The Department of the Interior has long recognized the importance of international conferences and seminars as a means of exchanging ideas and technical knowledge with other friendly nations. For example, the stimulating effects of one such conference the United Nations Scientific Conference on Conservation and Utilization of Resources, initiated and planned by the Department and held in 1949— continue to be evident. As a result of it, an increasing number of requests come from the governments of the lesser developed countries for conferences and seminars on the appraisal and development of natural resources.
International Trade and Materials Production
International stimulation of materials production and trade were of key importance to the United States and the other free nations of the world during 1952. The Department of the Interior’s concern and responsibility in connection with strategic materials and other commodities increased the Division’s active participation in a number of negotiations in this field.
In October 1950, the Department became a member of the Trade Agreements Committee (TAG) and the Committee for Reciprocity Information. Since then the Division has represented the Department on these Committees. The Interior representative joined TAC in Torquay, England, during the Tariff Negotiation Conference conducted by the General Agreement for Trade and Tariffs. Later, the Division supplied a representative on the United States Team for Renegotiation of the United States-Venezuela Reciprocal Trade Agreement, which dealt largely with petroleum and iron ore, commodities of vital concern to Interior.
Staff members of the Division also represented the Department on the following interagency groups during the year:
The Advisory Committee on Export Policy, which is responsible for advising the Secretary of Commerce on the control of exports from the United States.
The Economic Defense Advisory Committee, which advises on policy and administration of the Battle Act of October 1, 1951. This act provides for the cessation of economic, financial, and military aid in the event that recipient countries fail to cooperate in controlling shipments of critical and strategic materials to the Soviet orbit.
The Foreign Supplies and Requirements Committee, concerned with the establishment of United States policies and programs to assure adequate production and equitable distribution of materials in short supply.
The Foreign Facilities Committee, which advises the National Production Authority on allocation of scarce materials and equipment to foreign claimants.
462 ☆ annual report of the secretary of the interior
Since the Division’s role is principally one of dealing with policy and coordination, the main burden of preparing for such interagency representation and international negotiation and of dealing with interim problems falls on the Department’s bureaus. Therefore, the Division set up work groups within the Department to enlist the bureaus in supplying the information and recommending courses of action to the departmental representatives. As a consequence, in the Fish and Wildlife Service and in the Government of Puerto Rico, action is under way to expand their facilities for dealing with foreign trade.
In connection with the activities noted above and other international matters affecting the Department, the Division participated in the preparation of legislation and executive orders and prepared or reviewed Interior reports thereon. Approximately 50 proposals were handled by the Division during the fiscal year.
The expanding role of the Department of the Interior in international affairs has also increased substantially the Department’s requirements for economic information from the Foreign Service. The Division was assigned the responsibility of assisting the Division of Foreign Economic Reporting, Department of State, in an evaluation of the current informational requirement needs of this Department. During the year, the Division has coordinated the data requirement needs of the interested offices and bureaus and has served in a central liaison and coordination capacity in a critical review of 21 individual country economic reporting programs.
LOOKING TO THE FUTURE
With the release of the Report of the President’s Materials Policy Commission as the fiscal year came to an end, the Department began preparing itself to assume the broader role in foreign minerals which the Commission recommends. The Division has devoted itself to studies of the appropriate functions for planning and operating a foreign minerals program which has as its objective the assurance of adequate flow of minerals to the United States and the free world.
The report of the Commission calls for collection and analysis of statistics and information on foreign minerals in considerably greater volume than presently. Supplies and requirements in each commodity need to be appraised and projections should anticipate the supplydemand situation in future years. Specific objectives for production of minerals in each country will be outlined and various methods recommended for meeting these objectives, including among others international commodity arrangements, technical assistance, tariff and tax concessions, investment treaties, loans, and procurement contracts. Similar action in the water and land fields will follow in due
course.
OFFICE OF THE ADMINISTRATIVE ASSISTANT SECRETARY
Vernon D. Northrop, Administrative Assistant Secretary
By virtue of the delegation of the authority of the Secretary of the Interior in the field of administrative management to the Administrative Assistant Secretary, this Office provides integrated direction of the functions of the Department in that field. The Office is comprised of the immediate office of the Administrative Assistant Secretary and five divisions, viz, Budget and Finance, Property Management, Personnel Management, Management Research, and Administrative Services.
A report for each division follows:
DIVISION OF BUDGET AND FINANCE
D. Otis Beasley, Director
The Division of Budget and Finance is responsible for the general direction and supervision of financial and budget functions of the Department. Its responsibility also extends to the investigation of alleged irregularities. The Division also has the responsibility for budget and finance functions as related to the defense agencies for which the Secretary has been designated the responsibility under the Defense Production Act of 1950. The organization of the Division consists of the Office of the Director and three branches covering budget, finance, and investigations.
The Interior Appropriation Act for 1952 contained appropriations amounting to $511,841,816. An additional $22,034,400 was obtained through supplemental appropriation acts, making a total of $533,876,216 appropriated to the Department. Of this amount $5,235,000 was made available in supplemental appropriation acts for meeting the cost of operating the emergency defense activities for
463
464 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
which the Secretary was designated the responsibility under the Defense Production Act of 1950.
The Budget Branch is responsible for developing general budgetary policies, devising methods and standards to guide the preparation of budget proposals by the bureaus, and analyzing the proposals in relation to the Department’s over-all budget programs. The Branch also supervises and participates in the presentation of the Department’s estimates before the Bureau of the Budget and the Congress. Problems involved in accomplishing the complete unification and simplification of the Department’s budget, as well as of achieving uniformity and improvement in the budget presentations of the bureaus, have continued to require the attention of the budget staff. During the coming year efforts will be devoted to further improvements in budget presentations so as to permit a better understanding of the purposes for which appropriations are requested.
The Branch of Finance continued to participate actively in the joint program of the Bureau of the Budget, Treasury Department, and the General Accounting Office for improving accounting in the Federal Government. Continued consideration has been given to the provisions of section 113 (a) of the Budget and Accounting Procedures Act of 1950, as concerns the establishment of effective control and accountability for all funds available to the Department. An internal audit program has been inaugurated in the bureaus and offices of the Department, the extent of such program being limited to the funds available for such purpose in the fiscal year 1953. The bureaus and offices of the Department established a system of administrative control under departmental regulations issued pursuant to section 1211 of the General Appropriation Act, 1951, so as to (a) restrict obligations or expenditures against each appropriation to the amount of apportionments or reapportionments made for each such appropriation, and (&) enable the Secretary to fix responsibility for the creation of any obligation or the making of any expenditures in excess of an apportionment or reapportionment.
The Branch of Finance has effected a work arrangement with the General Accounting Office with respect to its comprehensive audit program. All bureaus and offices will be covered by such an annual audit program effective for the fiscal year 1953 with the exception of two bureaus of the Department; certain areas under the jurisdiction of the Office of Territories and the Office of the Secretary.
The Branch of Finance with the cooperation of the General Accounting Office prescribed procedures and installed complete accounting systems for the Southwestern Power Administration, Southeastern Power Administration, Bureau of Indian Affairs, the Alaska Road Commission, and the Government of American Samoa. Fur-
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 465
tlier the Branch of Finance with the cooperation of the Accounting Systems Division of the General Accounting Office continued to assist and cooperate with the bureaus and offices to improve their accounting systems, particularly with respect to the accounting systems of the Bureau of Reclamation, Bureau of Land Management, Bureau of Mines, Government of the Trust Territory of the Pacific Islands, and the Alaska Railroad.
The Branch of Investigations conducts investigations of alleged irregularities in the performance of official duties by employees of the Department; investigates alleged fraud and conspiracy in the sale and exchange of valuable timber lands held in trust for Indians and investigates complaints of unlawful trading with the Indians; conducts investigations of other miscellaneous matters under the jurisdiction of the Department for the purpose of obtaining information on which to base administrative decisions. When possible criminal offenses are indicated in the reports, such matters are referred to the Department of Justice for determination of possible institution of criminal proceedings.
DIVISION OF PROPERTY MANAGEMENT
N. O. Wood, Jr., Director
During the second complete year of operations, notable progress has been made in the management of the Department’s records and its property by the Division. An extremely close liason has been established with the bureaus and direct channels have been opened from the level of management down to the small field offices of the bureaus.
