NATIONAL GRASSLANDS MANAGEMENT
A PRIMER
Appendix C
Wooten, H. H. “The Land Utilization Program 1934 to 1964 –
Origin, Development, and Present Status,” USDA Agriculture
Economic Report No. 85 (1965).
The Land
Utilization
Program
ORIGIN, DEVELOPMENT,
AND PRESENT STATUS
U.S.
DEPARTMENT OF AGRICULTURE
ECONOMIC RESEARCH SERVICE
FOREWORD
The p r o p e r u s e of o u r l a n d r e s o u r c e s
i s of g r e a t i m p o r t a n c e to t h e Nation and
should h a v e a high p r i o r i t y i n G o v e r n m e n t
p o l i c y - - l o c a l , S t a t e , a n d national. It i s of
g r e a t s i g n i f i c a n c e t o t h e individual citizen,
no m a t t e r w h e r e h e l i v e s , o r what h i s
occupation m a y be. Land, a n d the r e s o u r c e s of t h e l a n d both d i r e c t l y and ind i r e c t l y a f f e c t o u r l i v e s a n d living e v e r y
day. The m i s u s e of land r e s ~ u r c ~often
s
e x p r e s s e s i t s e l f i n p o v e r t y , low p r o d u c tivity, u n e m p l o y m e n t , poor s c h o o l s , a n d a
g e n e r a l l y u n s a t i s f a c t o r y way of l i f e . A s
we gain a b e t t e r u n d e r s t a n d i n g of the p r o ductive p o s s i b i l i t i e s and l i m i t a t i o n s of v a r i ous land c l a s s e s , we find t h a t much land
could b e used m o r e a d v a n t a g e o u s l y than
a t present.
It was often s a i d 50 y e a r s ago that we
w e r e beginning to s e e and u n d e r s t a n d t h e
need f o r c o n s e r v a t i o n and land u s e planning
but t h a t not m u c h would b e done about i t
by G o v e r n m e n t o r individuals u n t i l a n a tional c o n s c i o u s n e s s and a s t a t e of public
opinion w e r e developed which would s u p p o r t a c t i o n by C o n g r e s s a n d State l e g i s l a t u r e s i n t h e f i e l d s of r e s e a r c h , public
education, a n d a c t i o n p r o j e c t s . The White
House C o n s e r v a t i o n C o n f e r e n c e i n 1908
c a l l e d by P r e s i d e n t T h e o d o r e R o o s e v e l t
was one of t h e f i r s t of a s e r i e s of e v e n t s
which s t a r t e d t h e m o v e m e n t which h a s
gone s t e a d i l y f o r w a r d e v e r s i n c e .
A n u m b e r of e v e n t s s i n c e World War I
have b e e n r e s p o n s i b l e f o r the p r o g r e s s m a d e
i n a l l a s p e c t s of the land u t i l i z a t i o n probl e m . In r e s p o n s e to t h e d e p r e s s e d s i t u a tion i n a g r i c u l t u r e d u r i n g t h e 1920's and
19 3 0 1 s , a n a t i o n a l c o n f e r e n c e on land utilization w a s held in 1931 which laid the
foundation f o r a l a n d u t i l i z a t i o n p r o g r a m .
Under t h e l e a d e r s h i p of t h e National R e s o u r c e s Planning B o a r d , a c t i o n p r o g r a m s
Lased o n a planned a t t a c k on a l l a s p e c t s
of l a n d u s e p r o b l e m s b e g a n to a p p e a r . Many
of u s who w e r e involved i n t h e e v e n t s of
t h e 1 9 3 0 ' s a n d 1 9 4 0 ' s h a v e f e l t the need
of a look a t t h e m o v e m e n t and t h e i m p o r t a n t e v e n t s i n i t f r o m the beginning up
to date.
It i s f o r t h i s r e a s o n that t h i s r e p o r t
o n the o r i g i n s and d e v e l o p m e n t of land
u t i l i z a t i o n p r o j e c t s i s of g r e a t i m p o r t a n c e
a t t h i s t i m e . This study i s a m i l e s t o n e
i n t h e m a r c h of p r o g r e s s i n land u t i l i z a tion. The findings a r e c l e a r l y s t a t e d and
evaluated. The r e p o r t covers a p r o g r a m
t h a t e n c o m p a s s e d s o m e 250 p r o j e c t s and
o v e r 11 m i l l i o n a c r e s of land, e a c h p r o j e c t s e r v i n g both a s a t e s t and a d e m o n s t r a t i o n . T h e p r o j e c t s w e r e well d i s t r i b u t e d
i n r e l a t i o n to g e o g r a p h y a n d t h e p r i n c i p a l
p r o b l e m a r e a s of the United S t a t e s . A
q u e s t i o n m a y b e a s k e d , "Well and good,
but 11 m i l l i o n a c r e s i s b u t a d r o p in the
b u c k e t a s f a r a s the t o t a l n a t i o n a l land p r o b l e m i s c o n c e r n e d ; what about the l a r g e
a m o u n t of work yet t o b e done?" In a n s w e r
to t h i s r e a s o n a b l e question, we c a n s a y
t h a t we hope e a c h p r o j e c t a c t s a s a l e a v e n
t o i n d u c e f u t u r e planning. We can have
hope a n d confidence that we h a v e p a s s e d
t h e p i o n e e r i n g p h a s e of the work and that
t h e r e will be a n expansion of land u t i l i z a tion planning and d e v e l o p m e n t i n the United
S t a t e s u n d e r pending r i v e r b a s i n and r e gional d e v e l o p m e n t p r o g r a m s .
- - - - - - M.
L . Wilson
PREFACE
The information i n this r e p o r t was obt a i n e d fro.% m a n y s o u r c e s . R e c o r d s of t h e
land u t i l i z a t i o n p r o g r a m i n t h e f i l e s of
both S t a t e a n d F e d e r a l a g e n c i e s w e r e cons u l t e d . In a d d i t i o n , a n u m b e r of i n d i v i d u a l s
who had a s p e c i a l i n t e r e s t i n t h e l a n d
u t i l i z a t i o n p r o j e c t s b e c a u s e of a c t i v e p a r t i c i p a t i o n i n t h e r e s e a r c h , planning, a c q u i s i t i o n , a n d m a n a g e m e n t p h a s e s of t h e
p r o g r a m provided valuable information
f r o m m e m o r y and f r o m p e r s o n a l p a p e r s .
T h e h i s t o r y of a n u m b e r of l a n d u t i l i z a tion p r o j e c t s w a s r e v i e w e d i n 1963 a n d 1964.
Twelve p r o j e c t s u n d e r F e d e r a l a d m i n i s t r a t i o n and 17 p r o j e c t s u n d e r S t a t e a d ministration w e r e visited, r e c o r d s and
r e p o r t s s t u d i e d , and p e r s o n s c o n s u l t e d
who w e r e f a m i l i a r with t h e u s e of t h e
land a n d i t s m a n a g e m e n t . T h e v i s i t s to
p r o j e c t s a n d t h e d i s c u s s i o n s with p r o f e s s i o n a l w o r k e r s and people of t h e p r o j e c t a r e a s g a v e a n i n s i g h t into s o m e of t h e
p r o b l e m s , p o l i c i e s , and a c c o m p l i s h m e n t s
not fully r e v e a l e d i n w r i t t e n r e c o r d s a n d
r e p o r t s . Reports and p ~ b l i c a t i o n s c o v e r ing s o m e p h a s e s of 35 a d d i t i o n a l p r o j e c t s
i n d i f f e r e n t p a r t s of t h e c o u n t r y w e r e
r e a d . S e v e r a l of t h e 60 o r m o r e p r o j e c t s
reviewed had been observed firsthand i n
t h e i r e a r l y s t a g e s by the w r i t e r , who
w a s a s s i g n e d to the l a n d u t i l i z a t i o n r e s e a r c h a n d a p p r a i s a l staff d u r i n g t h e f i r s t
s t a g e s of a c q u i s i t i o n a n d d e v e l o p m e n t i n
the 1930's.
T h e a u t h o r w i s h e s to give s p e c i a l a c k n o w l e d g e m e n t t o t h e following p e o p l e f o r
t h e i r h e l p f u l n e s s i n providing s u g g e s t i o n s
and m a t e r i a l s : E r n s t H. Wiecking, H a r r y
A. S t e e l e , M a r k M. R e g a n , i-qorman E.
L a n d g r e n , a n d R o b e r t W. Harrison, E ~ ~
n o m i c R e s e a r c h S e r v i c e ; E d w a r d G. ~
~
F r e d JV. G r o v e r , H o w a r d E. S m i t h , j o h n S.
F o r s m a n , a n d L a w r e n c e S. Newcornbe,
F o r e s t S e r v i c e ; C l a u d e F. C l a y t o n , William
A . H a r t m a n , E l m e r S t a r c h , a n d C a r l C.
T a y l o r , R e s e t t l e m e n t A d m i n i s t r a t i o n and
B u r e a u of A g r i c u l t u r a l E c o n o m i c s ; Gladwin E , Young and Roy D. H o c k e n s m i t h ,
Soil C o n s e r v a t i o n S e r v i c e ; V i r g i l G i l m a n
a n d P h i l l i p K. H o o k e r , F e d e r a l E x t e n s i o n
S e r v i c e ; a l l of t h e D e p a r t m e n t of A g r i c u l t u r e ; a n d K a r l A. L a n d s t r o m , D e p a r t m e n t of t h e I n t e r i o r .
Valuable a i d w a s r e c e i v e d f r o m Loyd
G l o v e r , South Dakota S t a t e U n i v e r s i t y ;
G e o r g e H. A u l l , C l e m s o n C o l l e g e ; William
T. F u l l i l o v e , G e o r g i a S t a t e A g r i c u l t u r a l
E x p e r i m e n t Station; a n d m a n y o t h e r s a s s o c i a t e d with the l a n d u s e r e s e a r c h a n d
a c t i o n p r o g r a m s of the 1 9 3 0 ' s a n d s u b s e quent l a n d m a n a g e m e n t a n d r e s e a r c h a c tiviti es
E s p e c i a l l y u s e f u l s o u r c e s w e r e the
p a p e r s , f i l e s , r e f e r e n c e l i s t s , a n d publications of L. C. G r a y , B u r e a u of - 4 g r i c u l t u r a l
Economics and Kesettlement Administration, 1920-40; C a r l e t o n E . B a r n e s , B u r e a u
of A g r i c u l t u r a l E c o n o m i c s a n d R e s e t t l e m e n t A d m i n i s t r a t i o n ; M a r g a r e t R. P u r c e l l ,
B u r e a u of A g r i c u l t u r a l E c o n o m i c s and
E c o n o m i c R e s e a r c h S e r v i c e ; 0 . E. B a k e r ,
F r a n c i s J. M a r s c h n e r , H o w a r d T u r n e r ,
B u r e a u of A g r i c u l t u r a l E c o n o m i c s ; and
P h i l i p M. Click. S o l i c i t o r ' s Office.
.
August 1965
CONTENTS
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Summary
Origin and development
Introduction
National Conference on Land Utilization
National R e s o u r c e s B o a r d
F o r m a t i o n of the land utilization p r o g r a m
The A g r i c u l t u r a l Adjustment A d m i n i s t r a t i o n
T r a n s f e r to R e s e t t l e m e n t A d m i n i s t r a t i o n
P r o j e c t s e s t a b l i s h e d and land acquired. 1934-37
Change of s t a t u s of the p r o g r a m under the Bankhead-Jones
F a r m Tenant Act
A s s i g n m e n t to the B u r e a u of A g r i c u l t u r a l E c o n o m i c s
T r a n s f e r to Soil Conservation S e r v i c e
Land a c q u i r e d under Title I11 of the Act
Land utilization r e s e a r c h
Background s t u d i e s
R e s e a r c h a s p a r t of p r o j e c t planning and development
Extent and c o s t of land acquisition and p r o j e c t development
Land acquisition
P r o j e c t development
Location of p r o j e c t s
Use of p r o j e c t land
Relocation of f a m i l i e s residing on lands a c q u i r e d
Relocation under the R e s e t t l e m e n t A d m i n i s t r a t i o n
Relocation under the Bankhead-Jones F a r m Tenant Act
Relation of land utilization p r o g r a m to l o c a l governments
E x a m p l e s of the i m p a c t of land p u r c h a s e on l o c a l f a r m ing and government
F e d e r a l payments to l o c a l governments
Management and u s e of the land utilization p r o j e c t s
Relationship of land m a n a g e m e n t and t r a n s f e r s
Management by t h e Soil C o n s e r v a t i o n S e r v i c e . 1938.53
Management by the F o r e s t Service. 1954-63
Management by the B u r e a u of Land Management
Management of Indian p r o j e c t s
Management by State and l o c a l a g e n c i e s
P l a n s f o r l o n g - r a n g e u s e and m a n a g e m e n t
A p p r a i s a l of the land utilization p r o g r a m
Examples of land utilization p r o j e c t s
Oconee N a t i o n a 1 F o r e s t and a d j a c e n t wildlife refuges.
e x p e r i m e n t stations. and p a r k s
Land u s e plans i n the 1930's
Use of p r o j e c t r e s o u r c e s i n the 1960's
Income and expenditures
Recreation
Management
Grand River National G r a s s l a n d
H i s t o r y of the South Dakota land utilization p r o j e c t s
P u r c h a s e and development of the p r o j e c t
R e s e t t l e m e n t of f a m i l i e s
L a t e r a d m i n i s t r a t i o n and u s e
Income and expenditures
Changes. 1955.64
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Achievements of the p r o j e c t
C o m p a r i s o n of t h e G e o r g i a P i e d m o n t a n d t h e P e r k i n s C o r s o n land utilization p r o j e c t s
Buffalo G a p National G r a s s l a n d
Description and justification
E a r l y development
Families residing on land
Use of the p r o j e c t land. 1959-63
F a l l River Ranger District
U s e of p r o j e c t in 1964
Milk R i v e r G r a z i n g D i s t r i c t p r o j e c t
C i m a r r o n National G r a s s l a n d
F r e n c h C r e e k State P a r k
New York Land Utilization P r o j e c t
B e l t r a m i Wildlife M a n a g e m e n t A r e a
Yellowwood S t a t e F o r e s t
B l a d e n L a k e s State F o r e s t
Objectives
Financial development
P e r s o n n e l and o r g a n i z a t i o n
Experimental projects in progress
Construction and maintenance
Sandhills Wildlife Management A r e a
Clemson F o r e s t
H i s t o r i c a l background
T i m b e r i n v e n t o r i e s . 1936-58
Coordination of F o r e s t m a n a g e m e n t . with r e s e a r c h .
teaching. a n d d e m o n s t r a t i o n
Bibliography
Appendix A . - -Explanation of d i f f e r e n c e s i n r e p o r t s of a c r e a g e s
a c q u i r e d i n the land u t i l i z a t i o n p r o g r a m
Appendix B.- -Chronology of t h e l a n d utilization p r o g r a m
Appendix C . - - L a n d utilization p r o j e c t work u n i t s c o m p l e t e d a n d
i n p r o g r e s s f o r s e l e c t e d jobs of land i m p r o v e m e n t s . J u n e 30.
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SUMMARY
Among the c r i t i c a l a g r i c u l t u r a l p r o b l e m s
of the 1930's was t h e cultivation of a l a r g e
a c r e a g e of s u b m a r g i n a l f a r m l a n d - - l a n d that
could not profitably g r o w c r o p s . Mortgage
f o r e c l o s u r e s , t a x delinquencies, and p e r sonal hardship were commonplace in a r e a s
w h e r e l a r g e a c r e a g e s of s u b m a r g i n a l land
w e r e being f a r m e d . S e v e r e d r o u g h t s , floods,
e r o s i o n , poor cultivation p r a c t i c e s , negl e c t , and, frequently, abandonment w e r e
causing heavy d a m a g e to the land.
Recognizing t h e magnitude of the s u b m a r g i n a l l a n d p r o b l e m , the S e c r e t a r y of
A g r i c u l t u r e s u m m o n e d a National Conf e r e n c e on Land Utilization i n 1931, to
study t h e s e p r o b l e m s and to m a k e r e p o r t s
and r e c o m m e n d a t i o n s . One r e s u l t was the
c r e a t i o n of t h e National R e s o u r c e s B o a r d ,
which a s s e m b l e d d a t a and p r e p a r e d m a p s
showing s u b m a r g i n a l l a n d a r e a s . This
Board r e c o m m e n d e d i n 1934 that the F e d e r a l G o v e r n m e n t p u r c h a s e and develop 75
million a c r e s of s u b m a r g i n a l f a r m l a n d i n
the v a r i o u s r e g i o n s to s e r v e the public and
r e l i e v e t h e d i s t r e s s of the occupants of
the s u b m a r g i n a l land a n d of n e a r b y a r e a s .
An Executive O r d e r l a t e i n 1933 a l r e a d y
had e s t a b l i s h e d funds to buy land, r e t i r e
i t f r o m cultivation, and develop it f o r
pasture, forest, range, park, recreation,
wildlife refuge, and s i m i l a r u s e s . The
p r o g r a m d e v i s e d was b a s e d on r e s e a r c h ,
and on t h e c o o p e r a t i o n of p r o f e s s i o n a l
o r g a n i z a t i o n s , State a g r i c u l t u r a l e x p e r i m e n t s t a t i o n s , land m a n a g e m e n t and r e s e a r c h a g e n c i e s of the D e p a r t m e n t s of
A g r i c u l t u r e and I n t e r i o r , and l o c a l g o v e r n m e n t s , g r a z i n g a s s o c i a t i o n s , and s o i l conservation districts.
Some 250 land utilization p r o j e c t s , t o t a l ing 11.3 m i l l i o n a c r e s i n 45 S t a t e s , w e r e
a c q u i r e d f o r $47.5 m i l l i o n (about $4.40 a n
a c r e exclusive of public d o m a i n land a s s i g n e d ) between 1933 and 1946. M o r e t h a n
four-fifths of this total a c r e a g e - - 9 . 5 m i l lion a c r e s - - i s now used chiefly f o r r a n g e
and f o r e s t s and r e l a t e d m u l t i p l e u s e s ,
s u c h a s wildlife protection, w a t e r s h e d s ,
and r e c r e a t i o n . O v e r o n e - s i x t h - - 1.8 m i l lion a c r e s - - i s used f o r wildlife r e f u g e s and
parks.
All s a l e s m a d e to the F e d e r a l Governm e n t w e r e voluntary. T i t l e to t h e land was
obtained under p r o v i s i o n s of the e m e r gency r e l i e f and i n d u s t r i a l r e c o v e r y a c t s ,
and the Bankhead- J o n e s F a r m Tenant Act,
a l l p a s s e d i n the 1930's. P a r t s of the 11.3
m i l l i o n a c r e s a r e now m a n a g e d by 7 F e d e r a l a g e n c i e s , and 2 o r m o r e S t a t e a g e n c i e s in s o m e 30 S t a t e s . Up to 1954, when
arrangements were made f o r permanent
land a s s i g n m e n t s , t h e c o s t s of developing
the land w e r e about $102.5 m i l l i o n (about
$9 a n a c r e ) . So the t o t a l c o s t f o r ,land
and development was a p p r o x i m a t e l y $150
million. Much of the l a b o r of developing
the land was done by p e r s o n s who would
o t h e r w i s e have b e e n j o b l e s s .
N e a r l y 25,000 f a m i l i e s occupied the a c q u i r e d land. M o r e than 8,000 needy f a m i l i e s
w e r e helped to r e l o c a t e . O v e r 16,000
f a m i l i e s r e l o c a t e d b y t h e i r own e f f o r t s . In
s o m e c a s e s , f a m i l i e s could r e m a i n in t h e i r
h o m e s a n d work on the development o r
m a i n t e n a n c e of p r o j e c t s .
The land utilization p r o j e c t s w e r e not
uniform in n a t u r e , s i z e , u s e , o r m a n a g e m e n t ; no 2 p r o j e c t s w e r e e x a c t l y alike.
They r a n g e d i n s i z e f r o m l e s s than a
thousand a c r e s to m o r e than a million.
S o m e 100 F e d e r a l a n d State p r o j e c t s a r e
now i n f o r e s t s ; about 30 a r e i n F e d e r a l
g r a s s l a n d p a s t u r e and r a n g e ; about 70 a r e
i n p a r k s and r e c r e a t i o n a r e a s ; and 50 a r e
i n wildlife refuges and m a n a g e m e n t . a r e a s .
Multiple u s e i s a p r a c t i c e c o m m o n to a l l
p r o j e c t s . Many p r o j e c t s h a v e good buildi n g s , r o a d s , w a t e r s u p p l i e s , and o t h e r
facilities f o r management, f i r e control,
t i m b e r p r o c e s s i n g , g r a z i n g , f i s h and wildl i f e production and m a n a g e m e n t , e x p e r i m e n t a l d e m o n s t r a t i o n s of good f o r e s t and
g r a s s l a n d p r a c t i c e s , and r e c r e a t i o n a l s i t e s .
Most of the a g r i c u l t u r a l p r o j e c t s have
b e e n under the a d m i n i s t r a t i o n a n d m a n a g e m e n t of the F o r e s t S e r v i c e a n d the B u r e a u
of Land Management s i n c e 1954, and now
a r e i n National F o r e s t s , National G r a s s l a n d s , a n d F e d e r a l g r a z i n g d i s t r i c t s . Coo p e r a t i v e g r a z i n g a s s o c i a t i o n s have a n i m p o r t a n t p a r t i n - u s e and m a n a g e m e n t of
these lands.
C o m p a r a t i v e s t u d i e s of t h e p r o j e c t land
i n the 1 9 3 0 1 s , and i n the 1960's a f t e r 30
y e a r s , show much change and i m p r o v e m e n t .
Useful p u r p o s e s a r e s e r v e d by providing
r u r a l r e c r e a t i o n a l a r e a s , wildlife r e f u g e s ,
and s u p p l e m e n t a l i n c o m e s to l o c a l people
f r o m g r a z i n g a n d f o r e s t r y , f r o m employm e n t i n m a i n t e n a n c e and o p e r a t i o n , and
f r o m r e l a t e d private e n t e r p r i s e s . The F e d e r a l Government and the States r e c e i v e
f a i r l y substantial payments f o r u s e of land
now in f o r e s t and g r a s s , a s a r e s u l t of
improved management, r e s t o r a t i o n , and
development. Counties where t h e s e lands
a r e located r e c e i v e 25 p e r c e n t of the income f r o m the land f o r the support of
schools and r o a d s .
-4n outstanding f e a t u r e of t h e s e land
utilization p r o j e c t s i s that they give people
a chance to o b s e r v e good land u s e p r a c t i c e s and efficient management of f o r e s t s ,
g r a s s l a n d s , and r e c r e a t i o n a l and wildlife
a r e a s . The projects a r e proving grounds
f o r s o c i a l , economic, and educational p r o grams.
The Nation was made a w a r e that poor
a g r i c u l t u r a l land should not be allowed to
suffer f r o m m i s u s e , o r to a b s o r b the unemployed during d e p r e s s i o n s . The land
utilization p r o g r a m helped r e v e r s e U.S.
policies encouraging s e t t l e m e n t and development of land whether o r not i t was
suited to cultivation. The p r o g r a m a s a
whole put much land to m o r e profitable
uses.
Considered a s a whole, much of this
land h a s been developed into useful units
and has become a n i m p o r t a n t f a c t o r in
the l o c a l and regional a r e a ' s life and welf a r e . The land utilization p r o g r a m of the
1930's b e a r s a c l o s e r e s e m b l a n c e to the
1964 plans to aid i n the alleviation of
r u r a l poverty and d i s t r e s s .
C a s e studies of 12 p r o j e c t s i l l u s t r a t e
the wide d i v e r s i t y of land u s e problems
in different regions of the country--the
p a s t ill-adopted u s e f o r a g r i c u l t u r e , and
the shift to use f o r p a r k s , wildlife refuges,
f o r e s t , and g r a s s l a n d s . How b e t t e r usage
h a s been brought about i s shown by des c r i p t i o n of i m p r o v e m e n t and management.
T H E L A N D UTILIZATION P R O G R A M , 1934 T O 1964
Origin, Development, and Present Status
by
H. H. Wooten, Economic Research Service
Resource Development Economics Division1
I. ORIGIN AND DEVELOPMENT
INTRODUCTION
The nationwide economic d e p r e s s i o n of
the l a t e 1920's and e a r l v 1930's awakened
public i n t e r e s t i n r u r a l land u s e p r o b l e m s
and policies. Thousands of p e r s o n s no longer
a b l e to find work in towns and c i t i e s t r i e d
to m a k e a living by f a r m i n g . This back-tothe-land movement intensified the p r o b l e m s
of established f a r m e r s and r a r e l y solved
the p r o b l e m s of the unemployed f r o m u r b a n
c e n t e r s . F a r m f o r e c l o s u r e s multiplied, t a x
delinquencies i n c r e a s e d , f a r m incomes
dwindled, and in m a n y a r e a s the land r e s o u r c e s were damaged by drought, floods,
erosion, poor cultivation p r a c t i c e s , and
neglect. It b e c a m e i n c r e a s i n g l y evident
that thousands of f a r m f a m i l i e s had long
been living in poverty on poor land, and
that the d e p r e s s i o n and weather w e r e m e r e l y
aggravating t h e i r p r o b l e m s .
The land utilization p r o g r a m of the 1930's
was one of the methods by which the Nation
attempted to d e a l with t h e s e p r o b l e m s .
This p r o g r a m began a s a s u b m a r g i n a l land
p u r c h a s e and development p r o g r a m , but
was gradually expanded to include the
b r o a d e r a i m of t r a n s f e r r i n g land to i t s
m o s t suitable use.'
Public policy and plans s e l d o m s p r i n g
full-grown into being, but develop gradually
a s the r e s u l t of public s u p p o r t of c e r t a i n
p r o g r a m s and public r e j e c t i o n of o t h e r s .
So it was with the land utilization p r o g r a m .
Until the beginning of the 20th c e n t u r y , the
s e n t i m e n t of the country had been t h a t land
had little value until i t b e c a m e s e t t l e d and
Mr. Wooten is now retired.
The term "submarginal land," as used here and
elsewhere in the agricultural field, generally refers
to land low in productivity, or otherwise ill-suited
for farm crops, which falls below the margin of
profitable private cultivation.
placed in a g r i c u l t u r a l production, t h e r e b y
ceasing to be undeveloped public domain.
Unsettled land, even though not well adapted
to cultivation, was g e n e r a l l y c o n s i d e r e d a
hindrance to full development of the Nation.