The Division continued to assume responsibility in the field of priorities. The regular bureaus and agencies were assisted in their efforts to obtain needed material through the use of priority ratings, directives, location of new sources of supply, and so forth. The Division also worked in close cooperation with other agencies of the Government charged with responsibility under the Defense Production Act of 1950, the Renegotiation Act, the First War Powers Act, and other applicable laws or regulations. In the third quarter of the fiscal year, the supply picture had improved materially and few bureaus were having difficulty in obtaining material, equipment, or supplies needed for their operations. Later, a temporary set-back was caused by the steel strike.
Regulations have been issued which permit the establishment of Imprest Fund Cashiers in the bureaus and agencies. Under this hew, improved procedure, purchases up to $50 can be made for cash, thus
466 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
dispensing with the vouchering procedure which has been a handicap to the bureaus in dealing with merchants in small towns.
The Division has worked in close cooperation with GSA in revising and simplifying various standard forms in use by procurement offices of the bureaus in order that the forms could more adequately serve the purposes for which they were designed. Although improvement was not restricted to that field, continued attention to the small purchase problem has substantially reduced the number of small orders written, with a resultant saving to the bureaus concerned.
In the field of utilization and disposition of property, the Division was primarily responsible for a number of worth-while accomplishments. One of the primary accomplishments was the development of a Manual of Allowances for Quarters, Subsistence, and Services for the bureaus and agencies in the 48 States and the District of Columbia. This manual has proved to be a very worth-while regulation; it serves to equalize payments made by personnel of the bureaus and agencies to whom Government quarters are made available, as compared to payments made for private quarters.
The Division cooperated with other departments and agencies in developing a series of interdepartmental motor equipment field conferences for promoting sound management of motor vehicles and construction equipment. It established a uniform method of identification of motor vehicles owned by Interior bureaus and agencies. There were other allied problems in the field which necessitated action from departmental level. Progress has been made in developing certain standards which greatly increase the effective utilization of property and, at the same time, tend to establish appropriate safeguards considered desirable. Standards were developed for Interior agencies to use in granting approval for employees to domicile Government-owned passenger motor vehicles. Other standards were developed governing the sale of Government property to Government employees, and detailed instructions for the distribution of excess property between the agencies of the Department. It also developed a scrap metal disposal program to assist the defense effort.
The departmental records management program has made progress in several areas. The field installations of the various bureaus have begun to utilize the facilities of the Federal records centers to store inactive records with resultant release of valuable office space and filing equipment. As of June 30, 1952, this Department had transferred more than 32,000 cubic feet of records to Federal records centers; in terms of floor space and filing equipment released, these transfers reflect a potential gain of 32,000 square feet of space and approximately 4,500 filing cabinets.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 467
The services of GSA analysts have been secured to assist the bureaus in preparing bureau-wide records control schedules so as to insure systematic and prompt disposition of inactive records throughout the Department; work in this area has already begun in two bureaus and, in one of them, more than 7,800 cubic feet of records have already been transferred to the Federal records centers. In addition, a GSA analyst reviewed the operations of the Secretary’s Files Section and other files installations in the Office of the Secretary and recommended adoption of a streamlined files classification system which was approved and is in the process of installation.
The departmental program for protection of the indispensable operating records was placed in effect and is coordinated by the Division. Funds were obtained from GSA to enable the Bureau of Land Management to microfilm all of its more than 6 million patent records and more than 50 percent of its survey notes. GSA also assisted in microfilming indispensable operating records of the Office of the Secretary, the Solicitor’s Office, and the Geological Survey.
Technical assistance was provided to two of the bureaus in initiating forms control programs and to another bureau in setting up a central reporting system.
DIVISION OF MANAGEMENT RESEARCH
Arthur B. Jebens, Director
The second year under Reorganization Plan No. 3 of 1950 was one of consolidation and adjustment as the reorganized administration of the Department began to make itself felt in day-to-day operations. During this adjustment period, it was important that continuing surveillance was exercised over the changes effected in Departmental organization and administration to assure the carrying out of the plan as originally intended. Responsibility for this task rests with the Division of Management Research.
Of primary importance during this period were the steps taken to relieve the Secretary of the Interior of the heavy load of personal supervision inherent in the former organization of the Department. The establishment of particular program areas as the responsibility of designated assistant secretaries and the under secretary provided a high level and effective means for the exercise of secretarial direction and supervision over the major programs of the Department. The success of this aspect of the reorganization plan was due in no small part to the provision of direct staff facilities for each of the program areas assigned to the assistant secretaries, viz, water and power, minerals and fuels, and land utilization and to the strengthening of the Program Staff and the Department Field Committee.
468 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
The Government-wide management improvement program, instituted early in 1950 by the President, continues today as a primary responsibility of the Division of Management Research and management planning staffs throughout the Department of the Interior. Representatives of the Division assisted bureau management planning staffs in the planning and conduct of their management improvement programs. Periodic reports were prepared in the bureaus and submitted to the Office of the Secretary for review and discussion with top officials of the bureaus. Written materials in the field of management improvement were furnished the bureaus and regular meetings on this subject were held with bureau representatives. By these means the Department of the Interior has been able to secure measurable and practical results in the conduct of its program for management improvement.
The Division of Management Research is collaborating with the Office of the Solicitor in the direction and supervision of a project to codify existing delegations of authority made by the Secretary and redelegations to subordinate levels made throughout the Department. The codification has a twofold purpose: (1) to comply with the Administrative Procedure Act; and (2) to provide a working tool for the appraisal of Departmental operations on the basis of information relating to the exercise of authority in the Department.
During the year the Division and the Program Staff collaborated with the Bureau of Mines in developing a complete programing system for all functions performed by the Bureau. The system includes long-range programs for specific minerals, annual programs, and work projects and forms the basis for planning all work to be done, fund requirements, and allotments necessary to carry on the work. It serves as a base for the entire management reporting system, also developed by the Bureau in collaboration with the Division. Initial steps were taken to develop a comparable system in the Geological Survey.
While no major organizational adjustments were made in the Department during the past year, a number of minor changes were effected. The most important of these related to the transfer of the minerals production and supply functions of the Defense Minerals Administration to the newly established Defense Materials Procurement Agency. The name of the Defense Minerals Administration was changed to Defense Minerals Exploration Administration and its functions limited to the encouragement of exploration and related development. The Division participated in the delineation of functions to be transferred; the clarification of the operating relationships with the Bureau of Mines and the Geological Survey; and the assignment of responsibility for administrative service operations for the Defense Minerals Exploration Administration.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 469
Aii integral part of the management improvement program of the Department is the granting of incentive awards to employees in recognition of outstanding service and accomplishment in the conduct of their official duties. The activities of the incentive awards staff are under the general surveillance of the Director of Management Research. Awards are given for inventions, suggestions, superior accomplishment, and efficiency. They are given in cash, as within-grade promotions, or as honor awards.
The substantial savings that accrue to the Department as a result of this aspect of the management improvement program are illustrated by the following summary for the past fiscal year:
Number of suggestions re- Efficiency awards; approved- 4
ceived Number of suggestions 1,216 Annual savings Honor awards granted: $2,889, 250
awarded 306 Distinguished service 48
Amount of cash awarded $11,572 Meritorious service 92
Annual savings Superior accomplishment $270,305 Commendable service 272
awards Leading to savings Amount of savings 136 5 $49,241 ■
DIVISION OF PERSONNEL MANAGEMENT
Guy W. Numbers, Director of Personnel
Perhaps the most significant movement in personnel management in the Department since the close of World War II has been toward decentralization of personnel authorities and functions. The size and spread of program activities, their distance from Washington, and the need for quick action, combine to make decentralization important.
The objective is to permit the allocation of responsibility for personnel actions to the field as close as possible to the base of operation. To this end some change in bureau organizational structures and staffing has been required, but the bureaus are gradually accomplishing this change and accepting more and more responsibility.
During the year there has been considerable progress toward the set goal. The bureaus, which had classification allocation authority through grade GS-13, were authorized to allocate finally all positions through grade GS-15. In the matter of appointments there was also an extension of authority. The bureaus and offices in Washington, which had appointing authority through grade GS-15, were authorized to redelegate limited authority to certain field installations.
In the field of wage-administration authority to approve wage rates for ungraded personnel, which had previously been delegated to officials in continental United States, was extended to officials in
470 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
the territories and island possessions. Formal negotiations for labor-management agreements were entered into on several large-scale projects.