But by the 1 9 2 0 t s , i t was beginning to be
recognized that efforts to develop quickly
a l l land f o r a g r i c u l t u r e without c a r e f u l
a p p r a i s a l of i t s suitability f o r s u c h u s e
had led to cultivation of much poor land, o r
land unsuitable f o r s u s t a i n e d ~ r o d u c t i o nof
c r o p s (50, 5_7, 72).
One of the m o s t obvious p r o b l e m s in the
1920's and 1930's was the d a m a g e to n a t u r a l
s o i l and w a t e r r e s o u r c e s f r o m continued
cultivation of unproductive f a r m s , which
w e r e often eventually abandoned (fig. 1).
In s e v e r a l a r e a s of the Southern Piedmont
and Appalachian Regions, f o r e x a m p l e , the
a l m o s t continuous cultivation of s t e e p s l o p e s
in r o w c r o p s had r e s u l t e d in s e r i o u s e r o sion, stoppage of s t r e a m channels by s e d i mentation, d a m a g e to r e s e r v o i r s , low c r o p
yields, and depletion of l a r g e a r e a s of land
(fig. 2). But d e s p i t e the unsuitability of
much s t e e p hill and mountain land f o r food
and feed c r o p s , many f a m i l i e s r e m a i n e d
dependent on i t f o r a living (3, 3).
In the d r i e r portions of the w e s t e r n
G r e a t P l a i n s , wind e r o s i o n damaged not
only cultivated land but the adjoining o v e r g r a z e d p a s t u r e , r a n g e , and o t h e r land a s
well. Soil p a r t i c l e s in the f o r m of d u s t and
fine sand, blown f r o m cultivated fields,
fallow land, and o v e r g r a z e d range during
the prolonged drought of 1933-36, c o v e r e d
and d e s t r o y e d the c r o p s and s o d on n e a r b y
land (figs. 3 and 4). Untended f i e l d s , held
under u n c e r t a i n t e n u r e , contributed heavily
Underscored numbers in parentheses refer to
Bibliography, p. 64.
5CS Kan-535
f l q u r r : 3.--TypIc?l &:orton County, Kans., h n n r ~ x w a dalwn It wn?r opclunsd for purchasc undcr t h c l a i ~ du r i l l z a rlan prrYAforn.
id r-:IS
6:t;1.:,
132
s ~ m l a r ~!and,
ti
c . \ ~ ; s P Lt~h e s ~ con'
a-d qrow worss: :vlth t!lc
ti> d e v e l o p
I
:
to f a r m l n q , tended to b r c o m c
Lix r?rIl.?,;ucllt suort a l t e r t h c furcstti tvc.re
rr.-:~uvc*t!. But the s c a t t e r e d f a m i l i e s l i v i n g
o:: trLcase s u b m a r g i n a l l a n d s c o n t ~ n u e d t o
r.rt ,
! rn.ic!s, scl-.ools, ~ ~ oti1t.r
c l ~ u S l i srrT:c
:cia=, t:.us roq9iiri::g pu'alic cspen(i1turt.s i ~ f
marly tl.:~cs t!xr a m o u n t s the.)- contr;butrad
ir: trtxi.?. k'triny r u r d l cour,tic3s faced i,t.;lvy
1
c1c-ll~lt.5.
C o r . g r c s s r-cognlr; t d tht- qro,.ving nt.tld
f o r actlar: o n t V l r p ~ o b l e xof s u b m , l r g i n a l
I ! a d providtx! In the A g r r c u l t u r a l
Xfarketing Act of Jun:: 15, 1329, author1z.at:o:i f o r the F e d e r ~ F
l a r m Aoard to i n v e s tigat? tI:c u t l l l ~ a t i o :of~ l a d f o r a g r i c u l t u r a l
p.lrpr,aes and the pcissibillty of r t t l u c m g t h e
arnorint of m a r g i n a l land In cu1tivatio:l.
T'nis + a s the beginning of a n incrcaslr.qly
s r r l o u s s t u d y of the land p r i ~ b l e r ni n America
and of t h e s t e p s r e q u i r e d to b r i n g about a
b e t t e r a d j u s t m e n t between t h e u s e of land
a n d tht- n a t u r a l ch,lrttcter of the K a t i o n ' s
land r e s o u r c e s . Somc: of t h e f o r e r u n n e r s
of t:~c: land utilization p r o g r a m a r e d e j c r i b e d below.
stud:; of land u s c p r o b l e m s was t o prornotr
the r e o rganizatior. of a g r i c u l t u r e to d i v e r t
land f r o m unprofitable u s e , arid to avc)iJ
t h r c u l l i v a t i o ~ iof l a c d that contributt.d to tilt.
p o v e r t y of those who l i v e d o n it. Earl!.l
in 19.33, P r e s i d e a t IIoovtzr a s k e d C a n g r c s s
to i m p l e m e n t S e c r e t a r y of Xgricultnrt.
I l y d c ' s r c c o r n m e n d a t i o n that the: Chverrim e n t l e a s e s u b m a r g i n a l f a r m l a n d and conv e r t i t to o t h e r u s e s - - & p r o g r J m that
FIydc rtkgarded a s an t?.-nerFency effort
which could 1r:ad to a p r o g r a m of s y s t e m a t i c land utilizatron.
National Conference on Larid Utilization
Aware
of mountlng d i s t r e s s a m o n g
f a r m e r s , S ~ c r e t a r yof . k g r i c u l t u r c A r t h u r
M. IIydc a r r a n p c d a National C o n f e r e n c e
o n IAandUtilization i n Chicago, i n S o v e m b e r
1931. The Confertl-nct: adopted a s e r i e s of
r e s o l u t i o n s (*j,
m a n y of which w e r e l a t e r
to becorn? the guidelrzes f o r a F e d c r a l l a n d
p r o g r a m . 'The conferurice was a t t e n d e d by
r e p r c s e n t a t i v u s of the U.S. D c p a r t r n e n t s of
A p r l c u l t u r c a n d t h e I n t e r i o r , State a g r i cultural calleges, f a r m organizations, and
o t h e r s i n t e r e s t e d i n land u s e p r o b l e m s .
In l 9 3 L , a Xiitional Land U s e Plarinifig
Corn-ittee, m a d e up of r e p r e s e n t a t i v e s of
F e d e r a l bureaus and land-grant colleges,
k v a s cre2tt.d. ?'he o r g a n i z a t i o n of t h i s Cornrnittcr* was ont. of t h e i m p o r t a n t r e s u l t s
of the Kational C o n f e r e n c e on Land Utilxzatlon, F r o m thp t i m e of i t s o r g a n i z a t i o n ,
the h a t l o n a l Land Use Planning C o m t n i t t e e
A National Planning R o a r d as r s t a b l i s h e d in the Public Works A d r n l n i s t r a t ~ o n
in J u l y 1933. T h i s B o a r d \.;is ~ n t t ~ s r is u c c e ~ d e dby t h e S a t i o n a l K r s o u r c o s R o a r d ,
c r e a t e d b y E x e c u t i v e O r d e r of Prt.sider:t
Koosevelt on J u n e 30, 1934. Tnt: latter
D o a r d took a s o n e of i t s f i r s t t a s k s t ! i ~
preparation of a c o m p r e h e n s i v e r e p o r t
the l a n d a n d w a t e r r e s o u r c e s of t:.it: United
S t a t c s , i n c o o p e r a t i o n with t h e L.S. D r p a r t m e n t s of A g r r c u l t u r r and the I n t e r i o r ,
State planning b o a r d s , a g r i c u l t u r a l e x p e r i ment stntlons, and other interested agencies
snd m d ~ v i d u a l s(L.14).
T h e r e p o r t , i s s u e d by t h e B o a r d ' s Land
Plarinirig C o m m i t t e e i n D e c e m b e r 1934,
s u g g e s t e d that national p o l i c i e s should a c t l v e l y seek t o b r m g about t h o s e land oivnr:rsLip a n d land u s e p a t t e r n s found to b e
c l e a r l y in t h e i n t e r e s t of t k . ~ gerler:~l
p u b l ~ c w e l f a r e , a s c o n t r a s t e d .vv~tilpurely
individual o r z r o u p i n t c r c s t u . i t invcr.t o r i e d land resources a n d e s t i m a t e d f u t u r e
land r c q u l r c m c n t s f o r v a r i a u s u s c s ; i t
ldcntified m a l a d j us trrients i n l a n d u s e a n d
r e c o m m e n d e d public p o l l c i e s f o r c o r r e c t i n g
them. It a l s o r e c o m m e n d e d i n c r e a s i n g the
a r e a s in F e d e r a l a n d S t a t c f o r e s t s , public
p a r k s , r e c r e a t i o n a r e a s , Lndran r e s c r v a t i o 2 s , and wildlife r e f u g e s .
The m o s t significant policy recornmendat i o ~ ,h o w e v e r , c o n c e r n e d t h e m a r g i n a l a n d
submarginal land and its occupants. The
Board recommended that t h e F e d e r a l
Goverriment c a r r y 02 a l o n q - t e r m policy
of l a n d a c q u i s i t i o n , a n d a c q u i r e s o m c 7 5
m i l l i o n a c r e s of l a n d , t o "supp1erncr.t t h e
a s s i s t a n c e to p r i v a t e f o r e s t r y , a n d erosior.c o a t r o l work" a.lrcady uxderway. T h e Board
s u g g e s t e d t h a t t h e way to b e g i n s u c h a p r o g r a m would b e t o a c q u i r c c a r e f u l l y s e l e c t e d
a r e a s of s u b m a r g i n a l l a n d a n d d e m o n s t r a t e
!low i t c o d d b e u s e d t o s e r v e t k e p u b l i c .
I t was r e c o g n i z e d t h a t i t would, a t t h e s a m e
t i m e , be n e c e s s a r y to r e l o c a t e t h e o c c u p a n t s
o r r e g r o u p t h e m In s u i t a b l e a r e a s , t a k i n g
into a c c o u ~ ~t ht e p o s s i b i l i t i e s f o r crnploym e n t a f f o r d e d by t h e l a n d u t i l i z a t i o n p r o j ects.
FORMATION O F THE LAXD UTILIZATION PROGRAM
cspcnded wich the result that the owners remain imin 1833, a S p e c i a l B o a r d of P u b l i c
La:?
W o r k s w ~ t hm e m b e r s f r o m s e v e r a l F e d e r a l
d e p a r t m e n t s p a s s e d a r e s o l u t i o n ca1lir.g f o r
establishment of a s u b m a r g i n a l l a n d p u r c h a s e p r o g r a m by t h e C o v e r ~ r n e n t . In
F e b r u a r y 1934, s u c h a p r o g r a m w a s i n stituted by thc Agricultural Adjustment
A d m i n i s t r a t i o n with $25 m i l l i o n p r o v i d e d
f r o m F e d e r a l E m e r g e n c y Relief Administratior- a p p r o p r i a t i o n s . This p r o g r a m w a s
to ir-clude f o u r t y p e s of p r o j e c t s : ( 1 ) A g r i c u l t u r a l a d j u s t m e n t , ( 2 ) Indlan 1ar.d. ( 3 ) r e c r e a t i o n , a n d ( 4 ) w i l d l i f e r e f u g e . With the
i n i t i a l a l l o t m e n t of $25 m i l l i o n , s u p p l e m e n t e d b y t r a n s f e r s f r o m Work R e l i e f funds
t o cmploy l a b o r f o r d e v e l o p m e n t , it w a s
p r o p o s e d to a c q u i r c a p p r o x i m a t e l y 10 m i l l i o n a c r e s of l a n d l o c a t e d i n 4 5 S t a t e s . The
o v e r a l l p u r p o s e of t h e p r o y r a m was t o c a r r y
o u t a n i m p o r t a n t l a n d policy f u n c t i o n n o t
dxplicated b y a n y o t h e r F e d e r a l p r o g r a m .
D e t a i l s a d r c q u i r e m e n t s of the f i r s t
a l l o t r n c n t of $ 2 5 . n l l l i o n f o r l a r d p u r c h a s e
h a v e b e e n s u m m a r i z e d a s follow; ( 7 C ) :
poverlshed while working them.
-1. That they shall be lands available for or suitsble for development a s forests, o r a s p a r k s or
rccreacion spaces, or 35 grazing rangcs, or as hirci
or game refuges or a s additions co Indian rrservndons o r such rhat their deveIopmant through planting
of forests and gruund cover will servc a$ a protection
againsr soil erosion o r for ocher specific public works
and knoflts to r h e people af the Llnitcd States.
5. ' h a t ic shall be possible to work out a definite
plan of resettlement o r employment of the population
a t prescne living on such lands so that they may not
become stranded or transient .
Every project accepted under this program shall
meet che condidons specified in the five points mentioned above. The merhod of operadon shall be t h c
following:
Projects will bc presented through any interested
depsrtmcnc, bureau, or section, such a s thc lndian
Scrvicc, Biological Survey, Relief Administration, or
othe~wlse. They will h e esamtned by the several
governmsncal dcpartmencs concerned co determine
whether o r not they can be handled i n full sacisfacrion
of each of the five points ~peclfiedabove.
I t is the intention ro rum the land over t o a Federal
Department for its operation for the purpose of which
it ts best adapted--forests, range o r park--these i n
charge of Furcscry Scrricc, Int!i:!rl Officc, o r Park
Service, 311d SO on.
1. Thar the Iancls purchased shall be such 3s in general co fall undcr subsection (c) of Secuon 202 of the
Sational Industrial Recovery Act in chat rhcy shall bc
lands of chc character heretoforc purchased by the Stace
of New York undcr die progr;lrn developed (1928-32) by
Govc rnor Roosevelt (Pres1dcn~-clcctin 1932) for die
The A g r i c u l t u r a l Acljust~ncnt:2dminist1*ation
w~thlirawalaf submarginal lands from cultivation.
2. That they shall be lands chat in tocal amount
bnlancc aqa:nsc the Lands, the reclamation or Improvement of which has becn provided for undcr the cornpr~hcn.~lvc
program of pubIic works on condirion c h x
counterbalancing lands bc wlthdrawn fromcultivarion,
3. That they shall be lands whlch arc now in cultlvation, produclnq agrfculcural crops at a r3rc of
production whlch the Departmentof Agriculrure spccifles 3s suhmarqinal, thac is, giving
return that is
lesr; than Is to bc propcrly erpccted from che labor
T h e a d m i n : s t r a t i o r . of t h e a g r i c u l t u r a l a d justment projvcta, a s well a s the g e n e r a l
d i r e c t i o n uf t h c whole l a n d u t i l i z a t i o n p r o g r a m , was t k c immediate r e s p o n s i b i l i t y of
t h e Land P o l i c y S e c t i o n of t h e . A g r i c u l t u r a l
A d j u s t m e n t Ad:ninis:ration.
The r e s p o n s i b i l i t y for plan::ing, a n d i n s p e c i f i c c a s e s ,
f o r a c q u r i n g l a n d for o t h e r types of p r o j cc:s w a s a s s i g n e d a s followu: I n d i a n l a n d s
projects, the B u r e a u of Indian A f f a i r s ,
G e p a r t r n c n t of t h e I ~ t z r i o r ; ? a r k s , k;e
c u l t u r e , 0 r g . l n l ~ c . d tt.chnlca!
d l r e c t l o n of
ti;+: land r e t l r r r n e n t funds a n d p r o g r a m s
..%as t;, b c t:.ir joint r ~ s p o n s i b l i l t yof A g r i cultur6- o.nd 1r.tt:r:or.
The p r r r n a r y r:~t*:rcst of t h e A g r l c u l t u r a l
A d j u s t m e n t . \ d m i n i s t r a t i o n was l r r t h e o r i g i n a l p u r p o s e of tht. land p r o g r a m : f t c t i r i n g
submarginal land f r o m a g r i c u l t u r d use,
prmclpally for dzmonstrntlonal purpos
anci dei,eloplng r t f o r u s e s to which ~ t w a s
b e t t e r s ~ u t ~ x i T. o i t was d l o t t r d twot h i r d s of t h e S t 5 miltic>n a v z ~ l a b l e . Such
for
a l l o c , ~ t i o n of pubilc x o r k s -none:;
f a r m i a n d r r t 1 r c m e r . t w a s ~ ~ i s t l f i eidn p a r t
to o f f s e t t i : effc,ct of dcv~.loornc*nt of
l a n d b y r e c l a m a t ~ o n p r o j e c t s with publ i c marks funds. 'The o t h e r a e c n c i e s i n volved in t h r p r o e r a m w e r e i n t e r e s t e d
prrrnclrlly i n a c q u r i n g land f o r s p e c i a l
prirpos e s .
I.,. C . G r a y , D i r e c t o r of the Land P o l i c y
Sec tron, A g r l c u l t u r a l Adjustment A d m i n i s t r a t i o n , &.rote (55, 5 6 ) t h a t a s the l a n d
rclt'irement p r o g r a m p r o g r e s s e d , i t took on
r n c r o a s l n ~ l yt h e a s p e c t of a " l a n d - u s e a d j u s t m e n t " p r o g r a m , b e c a u s e ''. . a r e a s w e r e
placed i n public o w n e r s h i p which, e v e n
though n o t outstandingly s u b m a r g m a l f o r
a g r i c u l t u r e , w e r e n e v a r t h e l ~ s s devoted t o
s o m e u s e o t h e r than t h a t f o r which t h e y
w e r e b e s t suited." H e n c e i t w a s o f t e n
difficult ' ' t o r e c o n c i l e the n e e d s of s p e c i f i e d
a r e a s f o r r e c r e a t i o n , wildlife c o n s e r v a t i o n ,
o r Indian rehabilitatiol: with t h e b a s i c
planning of a s u b m a r g i n a l l a n d r e t i r e m e n t
program..
(2).
A c c o r d ~ n g to Dr. G r a y , a p r o j e c t w a s
c o n s i d e r e d w o r t h w h i l e when i t could b e
s 3 t i s f a c t o r l l y s h o w n "that public a c q u i s i t i o n
of l a n d s In t h e s e l e c t e d a r e a , coupled wlth
r e s e t t l e m e n t of the p r e s e n t r e s i d e n t s o n
b e t t e r l a n d , wlll p r o v l d e a n e f f e c t i v e d e m o n s t r a t l o n of one m e a n s w h e r e b y t h e s e probl e m s c a n be solved."
In t!le P l a i n s S t a t e s , w h e r e b y f a r t h e
l a r g e s t a c r e a g e w a s to b e p u r c h a s e d , t h e
p u r p o s e of t h e land p r o g r a m w a s to set!
that s e m i a r i d land used f o r whedt o r o t h e r
a r a b l e f a r m i n g w a s u s e d f o r g r a z i n g ins t e a d . T h l s involved both i n c r e a s i n g t h e
s i z e of f d r m s a n d r e s e t t l i n g l o w - i n c o m e
f a m l l l e s w'flrrc thcy would not btr d e p e n d e n t
ttpon ar:d l a n d unfit f o r c u l t i v a t e d a g r l c u l t~lrt-.
Land p u r c h a s e d i n t h e N o r t h e a s t w a s to
b e convtbrtcd to f o r e s t s , g a m e r e f u g e s , a n d
r t . c r ratior:,~l a r e a s . In the South, on land
t b s ,
.
. ."
t!:at had b e u r : dcplt.ttc! b y y e a r s of 1-cro?
cotton o r t o b a c c o farrnlng, t h e prOjr?cts
w e r c .:~r,te:-ndc~dtn r < . s t o r c s o i l f e r t i l ~ t y ,
t i m b e r , ant? gAme. S c a t t e r e d f a r m s i s o l a t e d i n L a k e .Status f o r e s t s impr>stad h*:dv;i
b u r t l e r s o n l q c d gove rnnt:nts f o r s t . r v l c c s
and facllitir.5; Sht2se f ~ r m w
s e r e to be p u r c h a s e d a n d a s s i s t a n c e g i v r n t:le f.lrrnr:t-i
t o r e s e t t l e ?:I dtve1opi.d c o m m u n l t r ~ s .
tigricx!tllrdl a d j u s t m e n t p r o j e c t s w e r e t o
c o m p r r j e approsi!-nati:ly 7 m i l l i o n a c r p s of
1mcconom:c f a r m l a n d , t o g e t h e r :~.ith a d j a c e n t t r a c t s , to b e a c q u i r e d f o r f o r e s t r y ,
g r a z i n g , a n d othc r r x t e n s i v c c o n s ~ r v a t l o n a l
u s e s . M a j o r p r o b l e m s to b e a t t a c k t d w e r e
( 1 ) d a m a g e of s o i l a n d w a t e r resources,
f o r e s t , a n d g r a s s c o v e r trxrough e r o s l o n
a n d tile i m p r o p e r usc of l a n d ; ( 2 ) w a s t e
of h u m a n r + s o u r c e s t h r o u g h depende:lce of
r u r a l people upon land pi:)-sicallv unfit f o r
a g r i c i d t u r a l production; a n d f 3) 1055 of f i n a n c i a l res0urcr.s by S t a t e a n d l o c a l g o v e r n rnents through e x c e s s i v e c o s t s of public
s e r v i c e s i n s u b m a r q l n a l a r e a s wherc: t a x
r e t u r n s w e r e too m e a g e r o r u n c e r t a i n to
cover the costs.
S o m e 1,500,000 a c r e s of m a r g i n a l f a r m land ,.vere to b e p u r c h a s e d f u r u s e b y
I n d i a r s . Most of t h i s l a c d w a s to bc: u s e d
f o r g r a a i n g . I i e c r e a t i o r ~ a lp r o j e c t s planned
u n d e r the s u p e r v i s i o n of t h e National P a r k
S e r v l c e w e r e to c o n s ~ s tof s o m e 500,000
a c r e s of p o o r f a r m l a n d a n d o t h e r u n p r o d u c t i v e t r a c t s l o c a t e d l a r g e l y wlthin 50
m i l e s of r n d u s t r i a l c e n t e r s , to b e developed
p r l m a r l l y to p r o v i d e r e c r e a t i o n a l facilities
f o r l o w - r n c o m e f a m l l l e s . 'These projc:cts
v a r i e d rn s i z e f r o m s m a l l p i c n i c g r o u n d s
to 1 0 , 0 0 0 - a c r e p r e s e r v e s .
A p p r o x i m a t e l y 750,000 acrc.s w e r e to b e
included ir; m i g r a t o r y w a t e r f o w l and o t h e r
wildllfe p r o j e c t s . T h e y w e r e l a r g e l y a r c a s
that could b e p a r t l y flooded and u s e d a s
resting and breeding a r e a s f o r migratory
waterfowl,
P r o j e c t Planning and- D e v t : l o ~ m ~ : ~ J
P r o c e d u r e followed in c a r r y i n g out the
l a n d - a c q u i s i t i o n p r o g r a m as outlined i n a
r e p o r t to t!ie U.S. S e n a t e f r o m the S e c r e t a r y
of A g r i c u l t u r e ( 152):
The initial step i n the sclectinn of a proj~.ctis t h e
definition uf a "problem" arca--that is, an area in
which the cundic~onsof Imd use dc.mand rcadjumnenc.
To faciltrate the definitlun of s u c h ''probi~rn"dreas.
1.md ube spcc~.llists~ t~ th e dt u the rclgionaI offices
cnoperxe closcly w t t h the aqriculrural c.<prirnent
statton In C A C ~of the States A S well as w i t h S t m
orher q x * r i c ! ~ cor~cc
~
rned with land. Refore final
distressed r u r a l people. But a s t h e p r o g r a m
decisic,n on t!~etlcvel~ij~rrlent
of a project is made, the
developed the e m p h a s i s changed s o m e w h a t ,
prescnt cconnrnic status of c11coccupants of the land,
and much of the a c r e a g e optioned f o r p u r thts condition of the s u l l and nativc vegetarlon, I n c h a s e includecl p a r t s of l a r g e t r a c t s and
clutfinp fort-st rtsuurces, and t i need
~
of the land for
land a d j a c e n t to o r within f a r m a r c a s ,
publ~cpurposes rllust he considered. With t h e ulrirnate
which no o n e had e v e r cultivated, although
uC;c of the land In mind, IC i5 necessary to explore
m u c h of i t was f o r e s t o r had b e e n u s e d f o r
i t s rclLlt~ons1i~p
rcj nearby tourns and cities, to 1 ~ ~
g r a1
z i n g . To s o m e d e g r e e , t h e s e c h a n g e s
rrpinjnn, md to the citt~tudeof various State official
In o b j e c t i v e r e f l e c t e d h m i t a t i o n s p l a c e d
is @vcn to the cost
~gencics. 'ipec~alcons~dt>ration
o n t h e u s e of funds m a d e a v a i l a b l e f o r
this p r o g r a m by the C o n g r e s s and the
of t h e land a n d to the possibility of relieving unemployment by t!ie developnlent work on such a project.
executive departments.
fifter i t 1s decided to prt~ct,d,the bounclaries of tfie
P r o b l e m "-Land A r e a C l a s s i- f-ication
-project arc carefully def~nedand proposal? to sell
At the o u t s e t of t h e p r o g r a m t h e r e x a s
land witi~in the purchdse area are securt.d, The
the need t o find the extent and l o c a t i o n o f
solic~torsof thc prc~posnlsa r e mstructed as to the
poor f a r m l a n d . M u c h i n f o r m a t i o n was a v a i l protnhle ~aluc-sof the vcirious properties, .4ftcr d
sufficient number of proposals have been cihtaind to
a b l e f r o m p r e v i o u s r e s e a r c h . F o r 10 y e a r s
insure tlidt tht prcrjcct can be cornptetcd, the individual
o r m o r e , the D u r e a u of A g r i c u l t u r a l E c o n o m i c s and c o o p e r a t i n g F e d e r a l and S t a t e
tracts 'ire appraised hy expert appraisers, and thc
rjwners dre then asked to sign a formal offer to sell
a g e n c i e s had b e e n studying, r u r a l l a n d u s e
land to the Fcdcral government on the has16 of the
p r o b l e m s a n d t h e m e a n s f o r t h e i r solution.
~ppraised value. When a wfficicnt number of such
I n t h e c o u r s e of t h e i r s t u d i e s , they had
formal offers are available, they are submitted to
a s s e m b l e d and a n a l y z e d valuable d a t a o n
land u s e s , productivity c l a s s c s , v a l u e s , and
the Wa.;hiriyton office for acceptance.
I t is then necessary to determine whether the title
r e q u i r e m e n t s . T h e findings w e r e u s e d i n a
is suff~cleritlpclear to permit the transfer of the land
m a p , " N a t u r a l Land U s e A r e a s , " by C a r l e t o n
P. B a r n e s and F r a n c i s J . Marschnc-r
to the I'nittd States in fee simple. This process has
been found t c ~require a considczrable wrmd of time.