The training of the third group of departmental management trainees was brought to a conclusion in June 1952. Twenty-six trainees from nine bureaus and offices began the program in September 1951. Nine were new appointees from the junior management assistant register of the Civil Service Commission and seventeen were selected among the employees who had served in the Department a minimum of a year and demonstrated outstanding management potential. Twenty-three trainees successfully completed the program. In order to make it possible to increase the number of trainees each year and to further the objectives of the program in each bureau, steps have been taken to place more responsibility upon the bureaus for making selections and for conducting the training. A small bureau committee headed usually by an assistant director has been designated to select bureau candidates, supervise their training assignments, and generally sponsor the program.
Streamlining personnel operations so that they can be carried out by the operating officials as close to the actual operations as possible has been one of the Division’s continuing endeavors. In an effort to provide the bureaus with proper guide lines in carrying out their gradually increased appointing authorities, a continuing study has been made of the Department’s supplement to the Federal Personnel Manual.
Considerable progress has been made in unifying personnel policies for the Point IV Program in cooperation with the Division of International Activities of this Department and the Technical Cooperation Administration of the Department of State.
The Department’s Interbureau Placement Committee (the Round Table) also continues to serve as an excellent forum for the discussion and recommendation of placement policies and for the development and streamlining of procedural matters. As an example of the latter, the committee has presented a revised departmental orientation plan, a project which required research and careful study.
In addition to its appraisal of personnel operations in Washington, it has been possible for the Division to expand its field reviews during the year. These surveys provide a means of (1) obtaining current and accurate information as to the effectiveness with which delegations of personnel authority are being discharged; (2) evaluating the scope and effectiveness of the bureau personnel programs as they meet the needs of the organization; (3) measuring the degree to which the programs conform to the applicable policies, standards, and procedures; and (4) furnishing advice and guidance in the interest of improving personnel-management practices.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 471
The loyalty program of the Department is coordinated in this Division. All loyalty cases adjudicated by the Interior Department Loyalty Board have been processed here and the quarterly reports were prepared for the Loyalty Review Board.
In line with the objectives of the Federal Safety Council, better safety practices have been promoted throughout the bureaus. Also, the Department’s health program has been furthered during the year.
With the view of clearing the way for greater staff service, a careful analysis of the Division’s organization was made. Preaudit and postaudit of activities were eliminated where the bureaus had demonstrated competence in accepting full responsibility for performing the duties involved. The Branch of Employment has undergone a major reorganization. So far as possible the operations and case work which cannot be delegated to the bureaus have been segregated in a section of placement in charge of a chief placement officer.
Considerable progressive legislation in the personnel field was passed during the year. Of particular importance to all classified employees was the pay increase law providing pay increases retroactive to the beginning of the first pay period after June 30, 1951. In the interest of uniformity in salaries, the Third Supplemental Appropriations Act extended the retroactive pay increases to employees under the IGS schedule (Interior employees paid the same rates as those under the GS schedule). The new leave act provides that the number of years of Government service determines the amount of leave an employee earns during the year but is limited by the requirement that the leave earned in a calendar year be used by June 30 of the following year.
At the close of the fiscal year there were 60,677 compensated employees in the Department, of which 5,955 were in Washington, D. C., metropolitan area, and 54,722 located in the field. Of the total number 41,324 were classified by grade under the Classification Act, 15,957 under wage-board procedure, and 3,396 under other pay systems. Veterans in the Department now number 25,798. The number of. women is 13,249.
There were 285 retirements in the Department during the year, of which 52 were for age, 161 were optional, and 72 were for disability.
DIVISION OF ADMINISTRATIVE SERVICES
Floyd E. Dotson, Director
The Division of Administrative Services furnishes all administrative services required by the Office of the Secretary. Service also available to all bureaus and offices of the Department includes library, museum, health, space, telephone, photographic, warehousing and shipping, duplicating, and printing and binding.
472 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Branch of library Services.—The central library of the Department was more widely used during the past year than at any other time in the Department’s history. This same comment applies to the Geological Survey library and the library of the Division of Geography, both of which are under technical but not administrative supervision of the central library.
At the beginning of the third year of its operation, the central library is being used at a rate approximately 20 percent above that of the second year, during which year the rate was more than double that of the first year. Circulation outside the library totaled more than 16,000 books and 38,000 periodicals, while more than 25,000 items were used in the reading room. Three thousand items were loaned to other libraries. The reference and circulation staff received nearly 20,000 telephone calls and the reference staff handled approximately 23,000 questions. More than 25,000 individuals visited the library.
More than 15,000 volumes of books were added and cataloged in addition to more than 43,000 items of periodicals.
Branch of personnel operations.—This branch continued to furnish service to the component divisions and staff areas of the Office of the Secretary in matters pertaining to personnel problems. The activities of the branch have included basic responsibilities in connection with position classification, wage administration, recruitment, appointment, placement, training, performance ratings, employee relations, processing, reporting, and other related phases of a personnel program operating at a bureau level.
Branch of Fiscal and Special Services.—This branch performs the regular budget and accounting functions for the Office of the Secretary and is responsible for the control of funds transferred or appropriated to the Office of the Secretary for activities carried on by more than one bureau. These include funds for the control of forest pests, the Point 4 program and the Defense activities.
Expenditures for the Office of the Secretary were approximately $4,500,000. There was also received, as income from leases and royalties on submerged lands, more than $17,000,000 which was deposited in a special account.
Records Management.—During the fiscal year the records management program for the Office of the Secretary produced the following results:
Eleven hundred nineteen cubic feet of obsolete records were disposed of as waste paper; 500 cubic feet of historically valuable records were transferred to the National Archives for permanent preservation; 740 square feet of office space were released for other uses; work was begun on the development of a standard filing classification pattern which’ will fit the needs of all divisions with the Office of the Secretary;
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 473
arrangement made for the transfer of approximately 1,800 cubic feet of inactive but administratively valuable records to the Alexandria Records Center.
Museum.—The Department’s museum is a facility used to help visualize to the public “the history, aims and current activities” of the Department, and is the repository for collections of material of historic significance in the field of conservation and development of national resources.
More than 30,000 persons visited the museum last year, coming from every State in the Union, the Territories, and 59 foreign countries.
Special exhibits are frequently shown and additions to the regular exhibits are made as frequently as possible.
Among the groups interested in the conservation activities of the Department are the teachers in public and private schools, many of whom have visited the museum.
Branch of Central Services.—No change has occurred in the responsibilities of this branch and it continues to furnish the operational management of central duplicating service, communications service for the Department and other agencies, a health-service program, photographic service for the Department, procurement for the Office of the Secretary, warehouse and shipping service and printing and binding service for the Department.
The purchase of certain new items of equipment have modernized the facilities of both the Duplicating Section and the Storage and Shipping Section, and the installation of a 17-inch by 22-inch press in the Duplicating Section has changed the classification of that function from a class A to a class B plant.
■ -
9
-
■
■
PETROLEUM ADMINISTRATION FOR DEFENSE
J. Ed Warren, Deputy Administrator1
Fiscal 1952 saw a multitude of problems in oil and gas supply confront the free world in general, the United States in particular. To review the history of the year is to list successive crises.
There was the shutdown of Iranian production of crude oil and products as a result of the controversy over nationalization of Iran’s oil. That shutdown threw free-world petroleum supplies into dangerous imbalance.
There was a threatened shortage of natural gas to supply defense and essential civilian needs. Demands for gas were expanding rapidly, but because there was a shortage of pipe, some of the necessary transmission lines could not be laid in time to meet those demands.
Disparities between Gulf and East Coast ceiling prices and high tanker rates threatened a shortage of heating oils on the Atlantic seaboard.
Work stoppages in more than one-third of the Nation’s refineries during May created an immediate problem of shortages of aviation gasoline and other products, a long-range problem of possible general shortages.
Yet despite strains and occasional dislocations the minimum requirements, military and civilian, of the United States and the oth'er free nations for petroleum and its products were met throughout fiscal 1952.
Twenty divisions of PAD cooperated in the accomplishment—11 operating divisions concerned with domestic petroleum operations, foreign petroleum operations, and gas, and 9 general service divisions and offices. But there were many other agencies that helped mobilize the oil and gas industries to meet the continuing challenge. An interagency Foreign Petroleum Committee was involved, and so were the Oil and Gas Division of the Department of the Interior, the National Petroleum Council, the Gas Industry Advisory Council, the Military Fuels General Advisory Committee, the Military Fuels Technical Ad
1 Mr. Warren succeeded the first Deputy Administrator of the agency Bruce K. Brown, oh May 29, 1952.
226396—53---31 475
476 ☆ annual report of the secretary of the interior
visory Committee, the Interstate Oil Compact Commission, the various State regulatory bodies, and others.
FOREIGN PROBLEMS
On June 20, 1951, all Iranian production of crude oil and products was closed off to the free world. This meant, among other things, the loss of 18,400 barrels a day of aviation gasoline, 95,500 barrels a day of distillate oils, and 210,000 barrels a day of residual fuel oil.
From its beginning PAD has been working on a mechanism to help it deal with foreign problems of this kind. On June 25 it put the mechanism into operation—a voluntary agreement under which 19 United States companies with operations abroad could cooperate in solving supply problems. On July 26 a plan of action designed specifically for the Iranian crisis was put into effect. This plan permitted various transactions of trade and sale among the 19 companies at Government direction to help avert some of the more serious consequences of the closing in of Iranian production.
Committees appointed by the Secretary of the Interior or the Deputy Administrator of PAD under the agreement and the plan of action collected information on all phases of foreign petroleum operations. They also recommended schedules of transactions to cover the Iranian-caused losses, and those schedules approved by PAD became a directed order of business.
To the end of June 1952, approved schedules covered the movement of approximately 45,000 barrels of crude oil and products diverted from normal trade channels. A detailed report of the activities of the committees through December 31,1951, has been submitted to the Secretary of the Interior and distributed to all interested Federal agencies. ’
The end of the year found free-world petroleum supplies and demands in rough balance, though shortages still threatened in aviation gasoline, some heating oils, and residual fuel oil.
PAD’s Assistant Deputy Administrator in charge of Foreign Petroleum Operations is the United States representative on the Petroleum Planning Committee, of the North Atlantic Treaty Organization and is a special consultant to the United States Ambassador at Large to NATO.
DOMESTIC PROBLEMS
During the year PAD faced four major crises in addition to the continuing problem of insuring that enough materials were available
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 477
to the oil and gas industries and such special problems as assuring a supply of Navy special fuel oil to erase a West coast shortage that threatened the Navy: 1
1. In the summer of 1951 it became obvious that some of the new pipelines that were needed to provide natural gas to meet rapidly expanding demands would not be completed before the peak winter season. There was, then, a possibility that, if expansion of naturalgas uses went unrestricted, some areas of the country would face a natural-gas shortage during the winter. Essential defense industries might have their gas supplies cut off; house-heating customers might have to go cold. To avert the threatened shortage the Petroleum Administration issued PAD Order No. 2, an order designed to slow down the extension of natural-gas uses in areas where pipelines were inadequate to care for unrestricted demand. The order puts limits on extension of new service to space-heating customers and requires specific PAD approval for extensions to large-volume consumers in the areas in which it is effective—Connecticut, Delaware, the District of Columbia, Massachusetts, Michigan, New Jersey, New York, and Rhode Island.
2. Military requirements for high octane-number aviation gasoline became increasingly difficult to meet as the summer wore on. To boost the available supplies of aviation gasoline PAD issued two orders. One, PAD Order No. 3, prohibits the use of alkylate and certain other blending agents in anything but aviation gasoline and requires the use of available raw materials for production of alkylate as directed by PAD. The second, PAD Order No. 4, puts a floor on the amount of tetraethyl lead to be used in the manufacture of aviation gasoline—4 cc. for each gallon to be used by domestic airlines, 4.6 cc. for each gallon to be exported.
3. Winter’s approach focused attention on the problem of homeheating oil for the East coast. Many distributors found themselves unable to buy this oil on the Gulf coast at prevailing ceiling prices, pay high freight rates for tanker hauls to the East coast, then sell the oil at East coast ceilings. Several schemes for breaking this economic deadlock were explored and discarded. Finally PAD called on the oil industry to enter a voluntary agreement to make up the prospective shortage. Twelve companies agreed to cooperate in supplying the oil and representatives were appointed to an East coast supply committee for that purpose. At PAD direction they supplied 1,700,000 barrels of heating oil and kerosene to avert shortages in the Boston, New Haven, and New York areas.
4. Loss of some 35 percent of the Nation’s capacity to turn out petroleum products as a result of work stoppages in refineries throughout the country presented a new problem in May. PAD promptly
478 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
issued two orders dealing with products shortages. PAD Order No. 5 put limits on the inventories of all products except aviation gasoline that resellers and certain large-volume consumers could maintain and prohibited export of these products without PAD approval. PAD Order No. 6 banned sport and pleasure flying, restricted all other flying to use of 65 percent of the gasoline used in March, and prohibited export of aviation gasoline without PAD approval. These two orders were promptly canceled upon the end of the stoppages.
FUTURE OPERATIONS
As both military and civilian demands for petroleum products increased during the year, it became obvious that the Nation needed for its safety greater reserve capacity for producing, refining, and transporting crude oil. At the beginning of World War II the United States had a reserve productive capacity equal to 34 percent of its daily consumption of petroleum. That reserve proved invaluable in face of the quickly expanding demands that were imposed. In 1952t the reserve capacity of the Nation was only about 10 percent of consumption, a dangerously low level.
Early in calendar 1952 the Petroleum Administration proposed additional expansion for the petroleum industry over an 18-month period beginning in July 1952. In April the Defense Production Administration approved this program. It calls for the drilling of 80,000 wells in the United States over the 18 months—25,000 during the last half of calendar 1952 and 55,000 during 1953. It calls for expansion of basic refining capacity at the rate of 500,000 barrels per day per year over the period of the program. It calls for expansion of transportation and storage facilities, natural-gasoline production facilities, and other parts of the industry in keeping with these primary goals.
From June 13, 1951, through June 28, 1952, PAD received more than 4,000 applications for permission to complete or construct oil or gas projects valued at $4,343,950,604. From September 23,1950, to the • end of June 1952, it had received applications for accelerated tax amortization covering 1,338 projects in the oil and gas industries. The agency recommended approval of accelerated amortization on 52 percent of the $2,689,486,000 cost of 948 of these projects. Recommended facilities would increase the basic refining capacity of the Nation by 1,390,000 barrels a day, the natural-gasoline processing capacity by 216,000 barrels a day, the lubricating-oil production capacity by 15,000 barrels a day, the lube-oil additive production capacity by 10,900,000 pounds a month. Recommended storage projects would provide space for 39,598,000 barrels of crude oil and prod-
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 479
nets, 2,323,000 barrels of natural gasoline, 300 million cubic feet of natural gas. Recommended pipeline projects would provide capacity for transportation of 3,089,000 barrels a day of crude oil and products, ■644,358 million cubic feet a day of natural gas.
PAD to the end of the fiscal year had received 49 applications for Government financial aid under section 302 of the Defense Production Act of 1950 as amended. The agency recommended nine of these to DPA for issuance of a letter of essentiality, recommended denial of 31 others. Six of the applications were withdrawn, and three others were still under PAD review at the year’s end. Eight of the nine recommended projects involved storage of petroleum products essential to the Armed Services Petroleum Purchasing Agency. The other was a project for rehabilitation of an alkylation plant needed in production of aviation gasoline.
During the year PAD made constant use of the services of the National Petroleum Council (the council made 14 technical studies during the year) and the Gas Industry Advisory Council. Until January 7, 1952, it also made use of the Military Petroleum Advisory Board, which had been established at the request of the Defense Department. On that date, however, by amendment 1 to order No. 2562, the functions of the MP AB were transferred to PAD itself. This order preserved the board as a stand-by ready to be brought into action in the future. On February 15, 1952, the Deputy Administrator of the agency appointed a Military Fuels General Advisory Committee and a Military Fuels Technical Advisory Committee to help -carry out the functions assigned to it.
DEFENSE SOLID FUELS ADMINISTRATION
Charles W. Connor, Administrator
During the fiscal year ending June 30, 1952, the Defense Solid Fuels Administration carried on a number of vital programs to aid the solid-fuels industries to achieve the output of coal, coke, and coal chemicals required to meet the needs of the defense mobilization program. The output of metallurgical coal and coke was increased to meet the growing demand created by the steel expansion program, and the augmented coal requirements of rapidly expanding industries, such as the electrical utility industry, as well as record export demands, were met on schedule. Progress was made toward meeting the expansion goals for coke and metallurgical coal capacity, although on July 1,1952, a substantial portion of the new construction required to meet the coke expansion goal remained to be completed.