I n 1932, the B u r e a u of C h e m i s t r y a n d
7 ' h t f ederdl Govcrnrnvrrt has never before undertaken
S o i l s , a t the s u g g e s t i o n of the National
to acquire so large an amount of land in so short a
C o n f e r e n c e on Land U tllization, undertook
period, and the volunle of work involved hafi placed
.a nationwide c l a s s i f i c a t i o n of l a n d a c c o r d an unusual burden on the various admin~strarise ing t o i t s p h y s i c a l a d a p t a b i l i t y f o r v a r i o u s
agencies affccwd. Three major departments of the
u s e s . T h i s was the f i r s t productivity c l a s s l Federal Government are concerned: Namclv, the nCf i c a t i o n undcbrtaken on a national s c a l e
parmlent of Justice, the Comptroller Genural, andthe
(144,145).
E a c h s o i l type, i n c o u n t i e s f o r which
'Trra~ury Ckpartment. The lkpartment of Justice
soil surveys were available, was classifird
m u s t he satisfied that the title is free from defects.
into 10 g r a d e s . T h e s e r a n g e d f r o m the
rht: Ctniptrollcr General must be batlsfied that the
b e s t to the p o o r e s t , a s judged by the a d a p t autlmrity at law exists for the acquisition of each
tract, that the m?ney is k i n g spent for a title that
ability of t h e s o i l i n i t s n a t u r a l c o n d i t l o ~ l ,
without
improvement
o r s c r i o u s inlis fret frcm serious defects, and that the various
p o v e r i s h m e n t , to the kinds of c r o p s grown
rescnratiuns such as mineral resenations which may
have hecn stipulntcd in each transaction riot only arc
i n t h e a r e a . E o r the m a i n c r o p s that could
Icgally juxtifwi, but also are consonant wlch the purf e a s i b l y b e g r o w n on e a c h s o i l type, the
pose of each project and the interests of the United
s o i l type w a s r a t e d i n c o m p a r i s o n with the
States. Suctr r~quir~:ments
have naturally cauiit,d contype p h y s i c a l l y b e s t adapted to the g:vcn
siderable periods of delay i n payrnenc.
c r o p . T h e p e ~ e r a lr a t i n g f o r a p a r t i c u l a r
land type w a s obtalr,t.d by cornbiriing the
r a t i n g s f o r individual c r o p s a c c o r d i ~ gto
F r o m the beginning of t h e p r o g r a m , l a n d
r e l a t i v e a c r e a g e . Eventually, t h e ; i r e a s i n
a c q u i s i t i o n w a s b a s e d on v o l u n t a r y s a l e s .
e a c h psoductivlty c l a s s w e r e d e t e r m i n e d .
Stdnciard p r o c e d u r e s w c r e used i n r.stiThe p o o r e r g r a d e s of l a n d :c.crtAfound to
mating thp v a t u r o f land offered f o r s a l e ,
c o m p r l s e about 2 2 p e r c e n t of the land i n
op:lonlr,g land, c l r a r i r i g titles, and closing
f a r m s . They n a t u r a l l y corltr:buted p r o p o r s a l e s . Experienced l o c a l and State people
a r t r t - azsslpic~d t o t!irs work. C o n d e m n a t ~ o n tlonately m u c h l e s s to the total p r o d u i t l ~ j n
than a c o r r e s p o n d i n g a c r e d g e of good land.
was r e s o r t e d t o only w h e r e n e c e s s a r y f o r
I n acidition t o the irlformation :ivallablt.
t l t l e clearance 3 r d r e l a t e d l e g a l p i r p o s e s .
Ir. ~ t se a r l i c r s t a p e s , t!-.c land p r o g r a ~ n f r o m tk.esc e a r l i e r s t u d i e s , a c u r r e n t s t a t i ~ 7 t i c a l picture of t h e l a d 17, the d i f f ~ r e ~ i t
:\as
~:;ter,dec! a s 3 d e m o n s t r a t i o n to tirlp
"
""-
(u.
7
;;ia(l ;';.\ t ! j,rti:,lp>T,
arS:&s v;;ls
I-ic~.<de::.
LC
1 I , i,i.c.i pi.3 r.r.i::g
s p ~ ; c i a l i s t s i r i t:;ich
..
. . .
->.',sLa:,
) " '.
si::-s
t t a c ! c z : c ~ a : ~z~c ,o g r : . ~ p ~ : c r s~;i:~d
,
,..cor:ol.::~~ti, " . s . , ~ y X ~ r . c:xw~i:~:
t : ; ~I 3 i , . ~ r t . ~ ~ 1 . 1i;f
, ? ~ . ~ r i < : : ~ t t : 2~2rc, t~l ~~1 f i ~ > i c ,a5r ~ d tilt: 52it:i)nat
f<.,::;,~;~y~:,:~
in ~ ~ ~ ~ ~ > : : r **;it!?
~iti<
o k .! t ,f +nr
r&,~
c:>,i3~ifi+.?d
1.&~.'i
,jtc3k8: rl?,<i ~ ~ c ; : ~ : - ,;~E~::IC:<:*S,
i:: r,;:li
of El-:.. $c!,O!)(J t:>,,rr-.si.,i;>;r r r c o r r e ~ g.* -.
- .., i',l ,;. . ~
[xiI.:c,r
:i:iyi] d i ~ , r i ~ i o :! ~~; ::lit
f
.Ualit,:;
acc.,rtii::g
t.; l a n d I:;;..
prob;.ttms ailt.1 dl:.
,
s~:-a:.>I.~s
adjui;+xcr?ts.
r-:
+'.,
,..
...t 8 t::i<-;ific,iii,)r:, p a r t l c u l n r atft-r:licjrl
w:is :illid tc, tht: adapta'uilit). of t h a t p i r t of
:kt: art-a cinp1o)-ccf for c u l t i v a t i o n . Soil
&
-
F i g u r e 5.--From National Resources Board, Supplementary Report of the Land Planning Committee, Vol. 1, Pt. 6, Sec. 1, p. 1.
involving the p u r c h a s e of 20,552,000 a c r e s
a t a n e s t i m a t e d c o s t of $104 million. At
t h i s t i m e , negotiations w e r e in p r o g r e s s f o r
a c q u i s i t i o n i f 9 million a c r e s OFland on
206 of the 250 p r o j e c t s that had b e e n p r o posed.
A d m i n i s t r a t i v e r e s p o n s i b i l i t y fo r a l l p r o j e c t s was not y e t fixed, however. Working
u n d e r the P u b l i c Works A d m i n i s t r a t i o n
g r a n t s , the Land P o l i c y Section of t h e
A g r i c u l t u r a l A d j u s t m e n t A d m i n i s t r a t i o n , the
National P a r k S e r v i c e , the B u r e a u of Biol o g i c a l Survey, a n d the B u r e a u of Indian
Affairs w e r e responsible for selecting and
planning t h e p r o j e c t s and optioning the
land. T h e F e d e r a l E m e r g e n c y Relief Administration managed financial and legal
m a t t e r s and had the r e s p o n s i b i l i t y f o r r e s e t t l i n g f a m i l i e s under i t s D i v i s i o n o f R u r a l
Rehabilitation. T h i s s e p a r a t i o n of r e s p o n s i b i l i t i e s , t h e f a c t t h a t the F e d e r a l E m e r gency Relief A d m i n i s t r a t i o n a n d the S t a t e
R u r a l Rehabilitation C o r p o r a t i o n s w e r e
falling behind i n providing a s s i s t a n c e in
r e l o c a t i o n a n d e m p l o y m e n t of f a m i l i e s
whose land w a s p u r c h a s e d , and t h e withd r a w a l f o r d r o u g h t relief of a s u b s t a n t i a l
p o r t i o n of t h e funds a l l o t t e d to the p r o g r a m ,
brought on m a n y difficulties e a r l y i n 1935.
On May 1, 1935, a change c a m e with the
t r a n s f e r of r e s p o n s i b i l i t y f o r the l a n d u t i l i zation p r o g r a m , including the completion
of the' 206 land utilization p r o j e c t s a l r e a d y
begun, to t h e R e s e t t l e m e n t A d m i n i s t r a t i o n ,
e s t a b l i s h e d by Executive O r d e r , and t r a n s f e r r e d to the D e p a r t m e n t of A g r i c u l t u r e ,
in D e c e m b e r 1936.
The R e s e t t l e m e n t A d m i n i s t r a t i o n was to
c o m p l e t e t h e work begun by the A g r i c u l t u r a l
A d j u s t m e n t A d m i n i s t r a t i o n and i t s c o o p e r ating a g e n c i e s . F o r this p u r p o s e , it was
given a n i n i t i a l a l l o t m e n t of s o m e $48 m i l lion, s u p p l e m e n t e d by $18 m i l l i o n f r o m
Work Relief funds t o employ l a b o r f o r
development. Within t h e agency, a l l land
p u r c h a s e and land u s e planning work w a s
a s s u m e d by the Land Utilization Division.
Of t h e land utilization p r o g r a m , the R e s e t t l e m e n t A d m i n i s t r a t i o n r e p o r t e d (153):
The program of land use adjustment is the most
extensive one yet undertaken by the Federal Government for the acquisition of lands now in private
ownership. It is the only program motivated primarily by the aim of employing public land acquisition
a s a means of implementing a comprehensive program of land use planning in the interests of the
general welfare. It includes the most comprehensive
provision for wildlife conservation that has ever before
been made by the Nation; and it will afford, for the first
time, a well-planned system of recreational areas so
-
located and of such character that they may serve to a
maximum degree the principal centers of population,
particularly those classes of the urban population
which are not in a position to travel far to enjoy opportunities for outdoor recreation. The program embodies an extensive process of reforestation, which
will supplement materially the programs of the Federal Forest Service, and the States. I t is checking or
preventing erosion on millions of acres, and providing
methods of land use which will conserve soil resources. The program is allowing many thousands of
families to escape from locations where it is impossible to maintain a decent standard of living, and is
bringing relief to many thousands of other families by
providing employment in the development of the lands
being acquired.
In D e c e m b e r 1935, a s e p a r a t e Division
of R u r a l R e s e t t l e m e n t was s e t up i n the
R e s e t t l e m e n t A d m i n i s t r a t i o n to c a r e f o r
f a m i l i e s whose land was p u r c h a s e d . In t h i s
connection, the S u b s i s t e n c e H o m e s t e a d s
Division of t h e D e p a r t m e n t of the Lnterior,
w h o s e p r o g r a m included the r e s e t t l e m e n t
of f a m i l i e s , was t r a n s f e r r e d to the R e settlement Administration.
Resettlement P r o g r a m
R e s e t t l e m e n t of f a m i l i e s was a n e c e s s a r y
c o r o l l a r y of and s u p p l e m e n t to land p u r c h a s e a n d r e t i r e m e n t i n o r d e r to h a s t e n
a d j u s t m e n t s i n land u s e and t o i m p r o v e the
well-being of the d i s p l a c e d f a m i l i e s . A s
L. C. G r a y put i t ( 5 3 ) , "A m a r g i n a l land
p r o g r a m without a n a s s o c i a t e d p r o g r a m of
r e s e t t l e m e n t would b e k r g e l y futile; a p r o g r a m f o r e s t a b l i s h i n g new c o m m u n i t i e s o r
holdings u n r e l a t e d t o a l a r L planning a n d
land a d j u s t m e n t p r o g r a m would be m e a n ingless."
M o s t f a m i l i e s occupying p u r c h a s e d land
w e r e obliged to r e s e t t l e e l s e w h e r e . Bec a u s e the l a n d they owned was usually
p o o r a n d the m a r k e t v a l u e consequently
low, a n d b e c a u s e m o r t g a g e d e b t s and t a x e s
d u e had to b e paid b e f o r e a s a l e could b e
c o n s u m m a t e d , the p r o c e e d s f r o m s a l e s w e r e
u s u a l l y insufficient to e n a b l e the f a m i l i e s
to reestablish themselves satisfactorily
without a s s i s t a n c e . Without help, i t was
l i k e l y t h a t they would p u r c h a s e poor land,
a g a i n d r i f t into p o v e r t y , a n d r e p e a t the
c y c l e of o w n e r s h i p , debt, l o s s e s , f a i l u r e ,
and public r e l i e f .
T h e s e l e c t i o n of good land on which to
r e s e t t l e people was e s s e n t i a l . Also, f a r m s
needed to be of sufficient s i z e to provide
a d e q u a t e i n c o m e s . T h i s p h a s e of the land
p r o g r a m was of v i t a l i m p o r t a n c e .
' I A N D UTILIZATION A N D RESETTLEMENT PROJECTS
U. 5.
DEPARTMENT OF AGRICULTURE
Projects Established and Land Acquired,
1934-37
In the 4 y e a r s ended June 30, 1937, land
had b e e n p u r c h a s e d o r a p p r o v e d f o r p u r c h a s e f o r 98 a g r i c u l t u r a l a d j u s t m e n t p r o j e c t s , 30 Indian l a n d p r o j e c t s , 3 2 m i g r a t o r y
waterfowl p r o j e c t s , apd 4 6 r e c r e a t i o n a l
p r o j e c t s . Of t h e t o t a l of 9,149,000 a c r e s ,
p u r c h a s e had b e e n completed on 5,478,216
a c r e s . Changes in p r o j e c t plans and p r o b ? e m s of t i t l e c l e a r a n c e w e r e p a r t l y r e s p o n s i b l e f o r the t i m e r e q u i r e d f o r completion
of p u r c h a s e . F i g u r e 6 and table 2 show the
location and t y p e s of the 206 land u t i l i z a tion p r o j e c t s and the r e s e t t l e m e n t p r o j e c t s .
The f i g u r e and table i l l u s t r a t e the 2 m a j o r
a c t i v i t i e s - - a c q u i s i t i o n of l a n d and r e s e t t l e m e n t of r u r a l f a m i l i e s f r o m s u b m a r g i n a l
land.
Many p r o j e c t s initiated d u r i n g this p h a s e
of the p r o g r a m w e r e b e s t a d a p t e d to a d m i n i s t r a t i o n by a g e n c i e s o t h e r than t h o s e
NEG. ERS 3345-64 ( 1 1 )
ECONOMIC RESEARCH SERVICE
TABLE 2.--Land u:ilization projects planned and
approved for acquisition, by t m e , June 30, 1937
Type of project
Ltnd to
Number
of
projects
be
purchased
1,000
acres
-
Numher
&ricul;urd
adjustment ....
~ecreationall..............
i 6
hildlifel.
32
.................
lndianl....................
ToLd. .................
98
30
!
206
1
6,506
102
723
1,218
2
g,;~9
Projects trapsferred to jurisdiction o r the
Department of the Interior by Execuxive 0raers 1935
;o 1938.
Figures on final acquisitions througn 19L6 are
given in table 4 , p. 18.
Source: A n w ~ a lKerort ?f Administrator, Resettlement ALninlstration, 19313-37(=).
r e s p o n s i b l e f o r s e t t i n g them up. By S e p t e m b e r 1, 1937, a p p r o x i m a t e l y a m i l l i o n a c r e s
had b e e n t r a n s f e r r e d to o t h e r a g e n c i e s r e s p o n s i b l e f o r a d m i n i s t e r i n g p a r k s , wildlife
p r o g r a m s , and o t h e r r e s o u r c e u s e s .
T h e 98 a g r i c u l t u r a l a d j u s t m e n t p r o j e c t s
t h a t w e r e s t a r t e d i n 1934-37 m a y be divided
into 4 land u s e groups. Although d i f f e r e n t
f r o m e a c h o t h e r i n m a n y r e s p e c t s , the p r o j e c t s within t h e s e groups had in the 1 9 3 0 1 s ,
and still have, s e v e r a l common problems
r e l a t i n g to u s e and occupancy of land:
( 1 ) Eighteen of t h e s e p r o j e c t s , m a n y of
t h e m s m a l l , w e r e located i n the n o r t h e a s t e r n
States and s o u t h e r n p o r t i o n s of the C o r n
B e l t i n hilly a r e a s of poor s o i l , g r a d u a l
f a r m abando~nment, s t r a n d e d f a m i l i e s , and
b u r d e n s o m e public c o s t s f o r m a i n t e n a n c e
of r o a d s , s c h o o l s , and o t h e r public s e r v i c e s .
( 2 ) T e n of the p r o j e c t s , g e n e r a l l y of
m o d e r a t e s i z e , w e r e l o c a t e d i n the i s o l a t e d
and thinly s e t t l e d a r e a s of t h e c u t o v e r
regions of. the Lake States. The poor soils
and i s o l a t i o n contributed to low i n c o m e s ,
low s t a n d a r d s of living, and inadequate
public s e r v i c e s , often a t high c o s t s , f o r the
scattered r u r a l residents.
( 3 ) T h i r t y - f i v e of the p r o j e c t s , g e n e r a l l y
s m a l l to m o d e r a t e in s i z e , but including a
few l a r g e p r o j e c t s , w e r e i n t h e badly e r o d e d ,
poor f a r m l a n d , and c u t o v e r a r e a s of the
s o u t h e r n States f r o m Virginia to A r k a n s a s
and L o u i s i a n a . I m p r o p e r f a r m p r a c t i c e s ,
cultivation of l a n d of low productivity, land
too s t e e p o r too d r y f o r production of cultivated c r o p s , s m a l l f a r m s , and a f a i r l y
d e n s e , l o w - i n c o m e population dependent
upon the l a n d , m a d e a d j u s t m e n t s in u s e and
c o n s e r v a t i o n of land a n d r e l o c a t i o n and
r e h a b i l i t a t i o n of population difficult to
achieve.
( 4 ) T w e n t y - s i x m o d e r a t e to l a r g e p r o j e c t s , f o r m e d b e f o r e 1938, w e r e in the
N o r t h e r n P l a i n s a n d the Southwest, and 9
p r o j e c t s w e r e i n the C e n t r a l Mountain and
P a c i f i c S t a t e s . Insufficient r a i n f a l l , low p r o duction, and s m a l l p r i v a t e holdings--gene r a l l y too s m a l l f o r e i t h e r c r o p s o r l i v e stock f a r m i n g and i n t e r s p e r s e d with public
l a n d s - - w e r e c o m m o n p r o b l e m s in t h e s e
projects. A basic problem in many a r e a s
was the n e e d t o a d j u s t the u s e of rangeland
t o i t s g r a z i n g c a p a c i t y , a n d to provide f o r
i t s r e s t o r a t i o n and c o n s e r v a t i o n .
CHANGE O F STATUS O F THE PROGRAM UNDER THE BANKHEAD-JONES
FARM TENANT ACT
A m o r e p e r m a n e n t s t a t u s f o r t h e land
utilization p r o g r a m was provided with the
p a s s a g e of the B a n k h e a d - J o n e s F a r m Tenant
A c t in 1937. Under T i t l e 111, the S e c r e t a r y
of A g r i c u l t u r e was d i r e c t e d "to develop a
p r o g r a m of land c o n s e r v a t i o n and land
utilization, including the r e t i r e m e n t of l a n d s
which a r e s u b m a r g i n a l o r not p r i m a r i l y
s u i t a b l e f o r cultivation i n o r d e r t h e r e b y
to c o r r e c t m a l a d j u s t m e n t s in land use."4
Land to b e a c q u i r e d was l i m i t e d to poor
land u s e d i n a g r i c u l t u r e , except that i n t e r vening o r adjoining land could b e p u r c h a s e d
i n o r d e r to allow efficient c o n s e r v a t i o n and
u s e of t h e a r e a a s a whole. A r r a n g e m e n t s
had a l r e a d y b e e n m a d e f o r t r a n s f e r of
Indian, r e c r e a t i o n a l , and wildlife p r o j e c t s
to o t h e r a g e n c i e s , and no m o r e l a n d was
to b e a c q u i r e d f o r t h e s e p u r p o s e s .
T h e p r o j e c t s a u t h o r i z e d w e r e defined i n
3 m a j o r groups:
~ ~ r i c u l t u r Pa rlo j e c t s : P u r c h a s e and i m p r o v e m e n t of land which i s s u b m a r g i n a l i n
i t s p r e s e n t u s e a s a m e a n s of developing
a n e c o n o m i c a l l y sound p a t t e r n of land u s e
f o r a m a x i m u m n u m b e r of f a m i l i e s .
&Bankhead-Jones Farm Tenant Act, Public Law,
No. 210, 75th Cong., 1st Sess., July 22, 1937.
I s o l a t e d S e t t l e r P r o j e c t s : P u r c h a s e of
s c a t t e r e d f a r m s on s u b m a r g i n a l land to
p e r m i t t h e effectuation of c e r t a i n economies
i n public a d m i n i s t r a t i o n and a d j u s t m e n t
to s o m e b e t t e r a d a p t e d u s e s u c h a s f o r e s t r y ,
game conservation, grazing, recreation, o r
combination of s u c h uses,
Water C o n s e r v a t i o n P r o j e c t s : P u r c h a s e
of land and c o n s t r u c t i o n of w a t e r developm e n t s in a r e a s w h e r e the c o n s e r v a t i o n of
w a t e r i s e s s e n t i a l t o p r o p e r land use.
Under the b r o a d p o w e r s of T i t l e 111, the
r e e s t a b l i s h m e n t of a l a r g e - s c a l e F e d e r a l
a c q u i s i t i o n p r o g r a m was possible. Section
34 provided that:
To carry out the provisions of this title, there is
authorized to be appropriated not to exceed $10,000,000
for the fiscal year ending June 30, 1938, and not to
exceed $20,000,000 for each of the two fiscal years
thereafter.
Actually, the funds a p p r o p r i a t e d did not
equal the a u t h o r i z a t i o n and thus the p r o g r a m f e l l s h o r t of the o r i g i n a l intent. T e n
m i l l i o n d o l l a r s was m a d e a v a i l a b l e f o r the
f i r s t y e a r , but i n t h e following y e a r s the
a p p r o p r i a t i o n was c u t to $5 million.
A p p r o x i m a t e l y 80 p e r c e n t of the money
a v a i l a b l e in t h e f i r s t y e a r was allotted f o r
land p u r c h a s e in the G r e a t P l a i n s a r e a f o r
a
p r o j e c t s planned and options t a k e n d u r i n g
the 2 p r e c e d i n g y e a r s , and about 2 0 p e r c e n t
was allotted f o r blocking i n existing p r o j ects i n o t h e r p a r t s of t h e c o u n t r y and c o m pleting p r o j e c t s a l r e a d y s t a r t e d . N e a r l y
a l l new p r o j e c t s w e r e s i m i l a r to t h e a g r i cultural adjustment projects established
p r i o r to f i s c a l y e a r 1938.
In the y e a r ending J u n e 30, 1938, the
acquisition of 2,464,673 a c r e s was c o m pleted by c l e a r a n c e of t i t l e s and p a y m e n t s
f o r land. T h i s brought the total a c t u a l l y
bought and paid f o r s i n c e the beginning of
the land u t i l i z a t i o n p r o g r a m t o 7,942,889
a c r e s . In addition, plans w e r e approved
f o r a c q u i s i t i o n of 2,192,742 a c r e s a t a n
e s t i m a t e d c o s t of $8,111,540-approximately
$3.70 a n a c r e . By f a r the l a r g e s t a c r e a g e
planned f o r p u r c h a s e w a s i n the n o r t h e r n
and s o u t h e r n plains.
Assignment to the Bureau of Agricultural
Economics
S e c r e t a r y ' s M e m o r a n d u m No. 733, of
S e p t e m b e r 1, 1937, provided f o r the t r a n s f e r
of the land u t i l i z a t i o n p r o g r a m , a s continued
and r e v i s e d by T i t l e I11 of the BankheadJones F a r m Tenant Act, f r o m the F a r m
S e c u r i t y A d m i n i s t r a t i o n 5 t o t h e B u r e a u of
A g r i c u l t u r a l E c o n o m i c s Ifas r a p i d l y a s m a y
be a d m i n i s t r a t i v e l y feasible."
Since the F a r m S e c u r i t y A d m i n i s t r a t i o n
had a n existing o r g a n i z a t i o n f o r land p u r c h a s e and d e v e l o p m e n t , i t s e e m e d d e s i r a b l e
to allow t h e t r a n s f e r of the p r o g r a m to
take place g r a d u a l l y . M e m o r a n d a of u n d e r standing outlined the r e s p o n s i b i l i t i e s of the
2 a g e n c i e s in conduct of t h e p r o g r a m f r o m
S e p t e m b e r 1, 1937, to July 1, 1938, including
a d m i n i s t r a t i o n and a c q u i s i t i o n of land, and
r e l o c a t i o n of f a m i l i e s on old p r o j e c t s and
a s s i s t a n c e to f a m i l i e s o n new p r o j e c t s
e s t a b l i s h e d u n d e r T i t l e 111.
In this connection, the B u r e a u was a s signed a d m i n i s t r a t i v e r e s p o n s i b i l i t y f o r 13 1
p r o j e c t s involving a n a r e a of 8,142,666
a c r e s . T h i s included 25 p r o j e c t s s c h e d u l e d
f o r t r a n s f e r a s of J u n e 30, 1938, to o t h e r
a g e n c i e s . By June 30, 1938, a total of
2,147,000 a c r e s i n r e c r e a t i o n a l , wildlife,
and Indian g r a z i n g p r o j e c t s had b e e n t r a n s f e r r e d to c o o p e r a t i n g F e d e r a l a g e n c i e s f o r
m a n a g e m e n t i n t h e s e s p e c i a l u s e s ( t a b l e 3).
Acquisition of s o m e of this land had not b e e n
c o m p l e t e d , but c o m m i t m e n t s had been m a d e
f o r i t s p u r c h a s e . A f e w of the a g r i c u l t u r a l
a d j u s t m e n t p r o j e c t s w e r e consolidated and
s o m e t r a n s f e r r e d to o t h e r a g e n c i e s , r e ducing the n u m b e r f r o m 145 ( t a b l e 3 ) , to
128 (fig. 7 ) .
Transfer to Soil Conservation Service
In O c t o b e r 1938, s u b m a r g i n a l land a c quisition, development, and m a n a g e m e n t
functions provided f o r u n d e r T i t l e I11 w e r e
t r a n s f e r r e d b y the S e c r e t a r y of A g r i c u l t u r e
to the Soil C o n s e r v a t i o n S e r v i c e , to b e adm i n i s t e r e d a s a p a r t of i t s p r o g r a m f o r
c o n s e r v a t i o n and i m p r o v e d u s e of a g r i c u l t u r a l land."and
u s e adjustment proje c t s that i n 1937 h a d b e e n placed u n d e r
the a d m i n i s t r a t i o n of the B u r e a u of A g r i c u l t u r a l E c o n o m i c s w e r e a l s o a s s i g n e d to
t h e Soil C o n s e r v a t i o n S e r v i c e .