COAL-MINE MAINTENANCE AND CONSTRUCTION
During the fiscal year, the Defense Solid Fuels Administration authorized and distributed controlled materials for 186 coal-mine construction projects costing about $169,000,000. The division of the projects among the various States follows: Alabama, 11 projects, $19,681,500; Colorado, 3 projects, $5,629,756; Illinois, 15 projects, $22,864,696; Indiana, 9 projects; $3,217,330; Kentucky, 19 projects, $6,810,576; Missouri, 1 project, $290,000; Ohio, 6 projects; $5,679,500; Pennsylvania, 60 projects, $77,564,822; Tennessee, 2 projects, $128,-750; Utah, 7 projects, $3,032,155; Virginia, 3 projects, $278,657; West Virginia, 49 projects, $22,859,014; Territory of Alaska, 1 project, $503,044.
The needs of coal producers for materials for maintenance, repair, and operating supplies as well as new construction were met satisfactorily. Under a self-rating system of priority assistance developed by the DSFA and put into effect on October 24, 1951, producers were
481
482 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
enabled to obtain the operating supplies they needed under a standard quota system, subject to special adjustments in hardship cases. DSFA also provided priority assistance to producers for major capital additions. Ratings initiated for this purpose totaled $25,582,590.
COKE-OVEN CONSTRUCTION PROGRAM
On December 18, 1951, the expansion goal for oven coke was set at 84,000,000 net tons by January 1,1954. This called for an increase of 10 million net tons over the 1951 capacity. During the 1952 fiscal year, ovens were put in operation with an annual coking capacity of 6,423,000 tons. The capacity lost through the dismantling of over-age ovens, however, totaled 2,955,000 tons, leaving a net gain in capacity of 3,468,000 tons.
The demand for metallurgical coke is expected to increase rapidly in the 1953 fiscal year and coke is expected to be in tight supply after the maximum impact of the blast-furnace programs occurs in the late spring of 1953. Curtailment of less essential uses and distribution of available high-grade coke to defense programs by DSFA directive action may become necessary until production can be brought into balance with requirements.
In an effort to prevent a serious coke shortage, DSFA is working with industry in carrying out one of the largest coke oven construction programs on record. DSFA has provided construction permits, ratings, and controlled materials for 117 coke-oven construction projects costing about $480,000,000. Special priority assistance for component parts costing $878,793 was initiated in 48 instances.
Efforts are also being made to increase wherever possible the coal chemical output of the coke industry. A careful survey of the benzol production facilities of all operating coke plants during the year indicated that benzol production at these facilities will reach about 186 million gallons.
A close check is also being kept by DSFA on petroleum coke supply and demand factors. A survey during the year of all producers and users of both green and calcined petroleum coke indicated that there was ample production of both types to take care of all requirements, including the programed expansion of the aluminum industry.
INDUSTRY FINANCE
Through June 30, 1952, certificates of necessity for rapid tax amortization of essential coal and coke facilities were certified for 88 projects costing about $345,000,000. The 38 coal projects certified, costing about $60,000,000, will provide, when completed, a metallurgi
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 483
cal coal capacity of about 11,700,000 tons. The 50 approved coke projects, costing about $285,000,000, will have an annual capacity of about 6,700,000 tons. Applications totaling $121,000,000 were denied. At the end of the fiscal year, 40 applications for rapid tax amortization, totaling $283,000,000, were being processed.
Of 22 applications received for loans totaling $24,600,000, 3 were withdrawn, 10 were denied, and 2 were approved. The approved loans provide $2,200,000 for beehive ovens in Pennsylvania and $426,000 for a 120,000-ton capacity underground coal-mine operation in the Matanuska field of Alaska. Several other loans for coal expansion projects in the Territory of Alaska, where military coal requirements are rapidly increasing, were being reviewed at the end of the fiscal year.
DEFENSE ELECTRIC POWER
ADMINISTRATION
James F. Fairman, Administrator
DEPA entered the fiscal year 1952 with an electric power expansion program of 27,600,000 kilowatts for the calendar years 1951,1952, and 1953, which is barely enough energy to provide for the estimated additional capacity required by the defense program alone, and with materials allotments for the third quarter of 1951 for field construction and manufacture of equipment reduced to a crippling degree below the quantities required to achieve that goal. It was evident that DEPA would have to obtain clearer recognition by defense officials generally of the basic and vital role of adequate electric generating capacity in the “guns and butter” economy.
Both public and private power groups cooperated wholeheartedly with DEPA in efforts to remove the general misunderstanding that, the way to meet a power shortage is to curtail so-called nonessential or civilian uses. The catalyst that produced the first tangible results of our combined efforts was the curtailment order DEPA found it necessary to issue for the Pacific Northwest in September 1951. This curtailment clearly demonstrated that a substantial saving of electric energy can only be obtained by interrupting large loads, which include such defense production as aluminum. Other minor curtailments were experienced in Texas, Alaska, and in the Southeast.
In order to obtain impartial advice on the power expansion program, which had increased to 30,000,000 kilowatts in the calendar years 1952, 1953, and 1954, the Defense Production Administrator on October 3,1951, appointed an Electric Power Advisory Committee to study the power situation and recommend an electric power construction program that would supply the defense needs and the needs of the civilian economy. At approximately the same time the Joint Committee of the Congress on Defense Production, commonly called the
485
486 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Maybank committee, ordered an investigation of the electric power program.
DEPA, in providing information for the two committees, held meetings throughout the country with power suppliers where load estimates were compiled and analyzed. A comprehensive report of the information obtained and conclusions as to the implications of the data, was prepared and submitted for the use of the two committees.
Based upon this report and other information obtained independently by the committees from various other sources, the Electric Power Advisory Committee reported, “The 30,000,000 kilowatts of new capacity now planned by the electric systems of the country to meet the demands (including necessary minimum reserves) is not in the aggregate excessive. If anything, the total capacity is too small.” The Maybank committee report pointed out the resulting effects upon the power expansion program of inadequate allotments of materials and the necessity for early planning because of the long lead time required in power generating installations. DEPA concurred in the conclusions of the two committees but questioned, in view of previous and prevailing rates of materials allotments and long lead times required, whether it would be possible to achieve the established goal for additional capacity by 1954.
On March 22, 1952, DPA announced approval of an expansion goal of 32,000,000 kilowatts for the years 1952, 1953, and 1954. On April 7, DP A announced the formation of the Electric Power Coordinating Committee with the Administrator of DEPA as chairman, and with the Deputy Administrator of the National Production Authority and the director of the construction division of DPA as the other members, for the purpose of giving top-level assistance in reaching the power expansion goal.
As of April, it became clear that the allocation of insufficient materials and the inability of utilities and power equipment manufacturers to place firm delivery orders for materials during 1951 would cause a loss of nearly 2,000,000 kilowatts of the 9,000,000 kilowatts planned for 1952. Just prior to the steel strike in June, with the cooperation of DPA and NPA, it appeared that adequate allocations and deliveries would be made so that no further slippage was expected. It is still too early fully to evaluate the impact of the steel strike but it appears that the combined effect of too little materials in 1951 and the steel strike in 1952 will result in the installation of not more than 29,000,000 kilowatts by 1954 instead of the planned 32,000,000 kilowatts providing there are no further work stoppages or similar contingencies during that period.
Resurveys of the power supply situation have been conducted by DEPA indicating the need of further expansion of the program.
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 487
DEPA cooperated with the FPC in the collection of power supply data and its analysis to determine where exemptions would encourage desirable interconnections to handle rapidly growing defense loads. Relatively few areas of bottled-up power supply have been found but transmission reinforcements have been made which further integrate electric utilities into four great power pools: (1) the Northwest, (2) the Southwest, (3) the Midwest and Southeast, and (4) the Northeast. To date, potential power shortages have only evidenced themselves in the northwest, south central, and southeastern regions due to unusual rates of load growth in these areas.
On May 28, 1952, E. Jason Dryer, General Counsel of DEPA, was appointed Deputy Administrator to succeed John D. Davis who became Deputy Administrator of the Bonneville Power Administration.