Land that had b e e n a c q u i r e d i n c o o p e r a tion with o t h e r F e d e r a l a g e n c i e s - - B u r e a u
of Indian A f f a i r s , National P a r k S e r v i c e ,
a n d B u r e a u of Biological S u r v e y (now the
F i s h and Wildlife S e r v i c e ) - - w a s v i r t u a l l y
a l l t r a n s f e r r e d t o t h e s e a g e n c i e s by O c t o b e r
1938. T r a n s f e r s of a n u m b e r of p r o j e c t s to
o t h e r F e d e r a l and State a g e n c i e s had a l r e a d y
b e e n m a d e by t h i s date. T h i s l e f t t h e Soil
Conservation Service responsible f o r adm i n i s t r a t i o n of s o m e 7.1 m i l l i o n a c r e s of
land i n 105 p r o j e c t s , developed m a i n l y a s
agricultural land use adjustment projects.
Approved p r o j e c t p l a n s f o r a c q u i s i t i o n of
about 2.2 m i l l i o n a c r e s , chiefly i n the G r e a t
P l a i n s S t a t e s u n d e r the new a u t h o r i t y of
T i t l e 111, a l s o w e r e t r a n s f e r r e d . A cons i d e r a b l e n u m b e r of options on land had
a l r e a d y b e e n taken. P a r t of this land w a s
f o r e n l a r g e m e n t of p r o j e c t s s t a r t e d b e f o r e
1937. Consolidation of p r o j e c t s in t h e i n t e r e s t of m o r e efficient m a n a g e m e n t l a t e r
r e d u c e d the n u m b e r of p r o j e c t s in the inv e n t o r y of 1938.
Land Acquired Under Title I11 of the Act
The Farm Security Administration was formed
September 1, 1937, as successor to the Resettlement Administration, to administer Titles I and I1
and related sections of Title I V of the Act authorizing
resettlement aid to farmers in submarginal areas,
and farm loans for purchase of farms by tenant
farmers.
In the e a s t e r n , s o u t h e r n , a n d m i d w e s t e r n
r e g i o n s , the land a c q u i s i t i o n p r o g r a m u n d e r
T i t l e I11 of the B a n k h e a d - J o n e s F a r m Tenant
Secretary of Agriculture's Memorandum No. 785,
October 16, 1938.
'~.L-EU
? . - - S t a t u s of land u ' , i l i z a t i m p r o j e c t s planned and approved f a r a c q u i s i t i o n , June 30, 1933
--
-
Reassigned o r t o
be r e a s s i g n e d t o
other agencies
Item
-
Remaining under
? r o g r a n agency f o r
administrafion
Total
~- -
Pro.:'ects E s t a b l i s h e d a s of LTune 30, 1937,
under B n e r g e ~ c yAcLs of 1933-35:
1,000
1,000
1,000
...................
A g r i c u l t u r a l adjust,ment
I n d i a n land ...............................
S e c r e a t i o r i a l ..............................
!Yild.Life ..................................
T o t a l ...................................
P r o j e c t s E s t a b l i s h e d a s of June 30, 1938,
under T i t l e 111:'
A g r i c u l t u r s l and o t h e r ....................
Grand t o t a l .............................
25 proj<:cti;, i n c 1 u d i ~ -597,909 a c r e s , were scheduled f o r t r a n s f e r . Deduction of t h e s e p r o j e c t s would
reduce t h e n u a t e r of o r i g i n a l p r o j e c t s under t h e a d m i n i s t e r i n g agency t o 80 p r o j e c t s comprising 6,492,875
acrez.
T i t l e I11 of the Bankhead-Jones Farm Tenant Act of J u l y 17, 1937.
i n c l u d e s acreage i n new p r o j e c t s and t h e a d d i t i o n s t o o l d o r o r i g i n a l p r o j e c t s . There had been 5 con? ; o l i d a t i o n s of nearby p r o j e c t s and d i s c o n t i n u a n c e of 2 p r o j e c t s , which reduced t h e number of p r o j e c t s from
t h e t o t a l r e p o r t e d e a r l i e r f o r o l d and new p r o j e c t s .
'
Sources: Compiled from annual r e p o r t s and r e c o r d s on t h e land u t i l i z a t i o n program by t h e Bureau of
A g r i c u l t u r a l Econcjmics and t h e Resettlement Administration, 1936 t o 1938. The f i g u r e s i n p a r t a r e approximations s i n c e c h r o n o l o g i c a l records a r e n o t always uniform, a r e sometimes incomplete, and a r e of d i f f e r e n t
anquai d a t e s .
Act was d i r e c t e d to a l a r g e extent toward
completing p r o j e c t s established b e f o r e the
p a s s a g e of the Act. However, in the West,
chiefly i n the G r e a t P l a i n s , s e v e r a l l a r g e
new p r o j e c t s w e r e s t a r t e d a s well a s l a r g e
additions being m a d e to old proj,ects.
T h e p r a c t i c e in the e a s t , south, and m i d w e s t was to have m o r e and s m a l l e r p r o j e c t s ;
f a r t h e r west t h e r e was a tendency to conc e n t r a t e on a c q u i r i n g l a r g e r a r e a s and
enlarging e s t a b l i s h e d p r o j e c t s . One r e a s o n
f o r this was that s u b m a r g i n a l lands w e r e
a c q u i r e d i n the west mainly f o r c o n s e r v a tion p u r p o s e s , including the r e s t o r a t i o n to
g r a s s l a n d of cropland unsuited to cultivation. In o t h e r a r e a s , the acquisition p r o g r a m was d i r e c t e d m o r e toward the estab,l i s h m e n t of d e m o n s t r a t i o n a l and o t h e r
multiple-use a r e a s .
Through F e b r u a r y 1943, 2,439,511 a c r e s
w e r e a c q u i r e d under the new a u t h o r i z a t i o n
in T i t l e 111. In a l l , about 2.6 million a c r e s ,
o r about 2 2 p e r c e n t of the total land
utilization p r o j e c t a c r e a g e , w e r e a c q u i r e d
under this authority. In addition, title c l e a r a n c e was completed under the Soil Cons e r v a t i o n S e r v i c e f o r about a million a c r e s
f o r which c o m m i t m e n t s w e r e made under the
o r i g i n a l p r o g r a m a f t e r the t r a n s f e r in 1938.
Acquisition had c e a s e d by 1943, except f o r
s m a l l a r e a s i n p r o c e s s of acquisition f o r
blocking i n existing a r e a s .
O w n e r s h i p and occupancy data on t r a c t s
p u r c h a s e d under T i t l e I11 show the following breakdown of o w n e r s h i p a t t i m e of p u r chase:
Percent
Individuals . . . . . . . . . . . . . . . . . . . . . . .
Estates, trustees, or guardians. . . . . . . . . .
Commercial banks . . . . . . . . . . . . . . . . . .
Federal and joint stock land banks. . . . . . . .
Insurance companies. . . . . . . . . . . . . . . . .
Other corporations . . . . . . . . . . . . . . . . . .
County and State Governments . . . . . . . . . .
76.1
10.0
1.5
4.1
0.9
3.7
3.7
The p e r c e n t a g e of t r a c t s occupied by
o w n e r s was 14.5, and ranged f r o m 6.7
p e r c e n t i n the Southern P l a i n s Region to
35.2 p e r c e n t in the N o r t h e a s t e r n Region.
Tenants occupied 13.8 p e r c e n t of a l l t r a c t s ,
and showed the g r e a t e s t p e r c e ~ t a g ein the
S o u t h e a s t e r n and South C e n t r a l Regions,
L O C A T I O N O F A R E A S WHERE L A N D W A S ACQUIRED
U N D E R THE L A N D U T I L I Z A T I O N P R O G R A M
AGRICULTURAL ADJUSTMENT PROJECT
AREAS WHERE LAND WAS ACQUIRED
F I S ~ A LYEARS 1935 TO 1942
U. I. D E P A R T M E N T OF A G R I C U L T U R E
N E C . ERS slab-64 ( 1 0 )
ECONOMIC RESEARCH SERVICE
Figure 7
and t h e s m a l l e s t i n the Mountainand P a c i f i c
Regions. S q u a t t e r s occupied only 0.7 p e r c e n t
of a l l t r a c t s
O w n e r s of 30 p e r c e n t of t h e p u r c h a s e d
t r a c t s r e s i d e d o u t s i d e t h e State i n which
(170).
t h e land was l o c a t e d . O u t - o f - S t a t e o w n e r ship
was
relatively
low
in
the
3
e a s t e r n r e g i o n s , and r e l a t i v e l y high in
the
northern
plains
and
the
southwest.
LAND UTILIZATION RESEARCH
Background Studies
Many of t h e b a s i c i d e a s of t h e l a n d u t i l i zation p r o g r a m g r e w out of r e s e a r c h w o r k
i n the B u r e a u of A g r i c u l t u r a l E c o n o m i c s ,
the F o r e s t S e r v i c e , t h e B u r e a u of C h e m i s t r y and Soils, and a n u m b e r of S t a t e
a g r i c u l t u r a l e x p e r i m e n t s t a t i o n s and universities.
Cropland Requirements
R e s e a r c h i n the 1 9 2 0 ' s and 1 9 3 0 ' s t o
f u r n i s h e s t i m a t e s of c u r r e n t and p r o s p e c t i v e
c r o p l a n d a c r e a g e s and to d e t e r m i n e the
r e l a t i o n to a c r e a g e r e q u i r e m e n t s of s u c h
f a c t o r s a s population t r e n d s a n d changes
i n p r o d u c t i o n t e c h n i q u e s , c o n s u m p t i o n , and
f o r e i g n t r a d e w a s done b y 0. E . B a k e r (9,
10). S i m i l a r w o r k w a s done b y t h e ores st
Service in estimating prospective requirem e n t s f o r f o r e s t products.
The average a c r e a g e requirements f o r
h a r v e s t e d c r o p s u s e d f o r d o m e s t i c cons u m p t i o n and e x p o r t i n 19 30- 32, including
m a i n t e n a n c e of d r a f t a n i m a l s , w e r e e s t i m a t e d to b e only about 15 m i l l i o n a c r e s
l e s s than the a v e r a g e of 352 million r e quired i n 1925-29, a period of g e n e r a l
p r o s p e r i t y ; m o s t of this difference was due
to reduced e x p o r t s . M e a s u r e d i n t e r m s of
the amount of reduction n e c e s s a r y to a b s o r b
accumulated c a r r y o v e r s quickly, and to
r e s t o r e a p r i c e parity i n the e a r l y 19301s,
cropland h a r v e s t e d in 1930-32 was e s t i mated to g r e a t l y exceed n o r m a l r e q u i r e m e n t s , possibly by a s much a s 50 to 60
million a c r e s . In 1932, 361 million a c r e s
of cropland w e r e h a r v e s t e d . In 1933, l a r g e l y
a s a r e s u l t of c r o p - a c r e a g e - c o n t r o l p r o g r a m s , the a c r e a g e of c r o p s had dropped
30 million, to 331 million a c r e s .
F o r u s e in planning land p u r c h a s e and
c r o p - a c r e a g e - control p r o g r a m s , the Land
Planning C o m m i t t e e of the National Res o u r c e s Board projected a c r e a g e needs of
c r o p s h a r v e s t e d i n the f u t u r e f o r d o m e s t i c
consumption and exports a s follows
(146):
year
Million acres
and o t h e r Lake States (l5,66). In Wisconsin
t h e r e was the r u r a l zoning p r o g r a m which
was a f o r e r u n n e r of land classification,
and a n e c e s s a r y foundation f o r the land
utilization p r o g r a m . This work helped init i a t e needed-action.
Studies of Land Classification and Values
In addition to the growing recognition of
the e x i s t e n c e of s u b m a r g i n a l land and r u r a l
s l u m s , t h e r e w e r e 2 significant a t t a c k s on
the problem of land values. One was a study
of s a l e s p r i c e s a s a b a s i s f o r f a r m l a n d
a p p r a i s a l undertaken in 1922 (60). The
o t h e r was a study of the relatior- of income
to land value ( 3 ) T
. h e s e 2 studies w e r e
useful in understanding land valuation, p r o ductivity, and r e l a t e d economic questions
i n the 1920's and 1930's. Significant work
i n land classification, types of f a r m i n g ,
and land utilization a n a l y s i s was done in the
N o r t h e r n G r e a t P l a i n s Region by M. L.
Wilson and a s s o c i a t e s , Montana State A g r i c u l t u r a l College
Many s e t t l e r s in the w e s t e r n G r e a t Plains
lacked the background and experience to
judge the adaptability of land f o r c r o p
f a r m i n g o r to follow the d r y f a r m i n g p r a c t i c e s that would work m o s t efficiently in
the s e m i a r i d r e g i o n s . In a 1923 study of
land u s e and s e t t l e m e n t on 550 f a r m s of
the T r i a n g l e a r e a , n o r t h - c e n t r a l Montana
p e r s o n s c l a s s i f i e d a s f a r m e r s on
58 f a r m h o m e s t e a d s i n a typical township
l i s t e d s o m e unusual f o r m e r occupations.
T h e r e w e r e 2 deep s e a d i v e r s , 6 m u s i c i a n s ,
2 b u t c h e r s , 2 m i l l i n e r s , 2 draymen, 2
wrestlers, 2 blacksmiths, 2 schoolteachers,
2 physicians, and 1 b a r t e n d e r .
An outstanding study of 6 communities
in s e l e c t e d counties of different regions
was m a d e in 1940 and 1941. Results w e r e
published a s s e p a r a t e bulletins i n 1942 and
1943 under the g e n e r a l t i t l e s of "Cont e m p o r a r y Culture of R u r a l Communities.''
The study included counties r e p r e s e n t a t i v e
of the lower Piedmont of Georgia and
w e s t e r n K a n s a s , both of which had d e veloped g r e a t a g r i c u l t u r a l instability (12,
169). Land utilization p r o j e c t s w e r e l a t e r
e s t a b l i s h e d i n each of t h e s e a r e a s .
(171).
State and Local Land Use Surveys
Another type of r e s e a r c h c o n s i s t e d of
intensive qualitative l o c a l s u r v e y s to analyze
and a p p r a i s e problems a s s o c i a t e d with
poor-quality f a r m l a n d . Examples a r e the
economic s t u d i e s in regional, State, and
l o c a l a r e a s m a d e by the Division of Land
Economics, B u r e a u of A g r i c u l t u r a l E c o n o m i c s , in cooperation with various States.
Among the i m p o r t a n t e a r l y studies w e r e
those by John D. Black, University of
Minnesota; George S. Wehrwein, University
of Wisconsin; Gladwin T. Young, P u r d u e
University; and David Weeks, University of
California.
T h e r e w e r e a l s o the e a r l y studies of land
utilization and s e t t l e m e n t by the Division
of Land E c o n o m i c s , B u r e a u of A g r i c u l t u r a l
Economics. T h e s e studies had a n i m p o r t a n t
p a r t in laying the foundation f o r improved
land u s e by s o m e 30 o r m o r e State, r e gional, and l o c a l land utilization, s e t t l e m e n t , and land acquisition p r o j e c t s f r o m
1919 to 1939. M o r e m e n w e r e influential
and helpful i n the development of the p r o g r a m than can be named in a l i m i t e d
space.
The p r o b l e m s c r e a t e d by land s a l e s and
development of poorly adapted cutover
f a r m s r e c e i v e d e a r l y attention i n Minnesota
(a),
R e s e a r c h a s a P a r t of P r o j e c t Planning
and Development
The p r o j e c t f o r m a t i o n phase of the land
utilization p r o g r a m was c a r r i e d out with the
h e l p of continuing s t u d i e s of s p e c i f i c land
u s e p r o b l e m s and the m e a n s f o r t h e i r s o l u tion. R e s e a r c h i n land u t i l i z a t i o n d u r i n g t h i s
period b e c a m e l e s s a c a d e m i c and of g r e a t e r
p r a c t i c a l u s e and i m p o r t a n c e . T h i s changed
e m p h a s i s b r o u g h t the r e s e a r c h e r s f a c e to
f a c e with both o p p o r t u n i t i e s and p e r i l s , a s i s
a p p a r e n t f r o m a r e v i e w of the m a n y publications on land c l a s s i f i c a t i o n , economic
a r e a a n a l y s i s , r u r a l development, a n d land
u s e planning that r e s u l t e d
118).
I n a l l , s o m e 500 o r m o r e s u c h s t u d i e s
w e r e m a d e i n the p e r i o d 1933-42. Many
land c l a s s i f i c a t i o n and o t h e r e c o n o m i c
s t u d i e s m a d e by the B u r e a u of A g r i c u l t u r a l
E c o n o m i c s , the R e s e t t l e m e n t A d m i n i s t r a tion, and o t h e r F e d e r a l and S t a t e a g e n c i e s
s e r v e d a s a b a s i s f o r developing d e t a i l e d
plans and p r o p o s a l s f o r p r o j e c t s . An exa m p l e i s the land u s e s u r v e y conducted by
the B u r e a u of A g r i c u l t u r a l E c o n o m i c s , the
B u r e a u of C h e m i s t r y and Soils, and the
F o r e s t S e r v i c e i n c o o p e r a t i o n with the
G e o r g i a A g r i c u l t u r a l E x p e r i m e n t Station
i n 1932-34 (67). Data and m a p s a s s e m b l e d
in t h i s s u r v e y w e r e b a s i c t o t h e s e l e c t i o n
and planning of 6 land utilization p r o j e c t s
in G e o r g i a i n t h e y e a r s 1934- 3 8 - - P i e d m o n t ,
N o r t h e a s t G e o r g i a , C o a s t a l Flatwoods,
Lakeland F l a t w o o d s , North C e n t r a l G e o r g i a ,
L i m e s t o n e Valleys, and Uplands. In a d d i tion, d a t a f r o m t h i s s u r v e y w e r e u s e d i n the
planning a n d d e v e l o p m e n t of 4 r e c r e a t i o n a l
and p a r k p r o j e c t s i n Georgia.
Land c l a s s i f i c a t i o n s and f o r e s t m a p s
w e r e m a d e on the b a s i s of f i e l d work f o r
4 counties i n G e o r g i a ( J a s p e r , J o n e s , Madis o n , and P u t n a m ) , and f o r s a m p l e blocks
and s t r i p s i n o t h e r counties. Methods d e veloped w e r e u s e d i n the extension of s u c h
work to o t h e r a r e a s . S o i l - s u r v e y m a p s and
a i r photographs w e r e a v a i l a b l e f o r p a r t of
the 4-county a r e a , and w e r e u s e d a s a b a s e
f o r r e c o r d i n g field o b s e r v a t i o n s .
The p r o c e d u r e s developed b y Glen L.
F u l l e r , W. T . F u l l i l o v e , A. H. Hasty, and
o t h e r a s s o c i a t e s of the B u r e a u o f C h e m i s t r y
and Soils and the G e o r g i a E x p e r i m e n t
(z,
Station, 1932- 34, i n classifying a n d mapping
land u s e , s o i l s , s l o p e , e r o s i o n , a n d o t h e r
p h y s i c a l a n d e c o n o m i c f a c t o r s m a r k e d one
of the beginning s t a g e s i n land capability
c l a s s i f i c a t i o n . The f o r e s t land i n v e n t o r i e s
m a d e i n 1932-34 by A. R. S p i l l e r s , JV. E.
Bond, and o t h e r s of the F o r e s t S e r v i c e
u n d e r the l e a d e r s h i p of I. F. E l d r i d g e l i k e w i s e a i d e d i n the r e f i n e m e n t of t i m b e r r e s o u r c e s s u r v e y s , then in the i n i t i a l s t a g e s
in the s o u t h e r n States.
O t h e r e x a m p l e s of r e s e a r c h b a s i c to the
p r o g r a m w e r e the s t u d i e s of t h e L a k e
S t a t e s c u t o v e r region, i n c o o p e r a t i o n with
the u n i v e r s i t i e s a n d a g r i c u l t u r a l e x p e r i m e n t s t a t i o n s of Michigan, Minnesota, and
Wisconsin; a n d v a r i o u s i n v e s t i g a t i o n s i n
Indiana, M i s s o u r i , the G r e a t P l a i n s (including Montana), C a l i f o r n i a , and o t h e r w e s t e r n
S t a t e s . Among the p r o j e c t s r e s u l t i n g f r o m
p r i o r r e s e a r c h w e r e t h o s e i n New York,
New England, G e o r g i a , Minnesota, Michigan,
Wisconsin, Indiana, South Dakota, K a n s a s ,
Montana, and New York. T h i s l i s t i s only
p a r t i a l , b e c a u s e c o m p l e t e r e c o r d s of p r o j e c t
planning and s e l e c t i o n f o r a l l S t a t e s a r e not
available.
A few S t a t e s had s t a r t e d buying p o o r ,
unused, a n d abandoned f a r m l a n d a n d conv e r t i n g i t to f o r e s t , r e c r e a t i o n , wildlife,
a n d c o n s e r v a t i o n u s e s . O t h e r S t a t e s had
p r o j e c t s f o r s e t t i n g a s i d e State-owned land
f o r p a r k s , wildlife r e f u g e s , and f o r e s t s .
Among t h e s e S t a t e s w e r e New York, Indiana,
Ohio, Pennsylvania, C a l i f o r n i a , Michigan,
a n d Wisconsin.
The e m p h a s i s i n the p r o g r a m o n i m p r o v ing t h e g e n e r a l p a t t e r n of land u s e and of
life in r u r a l a r e a s required determination
of w h e r e and how the p a t t e r n might b e i m proved. H e r e again, p r e l i m i n a r y r e s e a r c h
was r e q u i r e d f o r the b e t t e r o r i e n t a t i o n of
l a t e r , m o r e intensive land u s e adjustment
work. Land u s e s u r v e y s , m a d e with the
c o o p e r a t i o n of l o c a l c o m m i t t e e s and offic i a l s , aided i n the s e l e c t i o n of s u i t a b l e
land a r e a s f o r land p u r c h a s e p r o j e c t s a n d
i n p l a n s f o r development a n d u s e .
E X T E N T AND COST O F LAND ACQUISITION AND P R O J E C T DEVELOPMENT
Land Acquisition
A c r e a g e a c q u i r e d u n d e r the land u t i l i z a tion p r o g r a m f r o m 1933 to 1946 totaled
11,299,000 a c r e s ( t a b l e 4 ) . T h i s included
o v e r 37,000 individual p r o p e r t i e s .
Slightly o v e r 2.6 m i l l i o n a c r e s w e r e a c q u i r e d d i r e c t l y u n d e r T i t l e 111 of the Bankh e a d - J o n e s F a r m Tenant Act a t a c o s t of
$1 1.1 million, and n e a r l y 8.7 m i l l i o n a c r e s
u n d e r p r e c e d i n g a u t h o r i t y a t a c o s t of about
$36.4 m i l l i o n ( t a b l e 5). T o t a l c o s t , e x c l u s i v e
TMU 4.--:Iun~ter 3 f 3 c r e s ;ind percentages of land
acquire;, f i s c a l y e a r s !935-46
F i s c a l year'
Percentage of t o t a l
Percent
1,000 a c r e s
3.2
1~2.2
33.1
21.8
5.8
13.0
7.3
2.4
1.1
0.1
T o t a l .....
' 11,295
The policy of acquiring land by v o l ~ . l t a r ~
s a l e was continued throughout the p r o g r a m .
F r i e n d l y condemnations and c o u r t actions
w e r e r e q u i r e d to c l e a r only a limited numb e r of land t i t l e s , and w e r e not used a s a
m e a n s of forcing owners to s e l l .
I
100. il
'
There was n e a r l y always a l a g between t h e y e a r
t h a t land was optioned and t h e y e a r it was pllrchased
and t h e c a s e c l o s e d . Reporting time d i f f e r e d i n 1942
and 1943 from t h a t i n o t h e r y e a r s .
Limited t o land f s r which t i t l e c l e a r a n c e was
completed and t h e c a s e c l o s e d .
Acreages a c q u i r e d by F e d e r a l , S t a t e , and o t h e r
a g e n c i e s , w i t h r e l a t e d i n f o r m a t i o n on t h e i r use and
rndnagement, a r e shown i n appendix A, which e x p l a i n s
d i f f e r e n c e s i n number and s i z e of p r o j e c t s t h a t
appeared i n v a r i o u s annual r e p o r t s on t h e land prog r y , 1934-63.
Less t h a n 0 . 1 p e r c e n t .
'
S o u r c e s : A ~ l u a lReports o f t h e Chief, S o i l Conserv a t i o n S e r v i c e , 1935-46.
of public domain and of a p p r a i s i n g , negotiating, and title c l e a r a n c e , was $47.5
million, o r a n a v e r a g e of about $4.40 p e r
a c r e f o r the land purchased.
Land value accounted f o r o v e r t h r e e f o u r t h s of the c o s t and, a s was to be expected, was the l a r g e s t single c o s t i t e m in
each region of the country. Value of i m provements accounted f o r l e s s than onefifth of the c o s t , and m e r c h a n t a b l e t i m b e r
and m i n e r a l s f o r the r e m a i n d e r , o r about
5 p e r c e n t . A v e r a g e c o s t p e r a c r e was highe s t in the Upper M i s s i s s i p p i Valley and
lowest in the P a c i f i c Northwest.
The t o t a l a c r e a g e included about 480,000
a c r e s of public domain land, which was
t r a n s f e r r e d to p r o j e c t s f o r the purpose
of blocking in t h e i r a r e a s . T h e s e t r a n s f e r s
w e r e not included in calculating the a v e r a g e
c o s t p e r a c r e f o r the total a r e a a c q u i r e d .
Between 1943 and 1946, 148,000 a c r e s
w e r e a c q u i r e d . This land had been optioned
b e f o r e 1943, but final acquisition was d e layed by title c l e a r a n c e p r o b l e m s and o t h e r
factors.