226396—53——32
DEFENSE FISHERIES ADMINISTRATION
Albert M. Day, Administrator
In discharging its responsibility for maintaining adequate fish production, the Defense Fisheries Administration during the fiscal year 1952 adhered to its policy of anticipating the fishery industry’s emergency material, manpower, and other production needs and, insofar as possible, correcting causes of potential problems before actual problems arise. In accomplishing this, DFA’s small staff furnishes representation on many committees and is active in liaison with, and in an advisory capacity to, other agencies and the industry. Of particular importance is DFA’s membership on 14 commodity and equipment requirements committees of the National Production Authority, at meetings of which the fishery industry’s viewpoints are presented and its essential requirements of materials and equipment are justified. DFA also works closely with the Department of Agriculture, Office of Price Stabilization, Wage Stabilization Board, Salary Stabilization Board, Defense Transport Administration, Selective Service System, Department of Labor, Department of Justice, Reconstruction Finance Corporation, Small Defense Plants Administration, and others, in the interest not only of advising on specialized fishery problems but assuring the fishery industry full recognition in any applicable actions these agencies may take.
Much of DFA’s workload, such as preparation for attendance at committee meetings and the assembly and analysis of data necessary for taking actions, giving advice, and making recommendations on defense fisheries matters, cannot be statistically summarized. However, a number of actions taken by DFA during the fiscal year 1952 are itemized as follows: 82 cases of spot assistance for obtaining materials, supplies, or equipment; 8 actions on formal requests for certificates of necessity; 4 actions on formal requests for Government loans; 22 actions on requests for information on criteria regarding ^Government loans; 63 actions on requests for aid in deferment of
489
490 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
draft registrants, etc.; 43 actions on requests from OPS for data and analyses to be used in connection with price ceilings; 39 cases of assistance in wage and labor disputes; and 24 studies of proposed military restricted areas in localities of interest to the fisheries.
Several reorganizations of DFA occurred during the fiscal year 1952, each of which resulted in economies of operation. The program for 1953 will be a continuation of that for 1952, with the pressure of controls under which the industry must operate being the guide for DFA actions which may be necessary.
DEFENSE MINERALS EXPLORATION ADMINISTRATION
C. 0. Mittendorf, Administrator
The Defense Minerals Exploration Administration is responsible for carrying out a program to discover and develop in the United States and Territories additional deposits of all the strategic metals and minerals so critical to our national security.
The establishment of this minerals exploration assistance program is based on the principle that private mining interests, whether large or small, be encouraged to share in the responsibility of finding and developing these vitally needed mineral ore reserves. Thus, the Government, through the DMEA, offers to the mining industry, and particularly the small operators, financial aid on a share-the-cost basis of 50 percent, 75 percent, or 90 percent in the cost of an exploration project, the actual amount being determined by the strategic need of the mineral sought, and the chance of its discovery and development in commercial quantities.
Early in the fiscal year the exploration program was part of the operations of the Defense Minerals Administration. The DMA was established in December 1950 by the Secretary of the Interior, in accordance with the Defense Production Act of 1950, as amended, for the maintenance and increase of production (and supplies) of strategic metal and minerals. The DMA also was charged with administering an exploration program.
This organizational arrangement continued until August 28, 1951, when the Defense Materials Procurement Agency was established by Presidential order. Subsequently, effective October 28, 1951, the Bureau of the Budget issued orders of determinations and dispositions which formally transferred all DMA functions and personnel, with the exception of those concerned with exploration, from DMA to DMPA. This followed a pattern set on September 14, 1951, when
491
492 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
DMPA redelegated to the Secretary of the Interior responsibility for continuing and expanding the minerals exploration program under DMA.
On November 20, 1951, the Secretary of the Interior changed the name of Defense Minerals Administration to Defense Mineials Exploration Administration and designated C. O. Mittendorf, who had been acting administrator of DMA, to be acting administrator of the newly named agency, reporting direct to the Assistant Secretary for Mineral Resources.
This series of changes resulted in major organizational problems. In DMEA there are provisions for only four commodity divisions to process exploration applications, where there had been seven under DMA. Technical personnel had to be recruited; files and records reviewed and transferred (to DMPA) ; procedures revised and procedural instructions set up, and other operational functions established.
Once its major problems of organization had been solved, DMEA took definite steps to expedite the program. The form for application for aid in an exploration project (MF-103) was revised for the purpose of simplification, to eliminate all but the most essential requirements for information, and to coordinate the information required with the provisions of the contract form. At the same time the contract form (MF—200) was revised to make its provisions more explicit, to resolve some ambiguities, and generally to render it more adaptable to the needs both of the Government and of the operators. A new short form contract (MF—200A) was added for use in connection with projects that can be administered more effectively on a basis of agreed unit costs rather than actual costs, thus eliminating the necessity for cost accounting.
As further protection to the Government, and in conformance with General Accounting Office procedures, an audit division was established. DMEA located auditors in Denver, San Francisco, and Spokane to discharge the agency’s responsibility of making final audits and determining the propriety of payments made under the terms of the exploration contracts.
At the beginning of the fiscal year, while operating as DMA, a total of 720 exploration project applications had been received from mine operators, and 24 of them developed into executed contracts having an aggregate Government participation of $1,497,918. In the subsequent 12 months, 691 more applications were received, bringing the total to 1,411, and 291 more contracts were executed for a total of 315, involving Government contributions amounting to $9,403,629.
In the period from December 1—soon after the agency was officially
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 493
designated DMEA—until the end of the fiscal year, 391 applications were received and 145 contracts executed.
As of June 30, 1952, DMEA has issued 12 certifications for discoveries or developments of deposits of tungsten, monazite, mica, beryl, manganese, sulfur, and lead-zinc-copper. The first certification of discovery or development was made in March. This was for mica in North Carolina. Five of the 12 certifications involved mica; 3 of these for strategic mica in North Carolina and 2 for mica and beryl in South Dakota. Of the remaining seven, two were for tungsten in California and Montana, two for manganese in Arkansas, and one each for monazite in Idaho, sulphur in Wyoming and lead-zinc-copper in *. Colorado.
The total contract amounts of the projects certified was $216,126, and * although the Government’s participation was set at $143,800, several of the operators completed their work at less than the estimated cost and the Government actually spent only $107,126. This amount, however, is repayable on a percentage-royalty basis from the net receipts from any ore shipped by the operators.
Twenty-seven contracts, under which actual exploration work was done, were terminated without certification of discovery or development. The estimated costs under these 27 terminated contracts originally totaled $329,270 with Government participation set at $232,669; but actual cost to the Government was only $101,008. These negative results have value in that the areas involved are removed from future consideration and expense of exploration.
Consideration should be given to the work of handling the hundreds of applications which were denied, and those withdrawn. Every application required analysis and study by mining experts and, in a majority of cases, on-site investigations by members of the DMEA field teams. A total of 544 applications were considered and denied, most of them because of the improbability of discovery of commercial deposits. Two hundred and three applications were withdrawn by applicants.
A marked decrease in the number of new applications occurred dur-? ing April, May, and June of 1952. This trend was contrary to estimates by field teams in March and was attributed to the fact that 44 percent of all contracts were for lead-zinc and lead-zinc-copper projects, and a sharp drop in the price of lead-zinc caused an abrupt braking of exploration for these metals.
However, the search for additional domestic deposits of strategic and critical minerals and metals continues. Under the DMEA program, exploration projects are being carried on in 27 States. Twenty-four minerals are being actively sought, including rutile (used in
494 ft ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
making welding rods) and brookite, a possible substitute for rutile, which were added to the critical list in January 1952.
With its relatively small force, aided by the cooperation of the Bureau of Mines and the Geological Survey, the DMEA has a leading part in solving the problem of determining the future mineral resources of the United States.
The defense minerals exploration activity is little more than a year old and its accomplishments cannot be fairly evaluated at this time. Experience has shown that the average time for completion of an. exploration project is about a year. Thus, if we are to have any substantial results from DMEA’s program, it must be regarded as one of comparatively long range.
The response by mining operators is praiseworthy and the activities of other Government agencies, such as establishment of purchase depots so far for manganese, chromite, mica, and tungsten; the development of new techniques for use in finding and developing ore deposits, and the progress made in devising methods for utilizing marginal and submarginal ores at low costs, should help accelerate future exploration.