P r o j e c t Development
Land
improvement
and development
included g e n e r a l land t r e a t m e n t , s t r u c t u r a l
i m p r o v e m e n t s , provision of t r a n s p o r t a t i o n
f a c i l i t i e s , c o n t r o l of e r o s i o n , flood control,
w a t e r s t o r a g e , and development f o r f o r e s t r y ,
r e c r e a t i o n , and wildlife. Buildings and
fences w e r e removed; old r o a d s no-longer
needed w e r e blocked up; new r o a d s w e r e
built where needed; suitable a r e a s w e r e
seeded to g r a s s o r planted i n t r e e s ; f o r e s t
s t a n d s w e r e improved and protected f r o m
f i r e ; gullies w e r e stopped; t e r r a c e s , stock
ponds, and d a m s w e r e built; and s t r e a m
channels w e r e widened and cleaned. (See
appendix C.) All of this work r e q u i r e d
much l a b o r and equipment.
Virtually a l l of the development work
was accomplished with l a b o r f r o m the
vicinity of each p r o j e c t ; a l a r g e number
of w o r k e r s w e r e f u r n i s h e d by the Works
P r o g r e s s Administration.
Many of the
w o r k e r s had to be t r a i n e d a s they worked.
As t h e s e m e n a c q u i r e d s k i l l s , many were
a b l e to find p r i v a t e employment (130,153,
156). Employment was provided in the f i r s t
few y e a r s f o r 50,000 o r m o r e w o r k e r s on
relief, and f o r 13,000 m e n whose f a r m s
had been p u r c h a s e d . By June 1939, $67
million had b e e n s p e n t f r o m relief allotments f o r land i m p r o v e m e n t and development, plus about $5 million f r o m public
works funds.
Additional development c o s t s , up to the
t i m e of t r a n s f e r of a l l remaining p r o j e c t s
to r e g u l a r F e d e r a l and State public land
management agencies in 1954, a r e e s t i m a t e d
to have been approximately $30 million,
making a total development c o s t of $102.5
million. With the p u r c h a s e c o s t of $47.5
million, this brought the total c o s t to $150
million, o r about $13.50 p e r a c r e .
F i e l d , regional, and Washington staffs
w e r e employed to c a r r y on a l l phases of
the p r o g r a m , and considerable s u m s were
paid f o r office r e n t a l , t r a n s p o r t a t i o n and
t r a v e l , equipment, supplies, s a l a r i e s , and
o t h e r i t e m s . T h e s e a d m i n i s t r a t i v e c o s t s of
the agencies guiding the p r o g r a m could not
be allocated among the various activities.
TABLE 5.--Acreages and c o s t of land acquired under t h e land u t i l i z a t i o n program, 1935-46
Number of
cases o r
tracts
Type of program
1
1
Nmber
Acreage
acquired
Total cost
of land
purchased
1,000 a c r e s
1,000 d o l l a r s
O r i g i n a l o r emergency program 1935-37 ........
New o r T i t l e I11 program 1938-46 .............
27,199
10,147
8,676
2,623
36,382
11,075
.........................
37,346
11,299
47,457
T o t a l 1935-46.
F i n a l r e p o r t s on land a c q u i s i t i o n under t h e land u t i l i z a t i o n programs i n 1946 show
t h a t t h e t o t a l acreage acquired was 11,298,537 a c r e s .
The average c o s t p e r acre f o r t h e t o t a l acreage acquired t o 1946, excluding 480,000
a c r e s of public-domain land t r a n s f e r r e d t o land u t i l i z a t i o n p r o j e c t s , was about $4.40
per acre.
Sources: (156)and mimeographed r e p o r t s of t h e S o i l Conservation S e r v i c e a s follows:
S t a t u s of T i t l e Clearance Under t h e '0ld"Land U t i l i z a t i o n Program, Dec. 31, 1942.
S o i l Conservation S e r v i c e , Jan. 15, 1943. (Mi~neographed.)
S t a t u s of T i t l e Clearance Under T i t l e I11 Bankhead-Jones Farm Tenant Act, Feb. 28,
1943. Land Acq. D i v . , S o i l Conservation S e r v i c e , Mar. 4 , 1943; and Reports of June 30,
and Oct 23, 1943. (Mimeographed. j
An Analysis of t h e Land Acquisition Program Under T i t l e I11 of t h e Bankhead-Jones
; and Type, Use, PreFarm Tenant Act. S o i l Conservation Service M. P. 26, Aug. 1942 (172)
vious Ownership and Tenure S t a t u s of Land Acquired Under T i t l e I11 of t h e Bankhead-Jones
Farm Tenant Act, Apr 1942. (Mimeographed. )
TABLE 6.--Location of' land a c q u i r e d , by g e n e r a l
.
.
geographic r e g i o n s , 1934-16
The portion allocable to the land utilization p r o g r a m could not be p r e c i s e l y d e t e r mined, and i s not a l l included i n the totals
given h e r e .
Costs of land development and of s h i f t s
in u s e of land m a y be c o n s i d e r e d to be
limited to a few i t e m s , o r m a y e n c o m p a s s
many d i r e c t and i n d i r e c t outlays in addition
to the a c t u a l development of the land, depending upon the p u r p o s e f o r which c o s t s
a r e d e t e r m i n e d . Expenditures incident to
r e t i r i n g and developing s u b m a r g i n a l land,
relocating f a m i l i e s , a d m i n i s t r a t i o n , s u p e r vision, and maintenance a r e c o s t s not
f o r m a l l y accounted for.
Location of Projects
The l a r g e s t a c r e a g e s of s u b m a r g i n a l
lands a c q u i r e d w e r e i n the N o r t h e r n P l a i n s ,
Southwest, and Southern Regions ( t a b l e 6 ) .
T h e s e regions contained the l a r g e s t a r e a s
of poor o r s u b m a r g i n a l cropland. Fifty
p e r c e n t of the a c r e a g e a c q u i r e d was i n the
N o r t h e r n P l a i n s . The Southern Region
ranked next with a l m o s t 2 0 p e r c e n t , and
the Southwest with about 15 percent. A v e r a g e a c r e a g e p e r t r a c t in the Southwest
Acreage
1
...............
..............
......
...............
T o t a l . ..............
Yorthern.
Southern..
Southwest... ............
Northern p l a i n s 2 . .
C e n t r a l Mountain ........
Pacific..
LO00 a c r e s
Percentage
of t o t a l
?ercent
613
5.4
11,299
100.0
' ~ o r t h e r n Region: Northeastern, Corn B e l t , and
Lake S t a t e s .
Southern Reeion: Appalachian, S o u t h e a s t e r n , and
Delta S t a t e s .
Southwest and Southern P l a i n s : Arizona, New
Mexico, Oklahoma, and Texas.
Norzhern P l a i n s : North and South Dakota,
Nebra-ka, Kansas, Montana, Wyoming, and
Colorado.
C e n t r a l Mountain Region: Idaho, Nevada, and
Utah.
P a c i f i c Region: C a l i f o r n i a , Oregon, and Washington.
' ~ o s t of t h e land acquired i n t h e Northern P l a i n s
was e a s t o f t h e RocQ Mountains i n t h e d r y l a n d
p l a i n s p o r t i o n s of Colorado, Kansas, Montana,
Nebraska, North and South Dakota, and Wyoming.
Note: Tables i n Appendix A group a c r e a g e s by t h e
10 farm production r e g i o n s i n s t e a d o f t h e 6 geog r a p h i c regions. By using t h e S t a t e acreages i n t h e
appendix t a b l e s ; t o t a l s f o r t h e geographic r e g i o n s
may be r e a d i l y assembled.
was o v e r 650 a c r e s , m o r e than double
the a v e r a g e f o r the e n t i r e country. Two
l a r g e t r a c t s i n New Mexico ( o r i g i n a l l y
Spanish land g r a n t s ) , one containing 86,205
and t h e o t h e r 49,940 a c r e s , contributed
s u b s t a n t i a l l y to the l a r g e a v e r a g e s i z e p e r
t r a c t i n the Southwest. A v e r a g e a c r e a g e
p e r t r a c t i n the N o r t h e r n Region was l e s s
than half the 3 0 0 - a c r e a v e r a g e f o r a l l
regions.
Use of Project Land
A g r i c u l t u r a l land u s e a d j u s t m e n t p r o j e c t s m a d e up roughly 9.5 million a c r e s
of the 11.3 million a c r e s a c q u i r e d by the
F e d e r a l Government under the land u t i l i z a tion p r o g r a m . The remaining 1.8 million
a c r e s w e r e used f o r wildlife a r e a s , p a r k s ,
r e c r e a t i o n a l a r e a s , and Indian land p r o j ects
It i s e s t i m a t e d that a t the t i m e
of p u r c h a s e 2.5 million a c r e s of t h i s land
w e r e i n cropland, 6.1 million a c r e s i n
(161).
p a s t u r e and rangeland, and 2.7 million
a c r e s i n f o r e s t land. Much of the cropland
was idle, o r p r a c t i c a l l y s o , e s p e c i a l l y in
the Southeastern States.
At the beginning of World War 11, s e v e r a l
l a r g e a r e a s w e r e t r a n s f e r r e d to defense
a g e n c i e s f o r m i l i t a r y t r a i n i n g and other
r e l a t e d p u r p o s e s . Most of this land was
l a t e r r e t u r n e d to the management of the
civilian a g e n c i e s .
The p r i m a r y u s e s of the p r o j e c t land in
1961 a r e e s t i m a t e d to have been: Grazing
(including Indian r a n g e ) , 7 million a c r e s ;
f o r e s t , 2.5 million a c r e s ; and s p e c i a l u s e s ,
s u c h a s p a r k s and wildlife a r e a s , 1.8 m i l lion a c r e s . Many r e c r e a t i o n a l and wildlife
a r e a s a r e f o r e s t e d , but a r e i n a r e s e r v e d
s t a t u s and not u s e d f o r c o m m e r c i a l t i m b e r
production. The l a r g e a r e a s u s e d p r i m a r i l y
f o r grazing and c o m m e r c i a l f o r e s t s have
many improved recreational sites s e t aside
within them. Wild g a m e p r e s e r v e s a r e u s e d
extensively f o r s e a s o n a l hunting, fishing,
and o t h e r u s e s .
RELOCATION O F FAMILIES RESIDING ON LANDS A C Q U I R E D ~
Of the 24,148 f a m i l i e s initially r e s i d i n g on
land p u r c h a s e d f o r the land utilization p r o g r a m , 87 p e r c e n t w e r e r e l o c a t e d by J a n u a r y
1, 1942 ( 1 . T h r e e - f o u r t h s of t h e s e f a m i l i e s
r e l o c a t e d without Government a s s i s t a n c e . A
m o r e 'striking f a c t i s that only 9 p e r c e n t of
those r e l o c a t e d w e r e r e s e t t l e d on the f a r m s
o r r e s e t t l e m e n t h o m e s t e a d s c r e a t e d f o r this
p u r p o s e . The o t h e r f a m i l i e s r e c e i v e d help in
the f o r m of loans, relief g r a n t s , and a d v i s o r y
s e r v i c e ingetting r e e s t a b l i s h e d on l a n d m o r e
suitable f o r f a r m i n g than that f r o m which
they moved. The situation i s s u m m a r i z e d i n
the following tabulation:
Old program, prior to Bankhead-Jones Farm Tenant Act:
Total number initially residing on projects. . . . . . . . . . . . . . . . . . . . . . . . . 15,634
Total number relocated. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13,719
By own efforts.
10,497
By resettlement on farms or
resettlement homesteads
1,237
993
With loan or rehabilitation grant only. . . . .
Other aid and guidance . . . . . . . . . . . . . .
992
Toremain
597
134
Life leases
Permanent maintenance personnel. . . . . . .
230
33
Substitute occupancy privileges. . . . . . . . .
200
Other.
To be relocated
1,318
By own efforts.
372
By resettlement on farms or resettlement
32
homesteads . . . . . . . . . . . . . . . . . . . .
73
W i t h rehabilitation loan or grant only. . . . .
By transfer to other agencies. . . . . . . . . .
29
...................
...........
..............................................
......................
.........................
..........................................
...................
7 ~ h i section
s
on relocation of families, and those on relation of the program to local governments (p. 23) and
appraisal of the program (p. 35) are in part from an unpublished manuscript, "Federal Rural Land Acquisition
in the United States, 1930-42," by Margaret R. Purcell, Agricultural Economist, Bureau of Agricultural Economics, Dec. 1945.
I
1
I
II
l
I
I
i
I
1
I
~
I
...........
With guidance or other aid.
74
Aid not yet determined . . . . . . . . . . . . . .
738
New program, after Bankhead-Jones Farm Tenant Act:
Total number of families initially residing on 151 projects . . . . . . . . . . . . . 8,514
Total number relocated. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7,296
By own efforts. . . . . . . . . . . . . . . . . . . . 5,608
By resettlement on farms or resettlement
homesteads
574
With rehabilitation loan or grant only.
585
By transfer to other agencies.
261
With Farm Security Administration
189
guidance only
With other aid
79
Number to remain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 275
36
With life leases . . . . . . . . . . . . . . . . . . .
As permanent maintenance personnel. . . . .
171
With substitute occupancy pr!$ege.
.....
11
.
.
.
.
.
.
.
.
.
.
.
.
.
1
.
.
57
Other..
2
To be relocated . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 943
....................
....
.........
...................
....................
........
Data from mimeographed annual reports no longer readily available in libraries and files.
Compensation and a s s i s t a n c e f o r p e r s o n s
affected by r e a l p r o p e r t y acquisition h a s
r e m a i n e d a continuous p r o b l e m in a g r i c u l t u r a l and o t h e r p r o g r a m s . The 88th Cong r e s s , 2nd S e s s i o n , m a d e a new study of
this p r o b l e m in 1964, the r e s u l t s of which
a r e s u m m a r i z e d in C o m m i t t e e P r i n t No.
3 1, House of R e p r e s e n t a t i v e s C o m m i t t e e
on Public Works.
Relocationunder the Resettlement
Administration
Many f a c t o r s w e r e r e s p o n s i b l e f o r the
s m a l l proportion of f a m i l i e s who moved
to
government-sponsored
resettlement
f a r m s o r h o m e s t e a d s . A n u m b e r of f a m i l i e s
f r o m s u b m a r g i n a l land p u r c h a s e a r e a s used
t h e i r payments f r o m the s a l e of land to buy
f a r m s o r h o m e s e l s e w h e r e , and r e q u i r e d no
Government a s s i s t a n c e in relocating. Some
o t h e r s , i n a r e a s w h e r e a l t e r n a t i v e s to f a r m ing w e r e available, a s in the New England
and Middle Atlantic S t a t e s , found jobs i n
urban a r e a s . And throughout the country,
s o m e e l d e r l y people r e t i r e d f r o m f a r m i n g
altogether when bought out, and went to
live in town o r with r e l a t i v e s e l s e w h e r e .
But F e d e r a l land p u r c h a s e was a slow
p r o c e s s , with final closing of the s a l e and
payment frequently long delayed. Many of
the displaced f a m i l i e s w e r e not a s s i s t e d
b e c a u s e of delay in completing the r e s e t t l e m e n t f a r m p r o j e c t s , and b e c a u s e of s t r i c t
r u l e s f o r s e l e c t i o n of f a m i l i e s .
In Wisconsin, f o r example, eligibility f o r
a f u l l - t i m e c o m m e r c i a l f a r m in a r e s e t t i e m e n t p r o j e c t was l i m i t e d to n o r m a l f a m i l i e s
(husband, wife, and c h i l d r e n ) , of which the
head was o v e r 21 and under 50 y e a r s of a g e ,
with f a r m i n g experience. The f a m i l y had
to give evidence of r e s o u r c e f u l n e s s and
ability to e n t e r into community life, and
give r e a s o n a b l e a s s u r a n c e of meeting the
c o s t s of r e s e t t l e m e n t . Of the 147 f a m i l i e s
in t h e c e n t r a l Wisconsin p u r c h a s e a r e a ,
only 58 m e t the conditions. F a r m e r s eligible
for part-time subsistence f a r m s were r e q u i r e d to have the s a m e g e n e r a l qualifications a s t h o s e f o r f u l l - t i m e f a r m s except
t h a t t h e head could be a s old a s 55. Eighteen
f a m i l i e s m e t t h e s e qualifications. Aged
people unable to provide f o r t h e m s e l v e s ,
and old-age and public reLicf c a s e s p e r m a nently in need of a i d w e r e eligible f o r
retirement
homesteads.
Nine f a m i l i e s
qualified. This left 85 f a m i l i e s who w e r e
not qualified to r e m a i n i n the p r o j e c t a r e a .
that could o t h e r w i s e m e i t a l l r e quirements for full-time f a r m s o r subs i s tence h o m e s t e a d s had f a m i l y heads above
the a g e l i m i t of 50 y e a r s . O t h e r s who needed
r e t i r e m e n t h o m e s t e a d s w e r e not eligible
(68,
69).
-S i m i l a r situations in o t h e r p a r t s of the
L a k e States, especially in the i s o l a t e d
s e t t l e m e n t s of the cutover a r e a s (94,
i n the South, and in the G r e a t P l a i n s sugg e s t that r e s e t t l e m e n t qualifications m a y
have been too high. While r e s e t t l e m e n t
p r o j e c t s a t the o u t s e t , w e r e planned to
a s s i s t f a m i l i e s moving f r o m s u b m a r g i n a l
land, objectives of the p r o g r a m b e c a m e
much b r o a d e r a s t i m e went on. The l a r g e
n u m b e r s of eligible applicants competing
f o r r e l a t i v e l y few r e s e t t l e m e n t units led
any
z),
p r o j e c t m a n a g e m e n t s to be s e l e c t i v e , p e r haps to the d e t r i m e n t of f o r m e r occupants
of s u b m a r g i n a l land.
Many r e s e t t l e m e n t p r o j e c t s i n the Appalachian States w e r e e s t a b l i s h e d p r i m a r i l y
to c a r e f o r s p e c i a l groups s t r a n d e d in r u r a l
a r e a s by the closing of depleted m i n e and
f o r e s t i n d u s t r i e s . However, l a r g e a r e a s of
land p u r c h a s e d under the land utilization
p r o g r a m had not been used p r i m a r i l y f o r
f a r m i n g , and t h e i r p u r c h a s e f o r f o r e s t and
recreational purposes displaced relatively
few f a r m e r s . Also, m a n y of those w h o w e r e
d i s p l a c e d had b e e n s q u a t t e r s d u r i n g the d e p r e s s i o n y e a r s , and thus w e r e not eligible
f o r r e s e t t l e m e n t f a r m s . O t h e r s could not
qualify b e c a u s e of a g e o r physical condition.
Although the g r e a t e s t a c r e a g e of s u b m a r ginal land a c q u i r e d was i n t h e P l a i n s S t a t e s ,
only 15 p e r c e n t of a l l f a m i l i e s whose land
was bought r e s i d e d t h e r e . Of t h e s e f a m i l i e s ,
only 5 p e r c e n t w e r e relocated on r e s e t t l e m e n t f a r m s . S o m e 73 p e r c e n t r e l o c a t e d by
t h e i r own e f f o r t s , and the r e s t r e c e i v e d
s o m e Government a s s i s t a n c e . As the land
utilization p r o g r a m did not get underway i n
the P l a i n s until 1934, a f t e r drought a n d d u s t
had a l r e a d y d i s r u p t e d m u c h of the r e g i o n ' s
economy, i t i s l i k e l y that m a n y of t h o s e r e locating by t h e i r own e f f o r t s moved out of
the P l a i n s a r e a e n t i r e l y . C o n s i d e r a t i o n w a s
given to the e s t a b l i s h m e n t of s u b s i s t e n c e
h o m e s t e a d c o m m u n i t i e s i n the M i s s i s s i p p i
Delta s p e c i f i c a l l y f o r v i c t i m s of the Dust
Bowl. L a r g e a c r e a g e s of Delta land w e r e
p u r c h a s e d f o r r e s e t t l e m e n t p u r p o s e s , but
the r e s e t t l e m e n t of G r e a t P l a i n s f a r m e r s
was not a t t e m p t e d on t h i s land, although a
few did m o v e t o the Delta a r e a .
I n o t h e r i n s t a n c e s , f a r m o p e r a t o r s who
had lived f o r y e a r s i n the s a m e neighborhood did not wish t o b r e a k t h e i r old a s s o ciations and move to new c o m m u n i t i e s , o r
t o take up a different type of f a r m i n g . S o m e
of t h e s e f a r m e r s m a d e a r r a n g e m e n t s t o
remain near their f o r m e r f a r m s , occas i o n a l l y becoming w o r k e r s on land u s e
p r o j e c t s , o r moving t o n e a r b y towns.
Approximately 30 p e r c e n t of the 58 f a m i l i e s bought out i n C a l i f o r n i a , A r i z o n a , and
Utah w e r e moved to r e s e t t l e m e n t f a r m s o r
h o m e s t e a d s . A l t e r n a t i v e opportunities w e r e
a p p a r e n t l y a v a i l a b l e f o r t h b s e not a s s i s t e d
b y the F e d e r a l Government.
It was i n the 3 Lake S t a t e s that the g r e a t e s t
p r o p o r t i o n of f a m i l i e s r e s e t t l e d on F e d e r a l
p r o j e c t s a f t e r selling t h e i r s u b m a r g i n a l land
t o the Government. This i s e x p l a i n e d p a r t l y
by the f a c t that r u r a l z o n i n g p r o g r a m s w e r e
already i n operation inthese States. Reloca-
tion of f a r m e r s whose land had b e e n zoned a s
unsuitable f o r f a r m i n g had b e e n going f o r w a r d b e f o r e initiation of the F e d e r a l land
p r o g r a m . The s u b m a r g i n a l and r e s e t t l e m e n t
p r o g r a m s thus w e r e d e s i r a b l e supplements
t o the State p r o g r a m s f o r blocking i n publicly
owned a r e a s , and helping s c a t t e r e d s e t t l e r s
to r e l o c a t e .
It should be s t r e s s e d that a l a r g e p r o p o r t i o n of the f a m i l i e s on the l a n d s being bought
f o r land utilization p r o j e c t s had wholly i n adequate i n c o m e s . The a v e r a g e g r o s s c a s h
i n c o m e of t h e s e f a m i l i e s i n 1934 was only
about $300, including a n a v e r a g e of $72 obtained f r o m relief and o t h e r outside paym e n t s . F o r t y - s e v e n p e r c e n t of the f a m i l i e s
w e r e on r e l i e f . The land utilization p r o g r a m
was essentially a humanitarian program,
s i n c e one of i t s a i m s was to help f a m i l i e s to
m a k e t r a n s i t i o n f r o m a h o p e l e s s l y unfavora b l e e n v i r o n m e n t to one offering p r o m i s e
of a m o r e adequate livelihood.
Relocation Under the Bankhead-Jones
F a r m Tenant Act
I n 1937, the f a r m tenant p u r c h a s e p r o g r a m w a s e s t a b l i s h e d u n d e r the F a r m S e c u r i t y A d m i n i s t r a t i o n to handle s e t t l e m e n t and
f a r m tenant p u r c h a s e p r o g r a m s authorized
by the B a n k h e a d - J o n e s F a r m Tenant Act.
T h i s was a type of r e s e t t l e m e n t p r o g r a m ,
providing individual tenant f a r m e r s and
f a r m e r s displaced by G o v e r n m e n t land a c q u i s i t i o n p r o g r a m s with s u p e r v i s e d c r e d i t
f o r buying and developing f a r m s . R u r a l r e s e t t l e m e n t and s u b s i s t e n c e h o m e s t e a d p r o i e c t s a l r e a d y begun w e r e a l s o a s s i g n e d t o the
F a r m S e c u r i t y A d m i n i s t r a t i o n f o r completion and m a n a g e m e n t . F o r s e v e r a l y e a r s ,
e s p e c i a l l y f r o m 1937 to 1941, a s s i s t a n c e was
g i v e n t o f a m i l i e s f r o m s u b m a r g i n a l land
p r o j e c t s who w e r e s e e k i n g t o r e l o c a t e on
farms.
Since u s u a l l y a y e a r o r m o r e e l a p s e d b e t w e e n G o v e r n m e n t p u r c h a s e of s u b m a r g i n a l
land and the r e l o c a t i o n of f a m i l i e s , the numb e r of f a m i l i e s r e l o c a t e d b y J a n u a r y 1942, a s
shown i n t h e t a b u l a t i o n o n p p . 20-21, indicates
s a t i s f a c t o r y p r o g r e s s . However, n e a r l y a l l
data describe resettlement projects according t o function, s u c h a s r u r a l r e s e t t l e m e n t ,
s t r a n d e d group, e t c . It i s difficult t o pick out
the d a t a applying only t o t h o s e people who
came f r o m submarginal land, especially i n
the e a r l i e r y e a r s (134, 138,142).
The F a r m S e c u r i t y A d m i n i s t r a t i o n p r o vided advice and s u c h financial a s s i s t a n c e a s
budget and eligibility r e s t r i c t i o n allowed to
f a m i l i e s d i s p l a c e d by the p u r c h a s e p r o g r a m
c a r r i e d out by t h e Soil C o n s e r v a t i o n S e r v i c e
u n d e r T i t l e 111 of the Bankhead- Jones F a r m
T e n a n t Act.
In the N o r t h e r n P l a i n s , t h e F a r m S e c u r i t y
A d m i n i s t r a t i o n provided a f u l l - t i m e , e x p e r i enced s p e c i a l i s t to a s s i s t f a m i l i e s i n finding
suitable new l o c a t i o n s . In G r e e n e County,
Ga., t h e F a r m S e c u r i t y A d m i n i s t r a t i o n and
the Soil C o n s e r v a t i o n S e r v i c e c o o p e r a t e d
in working out a n a d j u s t m e n t i n t h e p a t t e r n
of l a n d u s e and occupancy. T h e F a r m Secur i t y A d m i n i s t r a t i o n p u r c h a s e d land in t h e
p r o j e c t a r e a that was s u i t a b l e f o r continued
f a r m i n g , and t h e Soil C o n s e r v a t i o n S e r v i c e
p u r c h a s e d t h e l a n d that was unsuitable f o r
cultivation. Adjustment was a c c o m p l i s h e d
w i t h the d i s p l a c e m e n t of a m i n i m u m n u m b e r
of f a m i l i e s f r o m t h e p r o j e c t a r e a (jg, 156).
In t h i s p r o j e c t and o t h e r p r o j e c t s i n G e o r g i a ,
a n u m b e r of f a m i l i e s whose l a n d w a s bought
w e r e permitted to retain title o r lifetime
r i g h t s t o t h e i m p r o v e m e n t s , s u c h a s buildi n g s and f e n c e s , and a s m a l l amount of land
for subsistence purposes, thereby eliminating t h e i r need f o r relocation.