---------------------------■
INDEX
Page
Bonneville Power Administration________________________________________ 143
Financial results of operations____________________________________ 143
Repayment of Federal investment_______________________________ 146
Summary of revenues___________________________________________ 144
Recommendations____________________________________________________ 170
Summary of operations______________________________________________ 148
Added generating capacity_____________________________________ 158
Composite average rate 2.41 mills_____________________________ 151
Customers served___________________;_________________________ 156
Energy production_____________________________________________ 148
Energy receipts and deliveries________________________________ 150
Low rates stimulate power use_________________________________ 158
New system peak_______________________________________________ 148
New construction in progress__________________________________ 169
Non-Federal additions_________________________________________ 159
Northwest power pool__________________________________________ 163
Rate schedules summarized_____________________________________ 156
Sales exceed 17 billion kilowatt-hours________________________ 151
Special projects and engineering advances_____________________ 170
Transmission system additions_________________________________ 163
Bureau of Indian Affairs_______________________________________________ 389
Administration of Indian land______________________________________ 404
Interest in Indian oil grows__________________________________ 405
Land transactions_____________________________________________ 405
Credit_____________________________________________________________ 414
Education for Indians___________._________________________________ 399
Forest and range land______________________________________________ 409
Indian arts and crafts_____________________________________________ 418
Indian employment__________________________________________________ 403
Indian extension work____;________________________________________ 416
Home extension work___________________________________________ 417
Contractual agreements with States____________________________ 417
Indian health______________________________________________________ 395
Medical and hospital care_____________________________________ 396
Nursing service_______________________________________________ 397
Oral health activities________________________________________ 398
Sanitation activities_________________________________________ 397
Tuberculosis control__________________________________________ 398
Indian roads_______________________________________________________ 413
Indian welfare_____________________________________________________ 399
Irrigation____ ____________________________________________________ 410
Legislation and litigation_________________________________________ 419
Attorney contracts____________________________________________ 420
Heirship determination________________________________________ 420
“Identifiable group” under the Indian Claims Commission Act__ 420
Significant court decisions___________________________________ 420
Management_________________________________________________________ 421
Program development________________________________________________ 392
Soil conservation__________________________________________________ 407
495
496 ☆ annual report of the secretary of the interior
Pag«
Bureau of Land Management-------------------------------------------
Administrative improvements-------------------------------------
Administrative services-------------------------------------
Employees number 1,310--------------------------------------
Fiscal procedures-------------------------------------------
Incentive awards--------------------------------------------
Management improvement--------------------------------------
Management planning-----------------------------------------
Management training program---------------------------------
Personnel---------------------------------------------------
Records management------------------------------------------
Squaw Butte training conference-----------------------------
Cadastral surveying activities----------------------------------
Surveys in Alaska-------------------------------------------
Surveys in the Continental United States--------------------
Emphasis on minerals--------------------------------------------
Functions of the Division of Minerals-----------------------
Oil and gas leases top list---------------------------------
Revenues increase-------------------------------------------
Steps taken to curb speculation-----------------------------
Forest resources on Bureau of Land Management lands-------------
Access roads------------------------------------------------
Forest management program-----------------------------------
Major problems of forestry program--------------------------
Protection of forest resources------------------------------
Sustained-yield forest management---------------------------
Timber salvage----------------------------------------------
Increasing demands for grazing resources------------------------
Cooperative relationships-----------------------------------
Grazing administration--------------------------------------
Halogeton control-------------------------------------------
Range conditions--------------------------------------------
Range improvement-------------------------------------------
Soil and moisture conservation------------------------------
Wildlife management----------------------------------------
International cooperation--------------------------------------
Introduction---------------------------------------------------
The programs-----------------------------------------------
The resources-----------------------------------------r----
Legislation----------------------------------------------------
Litigation_________________________________________________
Orders_____________________________________________________
Regulations------------------------------------------------
Public lands in great demand-----------------------------------
Application increase---------------------------------------
Area studies-----------------------------------------------
Basin studies______________________________________________
Division of Lands formed-----------------------------------
Need for intensified program planning----------------------
Regional highlights, ------------------------------------------
Region I___________________________________________________
Region II--------------------------------------------------
Region III-------------------------------------------------
Region IV__________________________________________________
269
295
297
300
295
297
298
297
299
299
296
300
287
288
287
288
289
289
290
290
271
274
272
275
276
274
272
282'
284
283
286
283
286
285
284
300
269
270
269
292
294
295
292
278
279
280
280
279
281
301
301
303
304
306-
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 497
Bureau of Land Management—Continued
Regional highlights—Continued Page
Region V________________________________________________________ 306
Region VI_______________________________________________________ 308
Region VII______________________________________________________ 308
Bureau of Mines_________________________________________________________ 187
Administration summary______________________________________________ 214
Explosives and explosions research and testing______________________ 204
Finance_____________________________________________________________ 216
Foreign activities__________________________________________________ 210
Fuels and explosives research_______________________________________ 198
Coal and coal products__________________________________________ 198
Helium______________________________________________________________ 204
Mineral development_________________________________________________ 192
Mineral economics___________________________________________________ 212
Petroleum and natural gas___________________________________________ 202
Property____________________________________________________________ 216
Public reports______________________________________________________ 213
River basin activities______________________________________________ 197
Safety and health activities________________________________________ 205
Synthetic liquid fuels______________________________________________ 200
Bureau of Reclamation_____________________________________________________ 1
Comptroller___________*___________________________________________ 106
Design and construction_______________________________________________ 1
Administrative developments_______________________________________ 9
Construction costs_______________________________________________ 15
Continuing program_______________________________________________ 5
Contract awards___________________________________________________ 2
Design activities and developments________________________________ 7
Drainage activities_______:___________________________________ 11
International cooperation________________________________________ 15
Principal features completed______________________________________ 3
Progress of construction__________________________________________ 3
Publications__________________________________________________- 16
Research activities. ____________________________________________ 11
Specification requirements________________________________________ 8
Work performed for other agencies-------------------------------- 13
Foreign activities___________________________________________________ 22
Legislation_________________________________________________________ 106
Litigation______________________________________________________ 108
Management planning_________________________________________________ 112
Operation and maintenance____________________________________________ 24
Cooperation with agricultural agencies___________________________ 34
Cooperation with design and construction_________________________ 34
Credit for settlers______________________________________________ 27
Crop production__________________________________________________ 25
Development farms________________________________________________ 28
Drainage_________________________________________________________ 30
Extension of irrigation service__________________________________ 25
Federal tax revenues from Reclamation areas______________________ 34
Flood control operations----------------------------------------- 33
Land openings____________________________________________________ 26
Lower cost canal-lining program__________________________________ 30
Recreational use of reservoirs___________________________________ 32
498 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Bureau of Reclamation—Continued
Operation and maintenance—Continued
Rehabilitation and Betterment_________________________
Repayment and water service contracts_______________________
Soil and moisture conservation operations_____________________
Weed control____________________________
Personnel____________________________
Power utilization_________________________________
Additional capacity under construction______________________
Power contacts_____________________________
Present installed capacity____________________
Transmission lines____________________________
Programs and finance______________________________
Appropriations_____________________________
New accounting systems________________________
Manualization of procedures_______________________
Program procedures________________________________
Reports_________________________________
Project planning__________________________________
Artificial precipitation and salt-water conversion, _______
Comprehensive river basin surveys Definite-plan reports_________________________
Hydrology______________________________
International stream investigations
New projects authorized___________________________
Other project planning reports____________________
River compacts________________________________
Supply---------------------------------------------------~ ~
Aircraft operations___________________________
Procurement_________________________
Property management________________________
Service management______________________
Regional reports____________________________
Alaska district_____________________
Region I____________________________
Region II_______________________________
Region III____________________________________________
Region IV________________________
Region V_________________________
Region VI_______________________________
Region VII______________________________
Defense Electric Power Administration
Defense Fisheries Administration
Defense Minerals Exploration Administration
Defense Solid Fuels Administration
Coal-mine maintenance and construction_________________
Coke-oven construction program_____________________
Industry finance_____________________________
Division of Geography
Division of International Activities
Looking to the future___________________________
Summary of activities—1952_________________________