4 s t u d y m a d e b y the B u r e a u of A g r i c u l t u r a l E c o n o m i c s indicated that f a m i l i e s d i s placed by this p h a s e of the land p u r c h a s e
p r o g r a m in the Southeast w e r e a s well o r
b e t t e r off then b e f o r e (134). A. s u r v e y
in t h e N o r t h e a s t l e d to s i m i l a r conclusions
(42).
RELATION O F LAND UTILIZATION PROGRAM TO LOCAL GOVERNMENTS
w e r e c l e a r l y g r e a t e r , the r e a l i t y of the d i s a d v a n t a g e s , though often intangible and
t h e r e f o r e difficult t o m e a s u r e , should not be
i g n o r e d . It should be r e m e m b e r e d that m o s t
of t h e p r o b l e m s of t h i s p e r i o d could be t r a c e d
t o t h e depletion of land r e s o u r c e s . T h i s f a c t
m a d e c h a n g e s inevitable. T h e r o l e of t h e
G o v e r n m e n t in the land utilization p r o g r a m
w a s t o m a k e t h e s e changes o r d e r l y and a s
productive as possible, causing the least disadvantage t o individuals who had t o move
f r o m t h e i r land and h o m e s .
As a r e s u l t of the p u r c h a s e of land and
t h e r e s e t t l e m e n t in o t h e r a r e a s of m a n y of
t h e people living on t h e p u r c h a s e d land,
m a n y institutional a d j u s t m e n t s w e r e r e quired. T h e e a s i e s t of t h e s e a d j u s t m e n t s
to identify w e r e t h o s e in l o c a l g o v e r n m e n t
financing. Information on t h a t p h a s e i s
available f r o m r e c o r d s , r e p o r t s , and publications.
In a r e a s w h e r e road and school s e r v i c e s
w e r e c o s t l y b e c a u s e of s p a r s e r u r a l p o p u l a tion, and w h e r e during t h e t h i r t i e s the p r o p e r t y t a x was diminishing b e c a u s e of t a x
delinquency a n d r e v e r s i o n to public o w n e r ship, F e d e r a l a c q u i s i t i o n of l a n d took away
s t i l l m o r e of the t a x b a s e . Offsetting f a c t o r s
w e r e the s c a l i n g downof total c o s t s of public
s e r v i c e s i n p u r c h a s e a r e a s and i m p r o v e d inc o m e s of p e r s o n s r e m a i n i n g in the a r e a .
In addition to t h e s e m e a s u r a b l e and wellrecognized influences of s u b m a r g i n a l land
p u r c h a s e and t h e attendant r e s e t t l e m e n t ,
t h e r e w e r e m a n y intangible v a l u e s involved.
L o n g - e s t a b l i s h e d r e l a t i o n s h i p s of f a m i l i e s
to p a r t i c u l a r t r a c t s of land w e r e a l t e r e d
and e n t i r e c o m m u n i t i e s w e r e s o m e t i m e s
d i s r u p t e d . While m o s t of t h e s e changes w e r e
voluntary and c l e a r l y had beneficial e f f e c t s ,
t h e r e was c o n s i d e r a b l e p e r s o n a l l o s s and
s o c i a l c o s t in the uprooting of f a m i l i e s and
t h e i r m o v e m e n t to new and o f t e n u n f a m i l i a r
places where different historical backgrounds p r e v a i l e d , and w h e r e t h e s o c i a l
p a t t e r n s w e r e s o m e t i m e s difficult to b e c o m e u s e d to. New methods of f a r m i n g
s o m e t i m e s had to b e l e a r n e d , both by t h o s e
who moved and t h o s e who r e m a i n e d . T h e s e
disadvantages m u s t b e weighed a g a i n s t t h e
advantages i n a p p r a i s i n g the p r o g r a m , a n d
while t h e advantages in m o s t i n s t a n c e s
Examples of the Impact of Land Purchase
on Local Farming and Government
Some of the s o c i a l changes brought about
b y t h e l a n d utilization p r o g r a m a r e i l l u s t r a t e d b y t h e l a n d u s e s h i f t s which took
p l a c e in the G r e a t P l a i n s S t a t e s , w h e r e
drought and d u s t s t o r m s i n the 1930's had
a g g r a v a t e d longstanding land u s e p r a c t i c e s
and w h e r e t h e g r e a t e s t a c r e a g e was a c q u i r e d
u n d e r the F e d e r a l land p r o g r a m . In w e s t e r n
N o r t h and South Dakota, t h e F e d e r a l p u r c h a s e of s e v e r a l h u n d r e d thousand a c r e s
of land r e s u l t e d i n the r e t i r e m e n t to g r a s s
of c a s h - c r o p land that was no l o n g e r s u i t a b l e f o r cultivation, a n d i n a g e n e r a l shift
f r o m c a s h - c r o p f a r m i n g to a combination
of l i v e s t o c k a n d f e e d - c r o p f a r m i n g . The
Government-purchased
land was m a d e
a v a i l a b l e to r a n c h e r s through c o o p e r a t i v e
g r a z i n g a s s o c i a t i o n s , making i t p o s s i b l e
f o r the o p e r a t o r s r e m a i n i n g in the a r e a to
e n l a r g e t h e i r units to a point w h e r e m o r e
a d e q u a t e l e v e l s of living could b e m a i n tained.
23
An i d e a of t h e magnitude of t h e l a n d s h i f t s
involved and of t h e s o c i a l a d j u s t m e n t s r e q u i r e d c a n b e obtained f r o m r e s e a r c h w o r k
of H a n s e n , H a g g e r t y , and Voelker i n Billings
County, N . Dak.,in 1939 (63). T h e cornmi%'s i o n e r s f r o m t h i s Coui-ity p r o p o s e d t h a t t h e
Federal
Government
purchase certain
countv-owned land and t a x d e l i n a u e n t l a n d
i n o r d e r to block i n a r e a s a l r e a d y i n F e d e r a l o w n e r s h i p . T h e need f o r d e v e l o p m e n t
of a r e a s of sufficient s i z e f o r e f f e c t i v e
g r a z i n g a n d l i v e s t o c k o p e r a t i o n s was a p p a r e n t f r o m t h e f a c t s t h a t t h e population
of t h e County h a d declined 20 p e r c e n t s i n c e
1930, a n d that t a x a b l e v a l u e s had d e c l i n e d
66 p e r c e n t s i n c e 1930. T a x delinquency h a d
a l s o grown, until in 1939 i t was n e a r l y 50
p e r c e n t of t h e t o t a l levy.
At the t i m e the above-mentioned r e s e a r c h
was u n d e r t a k e n , t h e F e d e r a l G o v e r n m e n t
a l r e a d y had u n d e r option n e a r l y 150,000
a c r e s of land, a n d although t h e taxing units
would c o l l e c t delinquent t a x e s a t t h e t i m e of
c o m p l e t i o n of p u r c h a s e , p e r m a n e n t withd r a w a l of t h i s l a n d f r o m t h e t a x r o l l s m a d e
it desirable that local governments be r e o r g a n i z e d to m e e t t h e conditions which
would follow.
As a r e s u l t of t h e r e s e a r c h into land u s e
a d j u s t m e n t s a n d r e s u l t i n g county f i s c a l
p r b b l e r n s , i t was r e c o m m e n d e d t h a t t h e
F e d e r a l G o v e r n m e n t p u r c h a s e 65,000 a d d i t i o n a l a c r e s to round out t h e Billings County
adjustrhent a r e a and to make possible adj u s t m e n t s i n s i z e a n d u s e of o p e r a t i n g u n i t s ,
and t h a t t h e County l e a s e s u c h tax-delinquent
land a s was not a c q u i r e d by F e d e r a l p u r c h a s e o n l o n g - t e r m l e a s e s , t h e r e b y assiring
a flow of r e v e n u e to m e e t l o c a l g o v e r n m e n t
n e e d s . Following t h e s e r e c o m m e n d a t i o n s ,
additional land was purchased and steps
taken f o r improved management and leasing
of B i l l i n g s County, N . Dak., land.
In t h e c a s e of t h e Milk R i v e r P r o j e c t i n
Valley, P h i l l i p s , a n d B l a i n e Counties, Mont.,
s o m e 953,000 a c r e s of l o w - g r a d e f a r m l a n d
and g r a s s l a n d w e r e p u r c h a s e d a n d 672 i s o l a t e d r e s i d e n t s r e s e t t l e d on 3 i r r i g a t i o n
p r o j e c t s within t h e p u r c h a s e a r e a s . A l t e r a tions of t h i s m a g n i t u d e n a t u r a l l y l e d to m a n y
l o c a l p r o b l e m s which r e q u i r e d c o l l e c t i v e
a c t i o n (62).In P h i l l i p s County, t h e p u r c h a s e
of 301,500 a c r e s led t o a l o s s of t a x a b l e
value of $375,628, o r 7.5 p e r c e n t of t h e
county t a x b a s e . T h e i m p o r t a n c e of t h i s l o s s
i s e m p h a s i z e d b y the f a c t that t h e r e d u c t i o n
i n t h e t a x a b l e v a l u e of 14 s c h o o l d i s t r i c t s
r a n g e d f r o m 10 to 50 p e r c e n t . While the
p r o b l e m s growing out of G o v e r n m e n t p u r c h a s e cannot b e m i n i m i z e d . t h i s County h a d
long had s e v e r e f i n a n c i a l p r o b l e m s . T h e
a v e r a g e t a x e s annually c o l l e c t e d i n the
count; f r o m 1926 to 1934 o n l a n d s p u r c h a s e d a m o u n t to but $24,500. Approxim a t e l y 30 p e r c e n t of e a c h a n n u a l l e v y a f t e r
1929 b e c a m e delinquent. Upon F e d e r a l p u r c h a s e , a t o t a l of $95,000 i n d e l i n q u e n t t a x e s
was paid.
Population c h a n g e s a f t e r p u r c h a s e a f fected many school d i s t r i c t s , decreasing
c o s t s i n s o m e , a n d i n c r e a s i n g the b u r d e n
i n o t h e r s . Consolidation of a l l d i s t r i c t s i n
P h i l l i p s County into a county unit s y s t e m
w a s r e c o m m e n d e d , i n o r d e r to equalize
school burdens and facilitate improvement
of s c h o o l s . Closing of s o m e s c h o o l s t h r e w
a n a d d i t i o n a l b u r d e n o n t h o s e l e f t open, but
b y c l o s i n g 8 s c h o o l s i n 7 d i s t r i c t s , i t was
e s t i m a t e d t h a t a n n u a l s c h o o l c o s t s would
b e r e d u c e d b y a p p r o x i m a t e l y $5,000.
A p p r o x i m a t e l y 849,000 a c r e s of public
d o m a i n l a n d w e r e included i n g r a z i n g d i s t r i c t s i n t h e Milk R i v e r P r o j e c t A r e a , i n
addition to t h e land p u r c h a s e d . In 1939, i t
was e s t i m a t e d t h a t t h e t o t a l g r a z i n g l a n d
i n the p r o j e c t would yield about $33,000 ( a t
$0.20 p e r f o r a g e a c r e ) , c o m p a r e d with
a n n u a l t a x r e t u r n s on p u r c h a s e d l a n d of
$24,500.
E x p e r i e n c e i n t h e M o r t o n County land
use adjustment a r e a in southwesternKansas
was s i m i l a r . T h e r e the Government purc h a s e d 107,000 a c r e s of f a r m l a n d f o r r e t u r n to g r a z i n g , i t s o r i g i n a l u s e . T h e p u r c h a s e d a r e a r e p r e s e n t e d 20 p e r c e n t of t h e
t o t a l t a x a b l e l a n d of t h e county, a n d 9 p e r c e n t of t h e t a x a b l e v a l u a t i o n of $4,653,000.
Valuation of l a n d p u r c h a s e d w a s $41 5,000.
Of t h e 5 townships involved, 4 h a d t h e i r t a x
b a s e s r e d u c e d by 2 to 14 p e r c e n t . F o r t y
p e r c e n t of t h e a c r e a g e p u r c h a s e d l a y i n
J o n e s t o w n s h i p w h e r e p u r c h a s e s amounted
t o 65 p e r c e n t of t h e t a x a b l e a c r e a g e , and
50 p e r c e n t of t h e t a x b a s e . Revenue l o s s e s
i n 1936 to l o c a l g o v e r n m e n t s a s a r e s u l t
of p u r c h a s e w e r e e s t i m a t e d a t about $7,000.
But these l o s s e s w e r e m o r e than offset by
r e d u c t i o n i n c o s t of public s e r v i c e s
T h e a n n u a l s u m s r e c e i v e d , e v e n a f t e r the
y e a r s of d e v e l o p m e n t , w e r e r e g a r d e d by
m a n y l o c a l g o v e r n m e n t s a s inadequate. One
s u g g e s t e d plan f o r a d j u s t i n g t h e m a t t e r o n a
u n i f o r m b a s i s to t h e s a t i s f a c t i o n of l o c a l
units w a s a f l a t - r a t e a n n u a l c o n t r i b u t i o n of
0.5 to 1 p e r c e n t o n t h e a c q u i s i t i o n p r i c e
of t h e l a n d a s a m i n i m u m g u a r a n t e e (121,
122).
A s t u d y of t h e a d e q u a c y of p a y m e n t s on
p u r c h a s e d l a n d s to l o c a l units of g o v e r n m e n t w a s m a d e b y the F e d e r a l R e a l E s t a t e
(160).
I
I
Board in 1940. E f f o r t s w e r e m a d e to e s t i m a t e m o r e a c c u r a t e l y the effects of land
p u r c h a s e on the a b i l i t y of l o c a l governm e n t s to supply needed s e r v i c e s and to pay
off indebtedness.
P u r c h a s e of land did not a l w a y s b r i n g
reductions in c o s t s of county government.
P r o j e c t s w e r e not c o t e r m i n o u s with county
b o u n d a r i e s , a r e a s w e r e not c o m p l e t e l y
blocked in, and s o m e r e s i d e n t s w e r e allowed
to r e m a i n i n p r o j e c t a r e a s . Only a few
a t t e m p t s w e r e m a d e to r e o r g a n i z e l o c a l
g o v e r n m e n t a l d i s t r i c t s to take advantage
of possible s a v i n g s . In the c a s e of c e r t a i n
g r a z i n g p r o j e c t s , the f e w r e m a i n i n g r e s i d e n t
o p e r a t o r s i n the a r e a continued to c a u s e
high p e r capita public c o s t s .
The r e c o r d of high t a x delinquency on
land p u r c h a s e d m a y b e accounted f o r i n
p a r t by the f a c t that s e r i o u s d e p r e s s i o n
and drought had r e d u c e d i n c o m e s i n m a n y
a r e a s b e f o r e the p r o g r a m was s t a r t e d . T h u s ,
s o m e u n d e r e s t i m a t i o n a s to t a x r e v e n u e
o v e r a m o r e n o r m a l p e r i o d of y e a r s m a y
have b e e n m a d e i n justifying the p r o g r a m .
The r e q u e s t s f o r m o r e adequate r e i m b u r s e m e n t of t a x l o s s i n the y e a r s of r e c o v e r y
w e r e significant.
As a r e s u l t of land p u r c h a s e t h e r e was
a n extensive consolidation of school dis
t r i c t s . The n u m b e r d e c r e a s e d a p p r o x i m a t e l y 50 p e r c e n t in c e r t a i n i n s t a n c e s .
The n u m b e r of s c h o o l s i n o p e r a t i o n i n the
G r e a t P l a i n s d e c r e a s e d throughout a r e a s
w h e r e l a n d was p u r c h a s e d , although not
a s rapidly a s school e n r o l l m e n t d e c r e a s e d .
Many m i l e s of r o a d s w e r e officially closed,
and m a i n t e n a n c e was discontinued on m a n y
more.
E x p e r i e n c e f r o m 1935 to 1940 showed
that a d j u s t m e n t s involving l o c a l g o v e r n m e n t and f i n a n c e w e r e needed to a c c o m pany changes in land u s e o r occupancy.
F i e l d s t u d i e s during 1940 showed t h a t w h i l e
-
s o m e a d j u s t m e n t s had b e e n m a d e in l o c a l
government to r e f l e c t changes r e s u l t i n g
f r o m the land utilization p r o g r a m , m o r e
w e r e needed. Studies m a d e i t p o s s i b l e to
outline t h e s e needed a d j u s t m e n t s , to a p p r a i s e the effects of the p r o g r a m on l o c a l
g o v e r n m e n t units and s e r v i c e s , and to p r o vide a b a s i s f o r d i s c u s s i o n with county
officials of f u r t h e r s t e p s that would be
d e s i r a b l e . Needed a d j u s t m e n t s , h o w e v e r ,
w e r e m a t t e r s of State and l o c a l action;
they w e r e outside the s c o p e of F e d e r a l
authority.
F e d e r a l Payments to Local Governments
Section 33 of Title I11 of the BankheadJ o n e s F a r m Tenant Act provided that, f o r
a l l land that the F e d e r a l G o v e r n m e n t p u r c h a s e d f o r public p u r p o s e s u n d e r this p r o g r a m , i t m u s t pay annually to the county
i n which the land was l o c a t e d 25 p e r c e n t
of t h e r e v e n u e s r e c e i v e d f o r i t s u s e f o r
s u p p o r t of r o a d s and s c h o o l s .
Since much of the f a r m l a n d p u r c h a s e d
u n d e r this p r o g r a m was s u b m a r g i n a l , r e v e nues w e r e s m a l l in the f i r s t f e w y e a r s
a f t e r p u r c h a s e , while the land was being
developed f o r o t h e r u s e s . R e c r e a t i o n a r e a s
i n the 1930's r a r e l y r e t u r n e d significant
c a s h p r o f i t s . Income f r o m m a n y poorly
stocked f o r e s t a r e a s did not s t a r t a c c r u i n g
f o r s o m e y e a r s a f t e r i m p r o v e m e n t had
placed t h e m o n a s u s t a i n e d - y i e l d b a s i s .
Land i n g r a z i n g p r o j e c t s was m o r e r e a d i l y
p r e p a r e d f o r l e a s i n g , and r e g u l a r r e t u r n s
w e r e obtained f a i r l y soon. M o r e o v e r , when
land was developed f o r g r a z i n g p u r p o s e s ,
not only was t h e r e s o m e r e v e n u e available
f o r s h a r i n g with l o c a l g o v e r n m e n t s , but
a l s o the taxable value of r a n c h e r s ' p r o p e r t y
i n the a r e a usually i n c r e a s e d .
MANAGEMENT AND USE O F THE LAND UTILIZATION PROJECTS
Relationship of Land Management and
Transfers
F r o m 1936 to 1953, 2.5 m i l l i o n a c r e s of
the 11.3 m i l l i o n a c r e s a c q u i r e d under the
land utilization p r o g r a m w e r e t r a n s f e r r e d ,
chiefly to o t h e r F e d e r a l a g e n c i e s o u t s i d e
of the D e p a r t m e n t of A g r i c u l t u r e , including
the National P a r k S e r v i c e , B u r e a u of Indian
A f f a i r s , and F i s h and Wildlife S e r v i c e .
Assigned f o r m a n a g e m e n t within the De-
p a r t m e n t of A g r i c u l t u r e f o r a d m i n i s t r a t i o n
o r c u s t o d i a n s h i p w e r e a p p r o x i m a t e l y 8.8
m i l l i o n a c r e s a s of J a n u a r y 2 , 1954. App r o x i m a t e l y 1.3 to 1.8 m i l l i o n a c r e s w e r e
m a n a g e d under l o n g - t e r m a g r e e m e n t s with
State and o t h e r a g e n c i e s , leaving 7 to 7.5
m i l l i o n a c r e s m a n a g e d f r o m 1938 to 1953
d i r e c t l y by D e p a r t m e n t of A g r i c u l t u r e
agencies.
An additional 3.3 m i l l i o n a c r e s w e r e
t r a n s f e r r e d , g r a n t e d , exchanged, o r sold
f r o m J a n u a r y 2, 1954, to May 15, 1961,
leaving 5.5 m i l l i o n a c r e s a s s i g n e d to the
D e p a r t m e n t of A g r i c u l t u r e , with the m a j o r
p a r t going to the F o r e s t S e r v i c e . A l a r g e
p a r t of the a c r e a g e t r a n s f e r r e d w a s a s signed to the B u r e a u of Land Management
and o t h e r a g e n c i e s i n the D e p a r t m e n t of the
I n t e r i o r . Sizable a c r e a g e s , however, w e r e
t r a n s f e r r e d o r g r a n t e d to State a g e n c i e s .
L i m i t e d a c r e a g e s w e r e exchanged f o r o t h e r
land and s m a l l a c r e a g e s sold to public
a g e n c i e s and p r i v a t e p a r t i e s under s p e c i a l
rules o r authorizations for such actions
(table 7 ) .
Management by the Soil Conservation
Service, 1938-53
The Soil Conservation S e r v i c e managed
f r o m 7 to 7.5 m i l l i o n a c r e s of land utilization p r o j e c t land f o r 15 y e a r s - - 1 9 3 8 - 5 3
( t a b l e 8 ) . The a c r e a g e v a r i e d s o m e w h a t
f r o m y e a r to y e a r a s land was t r a n s f e r r e d
between F e d e r a l and State a g e n c i e s .
.By the end of 1940, m o s t of t h e i n i t i a l
a c q u i s i t i o n and development work had b e e n
c o m p l e t e d on a l l p r o j e c t s s t a r t e d b e f o r e
p a s s a g e of the Bankhead-Jones F a r m Tenant
Act. T h e s e p r o j e c t s had r e a c h e d the s t a g e
a t which the p r o b l e m s had shifted f r o m the
developmental to the m a n a g e r i a l field.
P r o j e c t s m a n a g e d by the Soil C o n s e r v a tion S e r v i c e f r o m 1938 to 1953 under a u thority of t h e Bankhead- J o n e s F a r m Tenant
Act w e r e u s e d m a i n l y f o r g r a z i n g , f o r e s t s ,
hay, r e c r e a t i o n , wildlife, and w a t e r s h e d a n d
w a t e r supply protection. During the p e r i o d
a f t e r World War 11, e s p e c i a l l y , additional
i m p r o v e m e n t and development work w a s
c a r r i e d out o v e r l a r g e a r e a s , including
building s t o c k - w a t e r ponds, r e s e r v o i r s , f i r e
t o w e r s , and e r o s i o n c o n t r o l w o r k s ; seeding
g r a s s l a n d s ; planting t r e e s and f o r e s t thinning; and c o n s t r u c t i o n of f i r e - c o n t r o l l a n e s
and a c c e s s r o a d s . A big job of rehabilitation
was done f r o m 1946 to 1953 (figs. 8, 9, and
10).
During t h e s e y e a r s m a n y b a r e , i d l e a r e a s
w e r e planted to g r a s s and t r e e s . G r a s s l a n d
and g r a z i n g yields i n c r e a s e d with seeding
and
grassland improvement.
Sustained
f o r e s t yields also increased a s time passed
and growth p r o g r e s s e d u n d e r a m a n a g e m e n t
and p r o t e c t i o n p r o g r a m .
Much of the land was managed by l o c a l
g r a z i n g a s s o c i a t i o n s and s o i l c o n s e r v a t i o n
d i s t r i c t s and o t h e r State a g e n c i e s u n d e r
long- t e r m a g r e e m e n t s , but the Soil Cons e r v a t i o n S e r v i c e had a d m i n i s t r a t i v e and
c u s t o d i a l r e s p o n s i b i l i t y and the United
S t a t e s r e t a i n e d t i t l e to the land.
F o r the 12 y e a r s 1942 to 1953, revenue
f r o m land utilization p r o j e c t land a v e r a g e d
$918,852 p e r y e a r ( t a b l e 8 ) . L u m b e r production a v e r a g e d 28 m i l l i o n b o a r d f e e t p e r y e a r .
An a v e r a g e of n e a r l y 1,579,000 a n i m a l - u n i t
months of g r a z i n g a y e a r was provided l o c a l
s t o c k m e n and r a n c h e r s . The m a j o r s o u r c e s
of public i n c o m e w e r e f r o m s a l e s of f o r e s t
p r o d u c t s , g r a z i n g f e e s , and m i n e r a l royalties.
During the w a r y e a r s 1941-45, the land
utilization p r o j e c t s m a d e significant contributions to needed production. During
1944, o v e r 6.1 m i l l i o n a c r e s w e r e used f o r
g r a z i n g , furnishing 1.6 million animal-unit
months of g r a z i n g . Around 22 m i l l i o n b o a r d
f e e t of t i m b e r p r o d u c t s w e r e h a r v e s t e d i n
1944 to h e l p f i l l the t r e m e n d o u s w a r needs.
This represented a 10-percent increase
o v e r the p r e v i o u s y e a r s .
In 1945, the War and Navy Departments
used n e a r l y 300,000 a c r e s of land utilization land f o r t r a i n i n g c a m p s , o r d n a n c e
d e p o t s , and bomb, gunnery, rocket,and rifle
r a n g e s . M o r e t h a n 3 3 million board f e e t
of t i m b e r p r o d u c t s w e r e h a r v e s t e d f r o m
land utilization l a n d s i n 1945, and land i n
a g r i c u l t u r a l land u s e a d j u s t m e n t p r o j e c t s
supplied n e a r l y 1.7 million a n i m a l - u n i t
months of g r a z i n g . Seven thousand f a r m e r s
and r a n c h e r s m a d e u s e of the land each
y e a r during World War 11.
T i m b e r h a r v e s t e d i n 1946 totaled m o r e
than 32 million b o a r d f e e t of a l l types. N e a r l y
2 million a c r e s w e r e c l a s s e d a s c o m m e r c i a l
f o r e s t , including both f e d e r a l l y and State
a d m i n i s t e r e d p r o j e c t s . Collections i n 1946
w e r e $728,341. T h i s was a n i n c r e a s e of
n e a r l y o n e - t h i r d o v e r 1945, due to higher
returns per acre.
In 1946, o v e r 4 million a c r e s of p r o j e c t
land i n Montana, N o r t h and South Dakota,
Wyoming, N e b r a s k a , C o l o r a d o , and Kansas
w e r e managed c o o p e r a t i v e l y by grazing
associations. Grazing associations were
o r g a n i z e d i n the l a t e 1930's i n Montana,
Wyoming, and N o r t h Dakota. Soil c o n s e r v a tion d i s t r i c t s b e g a n o p e r a t i o n s about 1940.
T h e i r p u r p o s e w a s to a s s i s t i n planning
and c a r r y i n g out county and d i s t r i c t a g r i c u l t u r a l c o n s e r v a t i o n and land u s e p r o erams.
The d i s t r i c t s w e r e o r g a n i z e d by f a r m e r s
and r a n c h e r s and a r e managed by them
through elected b o a r d s of d i r e c t o r s and
s u p e r v i s o r s . The g r a z i n g a s s o c i a t i o n s , likewise, w e r e o r g a n i z e d and o p e r a t e d under
State laws to plan f o r g r o u p m a n a g e m e n t
u
Tf3LE 7.--Summary of a c q u i s i t i o n , d i s p o s a l , and a d m i n i s t r a t i o n of land u t i l i z a t i o n p r o j e c t
land by U.S. Department of A g r i c u l t u r e , by p e r i o d s , 1935 t o 1961
period1
Acreage f o r which
t i t l e s were
obtained i n t h e
period
Transferred
outside
Department of
Agriculture
Administered i n
t h e Department
of Agriculture
a t t h e end
of period
Million acres
Million acres
E l l i o n acres
7.9
3.4
0
0
1.'7
.3
.5
3.3
6.2
9.3
....................
...................
1935-38
1939-46
1947-53.
1954-61 ....................
....................
8.8
5.5
T o t a l (1961) .........
Periods a r e from J u l y 1 t o June 30, except f o r 1947 t o 1953 when t h e period ends
Dec. 31, 1953, and f o r 1954 t o 1961, when t h e period begins Jan. 2, 1954 and ends May 15,
1961.
Omits approximately 350,000 acres f o r which options were accepted but f o r which
t i t l e s were not obtained, o r a c q u i s i t i o n of which had not been completed a t t h e time of
t r a n s f e r . Includes approximately 500,000 a c r e s t r a n s f e r r e d p r i o r t o a u t h o r i t y given by
T i t l e 111 of t h e Bankhead-Jones Farm Tenant Act i n J u l y 1937, and 1,200,000 a c r e s t r a n s f e r r e d a f t e r J u l y 1937.
Sources: A g r i c u l t u r a l Adjustment Administration, Land Policy Section; Resettlement
Administration; and Bureau of A g r i c u l t u r a l Economics: Annual and o t h e r r e p o r t s , 1933 t o
1938.
S o i l Conservation S e r v i c e , Annual Reports of t h e Chief and other r e p o r t s , 1938 t o
1953.
Forest Service: Annual Reports of t h e Chief and o t h e r r e p o r t s , 1954 t o 1961.
House of Representatives, 84th Cong., 1st S e s s . , Rpt. No. 1296, J u l y 20, 1955.
T B L L 8.--Agr1cultur~lland. u z i l l z a t l o n progrm of the S o i l Conservation Servize ,mder ; i t l e I11 o f t h e
Bankhead-Jones Farm Tenant Act: Use a d income cf lands managed, by years, 19L2-1953
Total
area
managed
Grazing
Acreage
Amount
Use for
crops
Animal- m i t
mcnths3
Acres
:,229,t88
1,417,591
3.5, q44
38,557
1,553,33C
3 6,726
50,388
1,ti4,3'3
1,€72,963
1,hRO,565
1,172,434
1,706,803
1,608, t9G
1,698,572
l,75l,'45
1,757,272
Average
1
7,i56,733
1,578, o10
1
Lumber
producticn
Recreation
29,26L
42,981
L 5,130
15,603
3 S , OL15
3C, 133
25,157
36,345
3S,024
Nearly i,C p e r c e n t was i n hay.
1 9 L ; - L ? , t c t a l colleci~ons; 194E-53, t c t a l collections less re:'unds during calender
revenue from sources n o t shovm nere, sach aa building occupa~cy, s a l e s of imprmements,
r:!eIi;s.
. -,enln-t
,
1 . x n t l l t s itrazlnq
2n r a n g e by 1 niat;re
c m qr steer, o r 5 sheep.
l ' j & - 5 j av=ragc.
+
Total
rmenue
gear. Inclades some
ninerals, and ease-
SCS Ark-61-487 A B H
I n addition to d i r e c t public i n c o m e a n d
u s e of land f o r S t a t e a n d F e d e r a l p u r p o s e s ,
the public and l o c a l people b e n e f i t e d f r o m
t h c i n c o m e of w o r k e r s and o p c r a t o r s who
bought t i m b c r on the s t u m p a n d p r o c e s s e d
i t f o r m a r k e t , the i n c o m e of f s i m e r s and
s t o c k m e n who u s e d l a r g e a c r e a g e s f o r
g r a z i n g , and the e m p l o y m e n t oi m i n e r a l
and o i l w o r k e r s a n d o p e r a t o r s who w o r k e d
l e a s e s . The workmcn employed in improvem e n t , m a i n t e n a n c e , a n d m a n a g e m e n t of t h e
p r o p e r t y a l s o bencfited, a s did t h o s e who
u s e d t h c a r e a s f o r r e c r e a t i o n , hunting,
a n d fishing. Annually, t h e r e w e r e a b o u t
579,000 d a y s s p e n t by people i n r e c r e a t i o n a l
a c t i v i t i c s o n the land u t i l i z a t i o n a r e a s . B y
the end of 1953, t h e land r e s o u r c e s h a d inc r e a s e d i n v a l u e b e c a u s e of the i m p r o v e m e n t s , g r o w t h of t i m b e r , d e v e l o p m e n t of
r e c r e a t i o n facilities, g a i n s i n wildlife, a n d
b e t t e r a n d m o r e plentiful w a t e r s u p p l i e s .
Management b y the Forest Service,
1954-63
SCS Ga-LU 23-24
Fiwre 9.--Thinning inferior trees for pulpwood on a
land udlization project in Genrgia. The remaining
m e t $ grow faster, and the pulpwood crop tarns
l~ico~ne.
and u s e of i n t e r m i n g l e d b l o c k s of public
a n d p r i v a t e g r a z i n g land. P e r m i t s a n d
l e a s e s w e r e obtained o n public land a n d
a r r a n g e m e n t s m a d c f o r c o o p e r a t i v e use of
p r i v a t e r a n g e in the d i s t r i c t . D i r e c t o r s
w e r e e l e c t e d and s u p e r v i s o r s a n d t e c h n i c i a n s e m p l o y c d o r a s s i g n e d f o r planning
and m a n a g e m e n t . P r o j e c t m a n a g e r s and
g r a z i n g a s s o c i a t i o n s w o r k e d t o g e t h e r to
a l l o t g r a z i n g p e r m i t s and to i m p r o v e the
range.
T h e work o n T i t l e I11 l a n d s w a s of considerable productivc value; educational
v a l u e a l s o w a s significant. F a r m e r s a n d
r a n c h e r s , a f t e r o b s e r v i n g the r e s u l t s of cons e r v a t i o n p r a c t i c e s o n Government l a n d ,
m o r e r e a d ~ l y a p p l i e d the p r a c t i c e s o n
s i m i l a r land u s e d b y t h e m .
A s of J a n u a r y 2, 1954, a t o t a l o f 6,847,000
a c r e s i n l a n d utiliza'iion p r o j e c t s h a d been
a s s i g n e d by the S e c r e t a r y of A g r i c u l t u r e to
the F o r e s t S e r v i c e . T h i s included 6,953,000
a c r e s a s s i g n e d o n t h i s d a t e f r o m the Soil
C o n s e r v a t i o n S e r v i c e , 1,062,000 a c r c s
c a r l i c r a s s i g n e d f r o m the Soil C o n s e r v a tion S e r v i c e a n d p r e d e c e s s o r m a n a g i n g
a g e n c i e s , and 827,000 a c r c s u n d e r F o r e s t
S e r v i c e c u s t o d i a n s h i p t h a t w e r e being msna g e d by S t a t e a g e n c i e s u n d e r l o n g - t e r m
l e a s c o r s a l e s contracts (tdblc 9).
About 1,460,000 a c r c s h a v e been i n c o r p o r a t e d into 28 National F o r e s t s , a n d 16 1,000
a d d i t i o n a l a c r e s a r e m a n a g e d by the F o r e s t
S e r v i c e pending d i s p o s a l o r p e r m a n e n t
a s s i g n m e n t . In addition, 19 N a t i o n a l G r a s s l a n d s , c o m p r i s i n g a b o u t 3,604,000 a c r e s ,
have b e e n established b y S e c m t a r i a l o r d e r
f o r permanent r e t e n t i o n a n d m a n a g e m e n t
a s p a r t of the National F o r e s t System.
i'iith the exception of 161,000 a c r c s , the r e s t
of the a s s i g n e d a c r e a g e w a s t r a n s f e r r e d to
o t h e r F e d e r a l and S t a t e a g e n c i e s f o r a d ministration, except for srwll a c r e a g e s
exchanged in o r d e r to block in a r e a s , and
l i m i t e d a c r e a g e s sold u n d e r s p e c i a l condit i o n s a s p r o v i d e d by l a w .
T h e F o r e s t S e r v i c e has continued and
expanded t h e i m p r o v e m e n t of p r o j e c t l a n d s
in t h e i r custody. Surveys havt: b e e n m a d e
of t h e l a n d , water, f o r e s t , range, wildlife,
a n d r c c r e z t i o n a l r e s o u r c e s in o r d c r to k e e p
a b r e a s t of c h a n g e s i n t h e s e r e s o u r c e s ,
SCS LU-NC-4-17
Figure 10.--A
byear-old stand of loblolly pine on Singlccary Lakc Game Sanctuary, N.C. Thc road scrves as
both fireguard And vehicle trail.
c h a n g e s in the need f o r t h e i r u s e i n t e r m s
of m a r k e t s and I n c o m e s , and i n c r e a s e $ Cn
l o c a l and r e g i o n a l r u r a l and u r b a n population. c o o p e r a i i v e a r r a n g e m e n t s with g r a z i n g
a s s o c i a t i o n s and c o n s e r v a t i o n d i s t r i c t s f o r
m a n a g e m e n t of land, i n s t a l l a t i o n of measa r e s f o r r a v e g c t a t i o n a n d m a i n t e n a n c e .of
r a n g e , a n d r e f o r e s t a t i o n a n d p r o t e c t i o a of
f o r e s t a r e a s a r e active. Special attention
h a s b e e n g i v e n to r e c r e a t i o n a l n e e d s b y
c r e a t i o n and d e v e l o p m e n t of c a m p s i t e s ,
picnic a r e a s , a n d r e s e r v o i r fa'cilities f o r
boating a n d swimming in s e c t i o n s p r e v i o u s l y l a c k i n g t h e s e amenities. Wildlife a n d
game management a l s o h a v e been improved
t o meet demands f o r hunting a n d preservation of wildlife.
T o t a l i n c o m e f r o m land u t i l i z a t i o n p r o j e c t s t r a n s f e r r e d to the F o r e s t S e r v i c e
r a n g e d f r o m 51,610,410 i n 1955 t o $2,290,775
in 1 9 5 6 ( t a b l e 10). The a v e r a g e income. f o r
t h c 5 years 1 9 5 5 - 5 9 w a s $1,953,429. T h e
r e c e i p t s , i n order of s i z e , w e r e f r o m
crazing p e r m i t s , m i n e r a l l e a s e s , a n d s a l e
of f o r p s t p r o d u c t s . R c n t a l of hay l a n d s ,
sale of yrass s e e d , and r e c r e a t i o n p e r m i t s
b r o u g h t in srnzJlc r a m o u n t s r e p r e s e n t i n g
a b o u t 5 p e r c e n t of t h e cash r e c e i p t s .
l n c r e a s e d s a l e s of t i m b e r , m o r e m i n e r a l
l c a s e s , and i r n p r o v c d g r a s s l a n d 3 h a v e
b r o u g h t a n upward trend in i n c o m e . A s a
result of 30 y e a r s of good m a n a g e m e n t
p r a c t i c e s , t i m b e r g r o w t h h a s been l a r g e ,
r e s u l t i n g i n a g r e a t e r v o l u m e of m e r c h a n t a b l e t i m b e r . I n c o m e has generally it+,c r e a s e d , e v e n t h o u g i i a c r e a g c s u n d e r Forest
S e r v i c e m a n a g e m e n t have d e c l i n e d b e c a u s e
of t r a n s f e r s to o t h e r a g e n c i e s and u s e s .
-
F o u r new Xational F o r e s t s w e r e f o r m e d
f r o m 6 of t h e 40 l a n d u t i l i z a t i o n p r o j e c t s
a s s i g n e d t o the F o r e s t S ~ r v i c e - - t h e T u s k e g c c in A l a b a m a , t h e O c o n e e i n Georgia,
the T o m b i g b e e i n M i s s i s s i p p i , and the
St. F r a n c i s i n A r k a n s a s . T h e r e m a i n i n g 34
o r m o r c p r o j e c t s were added to 24 existirig
forc!sts. The l a r g e r t a c r e a g e s i n c o r w r a t a d
into National F o r e s t s w e r e i n t h e s o u t h e r n
States, f r o m Virginia to A r k a n s a s ahd
Louisiana
The National F o r e s t s s e r v e many u s e s
a n d m a n y people. Multiple use i s a s k r d a r d
pollc); a n d p r a c t i c e . N o t only d o t h e Natlonal
F o r c s t s p r o d u c e t i m b e r , but, in addition,
t h e y p r o v i d e grazing f o r livestock and p l a c e s
f o r wildlife t o g r o w , a n d afford h u n t e r s a t
S t a t e - p r e s c r l b r d s e a s o n s t h e u s e of publicly
owned o p e n s p a c e f o r hunting. U s e for
r e c r e a t i o n is i n ~ r c a td e m a n d , e s p e c i a l l y
f o r c a m p a n d p i c n l c s l t e s a n d f o r fishlng,
hiking, s k i i n g , studylng n a t u r e , a n d anjoylng
beautiful s c e n e r y .
.
TABLE 9 . - - S t a t u s of land u t i l i z a t i o n p r o j e c t s t r a n s f e r r e d t o t h e F o r e s t S e r v i c e , o r
placed under i t s custody, a s of June 30, 1964
Acreage
Item
Assignment t o t h e F o r e s t S e r v i c e :
.............................
.................................
T r a n s f e r r e d t o t h e F o r e s t S e r v i c e p r i o r t o 1/2/54
T r a n s f e r r e d t o t h e F o r e s t S e r v i c e on 1/2/54..
Placed under t h e F o r e s t S e r v i c e custody .......................................
Total assigned t o t h e Forest Service
......................................
1
Retained f o r permanent a d m i n i s t r a t i o n 3y t h e F o r e s t S e r v i c e :
National Forests.
National Grasslands
.............................................................
....................................................
1,000
acres
1,062
6,958
827
1,460
..................................
F o r e s t S e r v i c e . .........................
Balance ( f o r d i s p o s a l o r permanent assignment)
T o t a l under a d m i n i s t r a t i o n of t h e
D i s p o s a l s t o o t h e r a g e n c i e s and p a r t i e s :
T r a n s f e r r e d t o t h e Bureau of Land Management
Transferred t o other Federal azencies
Granted t o S t a t e , county,and c i t y a g e n c i e s
Sold t o S t a t e , county,and c i t y a g e n c i e s
Exchanged f o r l a n d s w i t h i n National F o r e s t s o r r e s e a r c h a r e a s
Placed i n t r u s t f o r Pueblo I n d i a n s
Reconveyances and s a l e s t o former owners and o t h e r p r i v a t e p a r t i e s
Total disposals..
..................................
........................................
....................................
.......................................
.................
.............................................
............
....................................................... (
Source: F o r e s t S e r v i c e .
National G r a s s l a n d s
Range m a n a g e m e n t of p r o j e c t l a n d h a s
b e e n i m p r o v e d by the e s t a b l i s h m e n t of
National G r a s s l a n d s , which a r e s o m e w h a t
s i m i l a r to National F o r e s t s (139). The
Kational G r a s s l a n d s c o n s i s t of 24 f o r m e r
land utilization p r o j e c t s , w h e r e the F e d e r a l
G o v e r n m e n t , t h e S t a t e s , and t h e l o c a l people
a r e c o o p e r a t i n g to r e b u i l d r a n g e l a n d o n t h e
r u i n s of d r o u g h t - s t r i c k e n and m i s u s e d land.
T h e 19 National G r a s s l a n d s a r e s i t u a t e d
i n 1 1 w e s t e r n S t a t e s - - 17 i n t h e G r e a t
P l a i n s , and one e a c h i n Idaho a n d Oregon.
The land u t i l i z a t i o n p r o j e c t s now i n National G r a s s l a n d s b e g a n a s p a r t of t h e Dep a r t m e n t of A g r i c u l t u r e ' s e m e r g e n c y r e habilitation
programs
in the
1930's.
S u b m a r g i n a l f a r m s and depleted r a n g e l a n d s , r e s u l t i n g f r o m h o m e s t e a d i n g and
s e t t l e m e n t of s m a l l f a r m units i n s e m i a r i d
3,422
1
I
a r e a s , w e r e p u r c h a s e d a n d the ~ c c u p a n t s
r e s e t t l e d , and slowly o v e r the y e a r s the
r a n g e w a s r e s t o r e d to b e t t e r , m o r e p r o d u c t i v e u s e . L e s s o n s w e r e being l e a r n e d f r o m
t h e h a r d e x p e r i e n c e of a t t e m p t i n g to f a r m
u n s u i t a b l e r a n g e l a n d and then a t t e m p t i n g
to s h i f t i t back to g r a s s l a n d r a n g e .
T h e h i g h e s t p u r p o s e of t h e National
G r a s s l a n d s i s to s e r v e a s d e m o n s t r a t i o n
a r e a s to show how l a n d s c l a s s i f i e d a s
u n s u i t a b l e f o r cultivation m a y be c o n v e r t e d
to g r a s s f o r the b e n e f i t of both land and
people i n t h e a r e a s . Under c a r e f u l m a n a g e m e n t , they a r e being developed f o r g r e a t e r
s u s t a i n e d yields of g r a s s , w a t e r , wildlife,
and t r e e s ; they a l s o
outdoor r e c r e a t i o n .
lands a r e important
s y s t e m of t h e F o r e s t S e r v i c e dedicated t
t e s t e d and a p p r o v e d
tion and land u s e ( 5 , 141).
'r43LZ 1 0 . - - F e d e r a l income from larld u t i l i z a t i o n p r o j e c t s managed by t h e F o r e s t S e r ~ i c e ,f i s c a l y e a r s 1955-59
Incocie by s o u r c e s
Tot a 1
income
1
Acres
-
I-
Dollars
Haying,
cropping,
s a l e of
Timber &
forest
products
Mineral
leases
Dollars
Dollars
Dollars
Dollars
806,967
823,118
684,lC2
697,315
734,640
309,295
455,815
215, I20
574,E25
346,955
374,261
799,787
737,461
9 17,654
747,579
65,7U
50,444
38,063
59,347
25,379
Ttecrention
I
Other
I
-
I n 1957, about 6.5 m l l l i o n a c r e s were grazed by more t h a n 30C,000 head of l i v e s t o c k owned by almost
>,000 p e r m i t t e e s . About 5 m l l l l o n a c r e s were under g r a z i n g agreements ( 1 0 y e a r s o r l e s s ) w i t h livestock
g r a z i n g associations, s o l 1 c o n s e r v a t i o n d i s t r i c t s , and o t h e r l o c a l agencies.
I n 1958, more t h a n 2 m i l l l o n a c r e s of land utilization land were t r a n s f e r r e d t o t h e Department of t h e
I n t z r i o r f o r u s e I n p r o g r a m of t h e Bureau of Land Management. The acreage f o r 1958 i s a s of December 31.
Most of t h e acreages f o r o t h e r y e a r s a r e a s of June 30.
S l n c e 1960, when t h e land u t l l i z a t l o n land r e t a i n e d by t h e Department of A g r i c b l t u r e was i n c o r p o r a t e d
into N a t l o n a l F o r e s t s and N a t i o n a l Grasslands, income and expenses f o r t h e former p r o j e c t s a r e n o t kept
s e p a r a t e , e x c e p t where t h e y a r e complete u n i t s such a s r a n g e r d i s t r i c t s , b u t i n s t e a d t h e accounts a r e kept
w i t h t h e u n i t s of which t h e y now a r e a p a r t .
I
Source: Reports of t h e Chief of t h e F o r e s t S e r v i c e f o r y e a r s s p e c i f i e d .
U s e of the National G r a s s l a n d s f o r g r a z i n g
m o r e than 165,000 c a t t l e and 47,000 s h e e p
annually m u s t of n e c e s s i t y b e i n t e g r a t e d
with the use of intermingled and n e a r b y
land (140). By a g r e e m e n t , the l o c a l people,
who c o x r o l the o t h e r lands and who, f o r the
m o s t . p a r t , a r e a l s o u s e r s of the Governm e n t land, have a c c e p t e d a l a r g e m e a s u r e of
r e s p o n s i b i l i t y in managing livestock on many
of the a r e a s . The l o c a l u s e r s frequently a r e
organized into grazing a s s o c i a t i o n s to a c complish many of the conservation objectives In the National G r a s s l a n d s and a s s o ciated a r e a s of p r i v a t e and public land.
Of the 3.8 million a c r e s in the National
G r a s s l a n d s , grazing on 2.7 million a c r e s i s
managed under cooperative a g r e e m e n t s with
g r a z i n g a s s o c i a t i o n s , and 1.1 million a c r e s
d i r e c t l y by the F o r e s t Service. P e r m i t s a r e
i s s u e d by the F o r e s t S e r v i c e e i t h e r to l o c a l
g r a z i n g a s s o c i a t i o n s , which in t u r n d i s t r i b u t e g r a z i n g privileges among m e m b e r s
a c c o r d i n g to t e r m s of the a g r e e m e n t s , o r
d i r e c t l y to individual r a n c h e r s who m e e t
s i m p l e c r i t e r i a a s to eligibility in a r e a s
not c o v e r e d by g r a z i n g a s s o c i a t i o n s . F e e s
a r e paid on the b a s i s of each a n i m a l - u n i t
month of g r a z i n g ~ e r m i t t e d . This
~
cooperative a p p r o a c h h a s r e s u l t e d in good p r o g r e s s
on both public and a s s o c i a t e d p r i v a t e lands
in the revegetation of the land, installation
' ~ nanimal-unit month is 1 mmth's grazing tenure
upon range by 1 cow or steer, or 5 sheep.
of w a t e r i m p r o v e m e n t s , and fencing of units
f o r management. This allows the h a r v e s t i n g
of such f o r a g e f o r d o m e s t i c livestock a s i s
c o n s i s t e n t with the l o n g - t e r m p r o g r a m
of management.
O v e r 300,000 v i s i t s a r e m a d e annually
to t h e National G r a s s l a n d s f o r hunting,
fishing, camping, picnicking and o t h e r
r e c r e a t i o n . Visits to the a r e a s a r e usually
s h o r t , and f a c i l i t i e s needed to a c c o m m o d a t e
the public a r e m o s t l y confined to picnic
a r e a s and c a m p s i t e s n e a r hunting and
fishing. Outdoor r e c r e a t i o n will i n c r e a s e
a s the public b e c o m e s a w a r e that the g r a s s l a n d s a r e open to extensive public use.
S m a l l a r e a s of the National G r a s s l a n d s
s u p p o r t s o m e t r e e growth of a woodland type
and w h e r e t h e s e a r e a s o c c u r they g e n e r a l l y
have high e s t h e t i c r e c r e a t i o n a l and wildlife
v a l u e s . Consistent with t h e s e values, s o m e
wood products needed in the l o c a l comm u n i t i e s a r e produced.
The National G r a s s l a n d s f u r n i s h food,
c o v e r , and w a t e r f o r a wide v a r i e t y of wildl i f e and fish. An e s t i m a t e d 27,000 antelope
and 19,000 d e e r live a l l o r a portion of the
y e a r on the a r e a s . Bighorn s h e e p have been
r e t u r n e d . H e r e a l s o a r e found quail, p r a i r i e
c h i c k e n s , s h a r p - t a i l g r o u s e , pheasants, wild
t u r k e y , and o t h e r g a m e and song b i r d s .
The p r o p e r management a n d u s e of the
National G r a s s l a n d s i s a p a r t of the big
job of conserving and improving the Nat i o n ' s w a t e r r e s o u r c e s and keeping s o i l in
place. G e n e r a l l y , g r a s s l a n d s a r e l o c a t e d
i n a r e a s of u n s t a b l e s o i l and deficient
r a i n f a l l . A good v e g e t a t i v e c o v e r m u s t b e
r e t a i n e d to k e e p runoff a t a m i n i m u m , r e duce wind and w a t e r e r o s i o n , a n d enhance
the w a t e r s t o r a g e c a p a c i t y of t h e l a n d .
Grassland p r o g r a m s under cooperative
g r a z i n g a g r e e m e n t s with g r a z i n g a s s o c i a tions h a v e b e e n s t r e n g t h e n e d s i n c e 1960.
Most a g r e e m e n t s with g r a z i n g a s s o c i a t i o n s
have b e e n continued, o r r e n e w e d , w i t h l i t t l e
change. It h a s b e e n the policy not to change
p r o c e d u r e s f o r m a n a g e m e n t that h a v e b e e n
used s u c c e s s f u l l y f o r m a n y y e a r s . L o c a l
s t o c k m e n who a r e e l i g i b l e c a n apply f o r
p e r m i t s to g r a z e s u i t a b l e a r e a s on a l o n g
-t e r m b a s i s , provided they pay the c u s t o m a r y
g r a z i n g f e e s and a s s i s t i n p r o p e r u s e a n d
m a i n t e n a n c e of the land.
In 1963, S e c r e t a r y ' s (of A g r i c u l t u r e )
Regulation of J u n e 20, 1960, designating
the land utilization g r a z i n g l a n d s a s National G r a s s l a n d s , to b e p a r t of t h e N a t i o n a l
F o r e s t System for administration under
t h e B a n k h e a d - J o n e s F a r m Tenant Act, w a s
a m e n d e d , a m o n g o t h e r things: ( 1 ) To r e a f f i r m t h e p r o m o t i o n of g r a s s l a n d a g r i c u l t u r e and s u s t a i n e d - yield m a n a g e m e n t
of a l l land a n d w a t e r r e s o u r c e s i n t h e a r e a s
of which the G r a s s l a n d s a r e a p a r t ; ( 2 ) to
s t r e s s t h e d e m o n s t r a t i o n of sound and
p r a c t i c a l p r i n c i p l e s of land u s e ; and ( 3 ) to
p r o v i d e t h a t m a n a g e m e n t of t h e F e d e r a l l a n d
e x e r t s a favorable-influence o v e r a s s o c i a t e d
o t h e r public and p r i v a t e l a n d s .9
w e r e analyzed i n r e p o r t s b y the B u r e a u of
A g r i c u l t u r a l E c o n o m i c s i n 1937 and 1940,
n e a r the d a t e s of a c q u i s i t i o n . T h e s e r e p o r t s s h o w the p r o b l e m s of i n t e r m i n g l e d
p r i v a t e and public land holdings, and the
h a z a r d s of f a r m i n g s c a t t e r e d t r a c t s i n a
d r y l a n d a r e a (61, 93).