International trade and materials production___________
Point 4 and other technical assistance programs______________
United Nations and international conferences_________________
Page
29
28
29
31
113
58 '
59
65
59
65
73
98
73
74 . >
75
99
66
72
68
71
70
71
68
68
69
115
115
116
116
107
107
137
117
121
124
127
130
132
135
485 v
489
491
481
481
482
482
455
457
462
458
461
458
460
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 499
Page
Division of Land Utilization_______________________________________________ 263
Long range programing__________________________________________________ 266
Operational programs___________________________________________________ 264
Forest pest control_______________________________________________ 265
Noxious weed control______________________________________________ 265
Soil and moisture conservation___________________________________ 264
White pine blister rust control___________________________________ 265
Staff services_________________________________________________________ 263
Division of Minerals and Fuels_____________________________________________ 183
Basic data_____________________________________________________________ 184
Defense minerals_______________________________________________________ 184
Economic Studies_______________________________________________________ 185
Minerals taxation______________________________________________________ 185
Stockpiling____________________________________________________________ 184
The President’s materials policy commission____________________________ 183
Division of Water and Power________________________________________________ 139
Fish and Wildlife Service________________________________________________ 311
Administration of Alaska fisheries_____________________________________ 314
Management of the commercial fisheries____________________________ 314
Pribilof Islands fur-seal industry________________________________ 315
Administration of Federal statutes for protection of fish and wildlife_ 333
Cooperative control of predators and rodents___________________________ 334
Federal aid to state projects for the restoration of fish and wildlife_ 337
Fisheries restoration________________________________:____________ 337
Woldlife restoration______________________________________________ 340
International cooperation in conservation______________________________ 345
International conservation agreements_____________________________« 345
International technical cooperation_______________________________ 347
Maintaining the inland fisheries_______________________________________ 321
Public use of national wildlife refuges________________________________ 329
Research in fishery biology____________________________________________ 315
Coastal fisheries_________________________________________________ 315
Inland fisheries__________________________________________________ 317
Marine fisheries__________________________________________________ 318
Shellfisheries____________________________________________________ 320
Research in wildlife management________________________________________ 325
River Basin development and wildlife needs_____________________________ 342
Utilizing the fishery resources________________________________________ 311
Geological Survey__________________________________________________________ 219
Conservation Division__________________________________________________ 247
Mineral classification____________________________________________. 247
Water and power classification____________________________________ 248
Mining Branch_____________________________________________________ 249
Oil and Gas Leasing Branch________________________________________ 251
Funds__________________________________________________________________ 256
Geologic Division______________________________________________________ 219
Coal______________________________________________________________ 221
Engineering geology_____________________________r_________________ 222
Foreign geology investigations____________________________________ 226
General geology___________________________________________________ 223
Geochemistry and petrology________________________________________ 224
Geologic investigations in Alaska_________________________________ 225
Geologic maps_____________________________________________________ 227
Geophysics_______________________________________________________ 223
500 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Geological Survey—Continued
Geologic Division—Continued Pas®
Library_________________________________________________________ 228
Military geology------------------------------------------------ 226
Mineral deposits________________________________________________ 220
Oil shale_______________________________________________________ 221
Paleontology and stratigraphy----------------------------------- 225
Petroleum and natural gas--------------------------------------- 221
Topographic Division________________________________________________ 228
Map Information Office------------------------------------------ 236
Research and development---------------------------------------- 234
Water Resources Division-------------------------------------------- 237
Interstate and international allocations of water resources--- 242
Irrigation______________________________________________________ 241
Flood-control and hydroelectric-power dams, floods forecasting, and navigation---------------------'---------------------------- 240
Industrial water supply----------------------------------------- 239
Missouri River Basin____________________________________________ 243
Municipal water supply------------------------------------------ 238
Mutual security aid_____________________________________________ 243
Other work______________________________________________________ 243
Pollution_______________________________________________________ 241
Reports on investigations_______________________________________ 246
Research and technical developments----------------------------- 244
Soil and moisture conservation---------------------------------- 242
Work on publications________________________________________________ 253
Distribution____________________________________________________ 255
Illustrations--------------------------------------------------- 254
Map reproduction______________________________________________ 254
Texts___________________________________________________________ 253
Letter of transmittal____________________________________________________ ni
National Park Service___________________________________________________ 351
Concessions situation shows improvement--------------------------- 376
Cooperative activities______________________________________________ 373
History and archeology______________________________________________ 359
Improvements________________________________________________________ 356
In the fiscal field________________________________________________ 375
In the natural history field---------------------------------------- 364
Keeping the owners informed----------------------------------------- 383
Legislation_________________________________________________________ 382
Litigation___________________________________________—------------ 382
Notes of interest__________________________________________________ 386
Personnel management________________________________________________ 380
Safeguarding special resources of Federal lands--------------------- 387
Storm, snow, and flood---------------------------------------------- 385
The forests of the National Park System----------------------------- 377
The land program____________________________________________________ 369
The parks of the Nation’s Capital----------------------------------- 384
Those who visit the parks___________________________________________ 372
Threats to Kings Canyon and Glacier--------------------------------- 355
To aid in understanding--------------------------------------------- 367
Work of the museum laboratory--------------------------------------- 366
ANNUAL REPORT OF BUREAUS AND OFFICES ☆ 501
Page
Office of the Administrative Assistant Secretary_____________________ 463
Division of Administrative Services______________________________ 471
Division of Budget and Finance___________________________________ 463
Division of Management Research__________________________________ 467
Division of Personnel Management__________________________________ 469
Division of Property Management___________________________________ 465
Office of the Solicitor_______________________________________________ 425
Office of Territories_________________________________________________ 433
Alaska________________________________________.__________________ 434
American Samoa-___________________________________________________ 448
Guam______________________________________________________________ 445
Civil rights_________________________________________________ 446
Further developmental programs needed________________________ 448
Immigration and tax problems_________________________________ 447
Other technical assistance to the Territory__________________ 447
Public domain transferred to island control__________________ 448
Toward a housing program_____________________________________ 446
Hawaii____________________________________________________________ 444
Economic recovery____________________________________________ 445
Legislative gains____________________________________________ 444
Statehood again deferred_____________________________________ 444
Introduction______________________________________________________ 433
Air transport developments___________________________________ 437
Alaska public works program__________________________________ 435
Alaska Science Conference____________________________________ 437
Coal production______________________________________________ 435
Improvement in highway transport_____________________________ 436
Legislation__________________________________________________ 434
Maritime problems___________________________________________ 435
Progress in rail transport___________________________________ 436
Other Pacific islands_____________________________________________ 453
Pacific Territories______________________________________________ 443
The Commonwealth of Puerto Rico___________________________________ 438
Achievement of internal self-government______________________ 438
Changes in sugar production__________________________________ 440
Industrial development_______________________________________ 439
Puerto Rico’s contribution to the world responsibilities of the
United States______________________________________________ 438
Puerto Rico Reconstruction Administration____________________ 440
The Virgin Islands________________________________________________ 441
Development of tourism_______________________________________ 441
Public works program_________________________________________ 443
The Virgin Islands Corporation_______________________________ 442
Trust Territory of the Pacific Islands____________________________ 450
Oil and Gas Division__________________________________________________ 259
Petroleum Administration for Defense__________________________________ 475
Domestic problems_________________________________________________ 476
Foreign problems__________________________________________________ 476
Future operations_________________________________________________ 478
Southeastern Power Administration------------------------------------- 179
Budget and staff__________________________________________________ 180
Power resources--------------------------------------------------- 179
502 ☆ ANNUAL REPORT OF THE SECRETARY OF THE INTERIOR
Southeastern Power Administration—Continued Page
Power sales and revenues___________________________________________ 180
Program accomplishments____________________________________________ 180
Continuing studies and collection of data--------------------- 180
Construction____________________________________________________ 181
Contract negotiations___________________________________________ 181
Southwestern Power Administration-_______________________________________ 173
Arkansas-White-Red Basins Inter-Agency Committee_____________________ 177
Contract negotiations________________________________________________ 175
Energy deliveries_____-__________________________________________ 173
Energy production____________________________________________________ 173
Litigation___________________________________________________________ 176
New accounting system______________________________________j----- 176
New power contracts_______________________________________________ 174
Preferred customers___________________________________________ 174
Reynolds Metals Co____________________________________________ 174
Personnel______________________________________________________ 175
SPA system_________________________________________________________ 177
Supply and procurement_____________________________________________ 175
United States Board on Geographic Names________________________________ 455
o