T h e land utilization land ( o r land a c q u i r e d
u n d e r T i t l e I11 of the B a n k h e a d - J o n e s F a r m
T e n a n t A c t ) i s s u b j e c t to the p r o v i s i o n s f o r
u s e and m a n a g e m e n t which will b e s t s e r v e
t h e c o n s e r v a t i o n a n d land utilization p r o g r a m . The land i s used u n d e r g
- razing
p e r m i t s b y s t o c k m e n . The g r a z i n g r e g u l a tions a n d f e e s c o n f o r m to t h e g e n e r a l
policies and procedures established f o r
l a n d utilization p r o j e c t land. Actual f e e s
v a r y f r o m a r e a to a r e a . A s with a l l land
a c q u i r e d u n d e r T i t l e I11 of t h e BankheadJ o n e s F a r m Tenant Act, 25 p e r c e n t of the
revenue received f r o m grazing and other
u s e s i s paid to t h e counties i n which the
land i s l o c a t e d f o r r o a d and s c h o o l p u r poses.
T r a n s f e r of land utilization p r o j e c t l a n d
by l e a s e , s a l e , o r h o m e s t e a d i s not a u t h o r i z e d ; h o w e v e r , exchanges of l a n d and g r a n t ing of e a s e m e n t s a n d r i g h t s - o f - w a y i n t h e
public i n t e r e s t a r e p e r m i s s i b l e . The a u t h o r i t y f o r d i s p o s a l s of land u t i l i z a t i o n
p r o j e c t land of a n y type is l i m i t e d to a p p l i cation i n the p a r t i c u l a r c a s e (158).
At the t i m e of a c q u i s i t i o n of the land i n the
Milk R i v e r , Mont., land u t i l i z a t i o n p r o j e c t
i n 1937-38, i t was within F e d e r a l g r a z i n g
d i s t r i c t s s e t up u n d e r t h e T a y l o r G r a z i n g
The project comA c t of 1934 (61, 93,
p r i s e d 15 p e r c e n t of the a c r e a g e i n the Milk
R i v e r D i s t r i c t , c o m p a r e d with 27 p e r c e n t
i n public d o m a i n land. In t h e M u s s e l s h e l l
and L o w e r Yellowstone p r o j e c t s the p e r c e n t a g e w a s even h i g h e r - - 2 2 and 34 p e r c e n t of the l a n d a r e a . A m e m o r a n d u m of
u n d e r s t a n d i n g b e t w e e n the D e p a r t m e n t s of
A g r i c u l t u r e and t h e I n t e r i o r w a s m a d e f o r
a d m i n i s t r a t i o n of t h e s e l a n d s , O c t o b e r 1,
1936, including the p r o v i s i o n t h a t they be
g r a z e d i n c o m m o n with o t h e r public l a n d s
in the F e d e r a l grazing districts.1°
m).
Management by the Bureau of Land
Management
Some 18 l a n d utilization p r o j e c t s , containing 2,464,000 a c r e s , w e r e t r a n s f e r r e d to
the B u r e a u of Land Management, D e p a r t m e n t of t h e I n t e r i o r , and a r e managed and
used p r i m a r i l y f o r g r a z i n g along with public
d o m a i n land i n F e d e r a l g r a z i n g d i s t r i c t s .
M o r e than 1.9 m i l l i o n a c r e s a r e i n Montana.
T h i s a c r e a g e was a c q u i r e d i n 7 land u t i l i z a tion p r o j e c t s , of which the l a r g e s t w e r e
Milk R i v e r , with 953,000 a c r e s , the L o w e r
Yellowstone, with 392,000 a c r e s , and the
M u s s e l s h e l l , with 268,000 a c r e s . Most of
t h i s land was t r a n s f e r r e d f r o m the F o r e s t
S e r v i c e t o the B u r e a u of Land Managem e n t by Executive O r d e r Number 10787,
N o v e m b e r 6, 1958. Two Montana p r o j e c t s , Milk R i v e r and Buffalo C r e e k ,
9 2 5 Federal Register 1960, page 5845; and 28
Federal Register 1963, page 6268: 213.1.
Management of Indian Projects
M o r e than 1 million a c r e s of r a n g e and
o t h e r land which,were p u r c h a s e d f o r u s e of
Lliscussed exchange uf letters between t h c Secretaries of Agriculture and the Interior, Kovember 1,
1937, December 10, 1937, and February 2, 1938.
Indian f a r m e r s and s t o c k m e n i n i n c r e a s i n g
livestock production and incomes, were
a s s i g n e d to the c u s t o d i a n s h i p of the B u r e a u
of Indian A f f a i r s . T h e s e p r o j e c t s w e r e s e t
u p to a i d 30 o r m o r e t r i b a l g r o u p s , a n d w e r e
widely s c a t t e r e d . F o r i n s t a n c e , t h e r e w e r e
p r o j e c t s a t P i n e Ridge, S. Dak..; F o r t P e c k ,
Mont.; White E a r t h , Minn.; S e m i n o l e , F l a . ;
a n d C h e r o k e e , Okla.
Since these projects were establishedfor
a g r i c u l t u r a l p r o d i c t i o n , the l a n d a c q u i r e d
was g e n e r a l l y a t l e a s t equal i n quality to
contiguous land. Most of t h e land was s u i t a b l e f o r gainful u s e f o r g r a z i n g , h a y a n d
other feed c r o p s , o r f o r e s t r y .
Management by State and Local Agencies
S o m e 80 of the l a n d utilization p r o j e c t s ,
totaling 1.3 m i l l i o n a c r e s , w e r e t r a n s f e r r e d
to S t a t e a n d l o c a l a g e n c i e s . About 75 p e r c e n t of t h i s a c r e a g e was g r a n t e d o r s o l d
to t h e a g e n c i e s by the F o r e s t S e r v i c e
d u r i n g 1954-61 ( t a b l e 1 1 ) .
N e a r l y a l l the a r e a s a r e m a n a g e d f o r
m u l t i p l e u s e s , but the 4 m o s t i m p o r t a n t
u s e s a r e f o r p a r k s , f o r e s t s , a n d wildlife r e f u g e s , a n d f o r e x p e r i m e n t s t a t i o n s
to
study
and
d e m o n s t r a t e ways a n d
TABLE 11.--Grants and s a l e s of land u t i l i z a t i o n p r o j e c t land t o S t a t e and l o c a l
agencies, 1954-19611
Region
..........
....,
Northeast.
Lake S t a t e s . . . .
Corn B e l t . . . . . . .....
Northern P l a i n s .....
.........
Appalachian
Southeast......
Delta S t a t e s . .
Southern P l a i n s
.....
......
.....
Mountain ............
Pacific........
.....
m e a n s of achieving b e t t e r u s e of p r o b l e m
areas.
M a n a g e m e n t v a r i e s g r e a t l y depending
upon the n e e d , public i n t e r e s t , a n d a v a i l a b l e funds f o r m a n a g e m e n t a n d developm e n t . Many a r e a s a r e u s e d by l a r g e n u m b e r s of people f o r r e c r e a t i o n , camping,
hunting, f i s h i n g , a n d e d u c a t i o n a l a c t i v i t i e s
s u c h a s s t u d y of f o r e s t r y , wildlife, and
n a t u r a l f e a t u r e s by s t u d e n t s a n d young
p e o p l e ' s g r o u p s . O t h e r land i s u s e d f o r
d e m o n s t r a t i o n a r e a s a n d e x p e r i m e n t a l plots
i n connection with a g r i c u l t u r a l education
a n d r e s e a r c h . Some a r e a s a r e now r e a c h i n g
the point w h e r e , t h r o u g h m a n a g e m e n t a n d
development, they have sizable incomes,
o r a r e s e l f - s u p p o r t i n g f r o m s a l e of f o r e s t
and other products, and f r o m u s e r s ' fees
a n d s a l e of l i c e n s e s . U s e of S t a t e p a r k s and
f o r e s t s i s e s p e c i a l l y h e a v y i n the E a s t e r n
a n d C e n t r a l Regions n e a r c e n t e r s of population w h e r e outdoor r e c r e a t i o n a r e a s gene r a l l y a r e s m a l l and s c a r c e .
Among the notable e x a m p l e s of S t a t e m a n a g e d p r o j e c t s i n the E a s t a n d C e n t r a l
Regions a r e B l a d e n L a k e s State F o r e s t ,
N.C.; C l e m s o n School F o r e s t , S.C.; P o i n s e t t
a n d C h e r a w S t a t e P a r k s , S.C.; Rock E a g l e
State P a r k , Ga.; H a r d L a b o r C r e e k State
P a r k , Ga.; W a r m S p r i n g s S t a t e P a r k , Ga.;
Yellowwood S t a t e F o r e s t , Ind.; Z a l e s k i
State F o r e s t , Ohio; T a r Hollow S t a t e F o r e s t ,
Ohio; F r e n c h C r e e k S t a t e P a r k , Pa.; Catoctin
S t a t e P a r k , Md.; a n d L a k e of the O z a r k s
S t a t e P a r k , Mo.
Grants
Sales
Total
1,000
acres
1,000
acres
1,000
acres
P l a n s f o r Long-Range Use and Management
In 1954-55, s t u d i e s a n d h e a r i n g s o n p r o p o s a l s f o r u s e a n d m a n a g e m e n t of land
u t i l i z a t i o n p r o j e c t l a n d r e v e a l e d that t h e r e
h a d b e e n o c c a s i o n a l public m i s u n d e r s t a n d ing of the a d v a n t a g e s a n d d i s a d v a n t a g e s
t h a t m i g h t b e involved i n d i s p o s i n g of the
land a l r e a d y i n use f o r special purposes,
e s p e c i a l l y w h e r e l a r g e t r a c t s w e r e involved.
Study of the p r o p o s a l s i n d i c a t e d that d i s p o s i t i o n of t h i s l a n d should b e the r e s u l t of
a n o b j e c t i v e evaluation of the individual
p r o j e c t s and of how t h e y could b e s t s e r v e
the n e e d s of the r e g i o n s , c o m m u n i t i e s , a n d
people of the a r e a s i n which they w e r e
l o c a t e d (L6).
S e v e r a l public h e a r i n g s w e r e held a n d a
n u m b e r of c o n g r e s s i o n a l b i l l s w e r e cons i d e r e d . A f t e r s t u d y of the s i t u a t i o n a n d t h e
need f o r the l a n d u t i l i z a t i o n p r o j e c t a r e a s
f o r f o r e s t s , grassland, recreation, and
wildlife, a n d f o r c o n s e r v a t i o n of land a n d
149
79
53
3
0
14
0
0
149
93
53
3
192
294
10
23
14
1l 4
46
0
205
409
56
23
3
--
0
--
3
--
T o t a l , 48 S t a t e s
Record of d i s p o s i t i o n of land u t i l i z a t i o n p r o j e c t land t o May 15, 1961, which
was t r a n s f e r r e d t o t h e Forest S e r v i c e Jan.
2 , 1954. P r i o r t o Jan. 2, 1954, approximately 300,000 a c r e s were t r a n s f e r r e d t o
S t a t e arid l o c a l agencies, making a t o t a l of
about l,3OO,OOO a c r e s .
w a t e r , the g e n e r a l d e c i s i o n w a s t h a t the
land should continue t o b e held under
F e d e r a l and State ownership, and to be
m a n a g e d and used under a u t h o r i t y of the
Bankhead-Jones F a r m Tenant A c t of 1937
a s amended. T h i s policy h a s b e e n foilowed.
APPRAISAL O F T H E LAND UTILIZATION PROGRAM
A notable a c c o m p l i s h m e n t of the land
utilization p r o g r a m was t h a t f o r the f i r s t
t i m e it d e m o n s t r a t e d to the public the potent i a l i t i e s of a definite a g r i c u l t u r a l land policy
f o r poor f a r m l a n d , whose use was uneconomic in t h e c o m m o n types of field c r o p s
and with the u s u a l f o r m s of cultivation and
management. P o o r land and poor people dependent on f a r m i n g w e r e a t a point w h e r e a
p r o g r a m was needed to p r e s e r v e land r e s o u r c e s and to r e h a b i l i t a t e t h e people on that
land. It was evident that s u b m a r g i n a l land
could not provide adequate f a m i l y i n c o m e s .
Some plan was needed f o r t h e f u t u r e , and
some action vital for the present.
A s developed, t h e p r o g r a m helped m a n y
destitute f a m i l i e s g e t off r e l i e f r o l l s ; i t
provided m u c h work f o r t h e m on developm e n t and c o n s t r u c t i o n p r o j e c t s , o r r e s e t t l e d them on m o r e productive land. It
helped s o m e l o c a l g o v e r n m e n t s to r e d u c e
t h e i r debt load by payment of delinquent
taxes. L a t e r , m a n y f a r m e r s and r a n c h e r s
w e r e helped with g r a z i n g p e r m i t s . Sawmill
and pulpwood m i l l o p e r a t o r s w e r e a b l e to
buy and p r o c e s s t i m b e r f r o m the p r o j e c t s .
People w e r e provided with opport&ities
f o r hunting, fishing, a n d o t h e r f o r m s of
recreation.
The land utilization p r o g r a m demons t r a t e d that public p u r c h a s e could be u s e d
to r e m o v e l a r g e a r e a s of r u r a l land of low
productivity f r o m s u b m a r g i n a l u s e s ; that
such land could b e c o n v e r t e d to beneficial
public u s e s ; t h a t r e s i d e n t s could m o v e f r o m
land of questionable productivity to land
of b e t t e r productivity; and that povertys t r i c k e n people who moved could be s u c cessfully aided i n gaining m o r e adequate
i n c o m e s and b e t t e r h o m e s .
It was a l s o found that t i m e m u s t b e
allowed to work out needed a d j u s t m e n t s ,
and that i m m e d i a t e r e s u l t s should not b e
expected f r o m a n a d j u s t m e n t p r o g r a m . The
conclusion t h a t t i m e a n d e f f o r t m u s t b e
allowed f o r a d j u s t m e n t i s a point that m u s t
be e m p h a s i z e d . It could not b e a s s u m e d
that, m e r e l y b e c a u s e t h e r e w e r e too m a n y
f a r m e r s with too m a n y a c r e s in c r o p s , t h e s e
f a r m e r s could shift quickly to jobs o r o t h e r
locations with l i t t l e effort o r cost.
An additional a c c o m p l i s h m e n t of the land
utilization p r o j e c t s was to build land r e -
s o u r c e s i n the p u r c h a s e a r e a s a n d a d j a c e n t
to them s o people could have b e t t e r o p p o r tunities f o r adequate i n c o m e s . A s the s u r rounding f a r m e r s a n d r a n c h e r s o b s e r v e d
the land u s e p r a c t i c e s on the p r o j e c t s ,
i m p r o v e d p r a c t i c e s and b e t t e r m a n a g e m e n t
s p r e a d beyond the b o r d e r s of the p r o j e c t s .
The land utilization l a n d s today s e r v e t h e i r
r e g i o n s well i n land u s e planning, a d j u s t m e n t s to b e t t e r land u s e , e s t a b l i s h m e n t
of c o n s e r v a t i o n p r a c t i c e s , p r o v i s i o n of
p e r m a n e n t s o u r c e s of i n c o m e , a n d f u r n i s h ing of r e c r e a t i o n a l a r e a s i n r e g i o n s f o r m e r l y without them.
T h e land utilization p r o g r a m e x p e r i e n c e
m a y be i m p o r t a n t i n t h e f u t u r e . Through
t r i a l and e r r o r , pitfalls to b e avoided w e r e
d i s c o v e r e d and p r o c e d u r e s w e r e w o r k e d o u t
which should s m o o t h the way f o r f u t u r e p r o g r a m s , both through r e d u c t i o n i n c o s t s and
avoidance of delays. T h a t t h e p r o g r a m failed
fully to a c c o m p l i s h a l l i t s o b j e c t i v e s i s a l s o
t r u e , although f a i l u r e was a m a t t e r of deg r e e i n m a n y i n s t a n c e s , and often had the
positive effect of teaching l e s s o n s f o r the
future.
The land r e t i r e m e n t p r o g r a m was ina u g u r a t e d d u r i n g the g r e a t e s t d e p r e s s i o n
i n t h e h i s t o r y of o u r country, a d e p r e s s i o n
which had s e v e r e l y d i s r u p t e d o u r national
economy. People w e r e willing to g r a s p a t
anything t h a t gave them p r o m i s e of getting
the economy back to n o r m a l . In the 1 9 3 0 1 s ,
drought, d u s t s t o r m s , floods, a n d i n s e c t s
a l s o s t r u c k a t the h e a r t s of a e r i c u l t u r a l
r e g i o n s . Under such c i r c u m s t a n c e s , i t was
f o r t u n a t e that a workable p r o g r a m could
b e put into o p e r a t i o n on a national s c a l e .
Under i n t e n s e p r e s s u r e s to expand o p e r a t i o n s to m a x i m i z e the r e l i e f of d i s t r e s s ,
t h e land p r o g r a m quickly o u t g r e w i t s o r i g inal d e m o n s t r a t i o n a l c h a r a c t e r . A s Howard
Tolley, then Chief of the B u r e a u of A g r i c u l t u r a l E c o n o m i c s , w r o t e on D e c e m b e r 3,
1945, i n a l e t t e r to L. C. G r a y , "The subm a r g i n a l land p r o g r a m m a r k e d a turning
point i n a g r i c u l t u r a l policy r e l a t i v e to
needed a d j u s t m e n t s i n u s e of a g r i c u l t u r a l
land a n d planning f o r t h e f u t u r e . "
T h e land utilization p r o g r a m was adm i n i s t e r e d by 5 d i f f e r e n t F e d e r a l a g e n c i e s
i n t h e f i r s t 4 y e a r s of i t s e x i s t e n c e , 193437. T h e f r e q u e n t t r a n s f e r of a d m i n i s t r a t i o n ,
-
and the provisions f o r joint planning and
r e c o m m e n d a t i o n s by s e v e r a l a g e n c i e s , contributed to d e l a y s and u n c e r t a i n t i e s in the
e s s e n t i a l plans and n e c e s s a r y actions to
However, the t r a n s f e r of
be t a k e n
many key p e r s o n n e l along with t h e p r o g r a m
tended to m i n i m i z e the p r o b l e m s c a u s e d
by shifts of r e s p o n s i b i l i t y between a g e n c i e s . The a c h i e v e m e n t s of the p r o g r a m i n
t h e s e e a r l y y e a r s w e r e significant d e s p i t e
the f r e q u e n t changes i n organization, s h i f t s
i n plans, and ups and downs i n budgets.
Previous experience in large-scale Fede r a l acquisition of s u b m a r g i n a l f a r m s and
r e s e t t l e m e n t of the occupants was l i m i t e d .
In t h e i r s t r u g g l e to get s t a r t e d , the a g e n c i e s
a t t i m e s m a d e m i s t a k e s , and l o s t the confidence of the people concerned. Enough
people with adequate training and e x p e r i e n c e
in the work w e r e not always available. Ont h e - j o b study and t r a i n i n g w e r e n e c e s s a r y .
The work was not always well o r g a n i z e d ,
and t i t l e c l e a r a n c e proved a stumbling
block, a s i t took much t i m e and s p e c i a l i z e d
p e r s o n n e l . Although i t i m p r o v e d with experience, procedure in many instances
was slow a n d c u m b e r s o m e ( & ) . l l
The chief handicaps i n the efficient a d m i n i s t r a t i o n of t h e p r o g r a m w e r e ( 1 ) the slow
l e g a l p r o c e s s e s involved i n t i t l e c l e a r a n c e ,
often to the f r u s t r a t i o n of the p e r s o n o r f a m ily o s t e n s i b l y to be benefited; and ( 2 ) t h e
t r a n s ' f e r of the p r o g r a m f r o m one a d m i n i s t r a t i v e agency to a n o t h e r , with consequent
confusion a s to a i m s and methods. To t h e s e
2 h a n d i c a p s , but mainly a s a c o r o l l a r y of t h e
second, should b e added t h e d i v e r s i o n of
funds a v a i l a b l e f o r the p r o g r a m and the u s e
of p r o g r a m p e r s o n n e l f o r a c t i v i t i e s only
r e m o t e l y r e l a t e d to the p r o g r a m i t s e l f .
In s o m e c a s e s , allocated funds w e r e withd r a w n f o r relief n e e d s , making i t n e c e s s a r y
to c a n c e l options on land, to discontinue
p r o j e c t s , and to d i s c h a r g e p e r s o n n e l . In
s e v e r a l p r o j e c t a r e a s this c a u s e d m u c h
disappointment and led to public c r i t i c i s m .
B e c a u s e of s t r i n g e n t budget and l e g a l
r e s t r i c t i o n s on t h e p u r c h a s e of s u b m a r g i n a l
f a r m l a n d , questions s o m e t i m e s a r o s e a s to
whether t h e p r o j e c t s contributed to t h e
public works and r e l i e f p r o g r a m f r o m which
they w e r e financed and a t the s a m e t i m e
m e t the o t h e r land utilization p r o g r a m obj e c t i v e s . The p r o b l e m of a workable definition of s u b m a r g i n a l land applicable to a l l
regions was n e v e r fully resolved.
(70).
l l ~ i t l eclearance was greatly facilitated as time
went on and more experience was gained with the
various procedures of land acquisition.
Some l a r g e holdings w e r e bought on
which occupants and a g r i c u l t u r a l o p e r a t i o n s
w e r e few, but which could b e turned into
r e c r e a t i o n a r e a s , public f o r e s t s , etc., b e c a u s e of t h e availability of l a b o r , although
t h e i r full development f o r r e c r e a t i o n a l
u s e was p r e m a t u r e i n t h e 1930's. Also,
the p r o g r a m was used to s o m e extent a s
a m e a n s f o r o t h e r public agencies to a c q u i r e unfarmed land f o r t h e i r own s p e c i a l
purposes.
A s the p r o g r a m proceeded, a t t e m p t s
w e r e m a d e to a n s w e r the questions: What
i s s u b m a r g i n a l land? How c a n s u b m a r g i n a l
land b e identified? A thoughtful a n a l y s i s
by John D. Black
began by posing the
question of whether t h e r e i s such a thing
a s "unproductive land," o r " s u b m a r g i n a l
land," s i n c e i t i s h a r d to find land which
does not yield s o m e kind of product. Dr.
Black concluded that if n e t l o s s e s r e s u l t
f r o m f a r m i n g , t h e land i s n e a r l y always
being m i s u s e d . Much s o - c a l l e d s u b m a r g i n a l
land i s land t h a t i s s u b m a r g i n a l l y used;
f o r e x a m p l e , by being planted to c o r n ,
cotton, o r wheat, when i t i s not well suited
to t h e s e c r o p s but i s b e t t e r adapted to
grass o r trees.
Questions w e r e a s k e d about the effect of
the land r e t i r e m e n t p r o g r a m on f a r m l a n d
values and f a r m i n c o m e s i n the a r e a s w h e r e
land p u r c h a s e s w e r e m a d e . Definite and
f i n a l a n s w e r s to t h e s e questions could not
b e m a d e . The influences that a g r i c u l t u r a l
p r o g r a m s e x e r t on land values and incomes
a r e v e r y complex, and cannot b e explained
r e a d i l y i n s i m p l e t e r m s , e s p e c i a l l y when
making a l o n g - t e r m projection.
Since the 19301s, new c r o p v a r i e t i e s ,
different land p r e p a r a t i o n and cultivation
p r a c t i c e s , m o r e t i m e l y o p e r a t i o n s with
mechanization, and b e t t e r c o n t r o l of plant
d i s e a s e s and i n s e c t s have m a d e i t p o s s i b l e
to f a r m s o m e f o r m e r m a r g i n a l land with
g r e a t e r s u c c e s s than i n e a r l i e r y e a r s .
Although the F e d e r a l Government s h a r e d
the i n c o m e f r o m the land with counties,
t r a n s f e r of p r i v a t e l a n d to the Government
was looked on a s a l o s s by l o c a l governm e n t s when they r e a l i z e d that they could
not c o l l e c t t a x e s o r s e l l t a x - r e v e r t e d land
i n Government p r o j e c t s . Contradictions i n
l o c a l situations w e r e often a m a z i n g , howe v e r . L o c a l units e a r n e s t l y sought land cons e r v a t i o n a n d o t h e r F e d e r a l p r o j e c t s involving the p u r c h a s e of r e a l p r o p e r t y , usually
with f u l l knowledge of t h e i r e x e m p t s t a t u s .
Yet they p r o t e s t e d t h e t a x l o s s and often
wanted r e i m b u r s e m e n t f o r both t a x 10s s and
any e x t r a public s e r v i c e c o s t s i n c u r r e d .
(16)
Because of s c a t t e r e d holdings i n s o m e
p r o j e c t s , the Government a t t i m e s had t i t l e
to land that blocked a r e a s s e r v e d by l o c a l
governments, but l o c a l g o v e r n m e n t s could
not discontinue s e r v i c e s to a r e a s under
t h e i r jurisdictions. In s o m e c a s e s w h e r e
local g o v e r n m e n t s had l i t t l e p a r t in planning
the p r o j e c t s , o r w e r e not fully informed,
they questioned Government p u r c h a s e and
tax immunity even though t h e i r s t a t u s m a y
have been i m p r o v e d by r e m o v a l of poor
lands f r o m t h e i r jurisdiction.
P u r c h a s e of land i n l o c a l governmental
units did not b r i n g reduction i n c o s t s of
government in a l l i n s t a n c e s s i n c e the p r o j e c t s did not always follow boundaries of
local units, s o m e i s o l a t e d s e t t l e r s w e r e
allowed to r e m a i n , and few a t t e m p t s w e r e
made to r e o r g a n i z e l o c a l government s e r v i c e s to r e f l e c t the change in land u s e and
population--a field i n which the F e d e r a l
Government h a s no authority. Thus, i t i s
probable that the savings to local governm e n t s a t t r i b u t e d to the land p r o g r a m have
been o v e r e m p h a s i z e d in s o m e i n s t a n c e s .
F e d e r a l acquisition p r o g r a m s always pose
the question of payments in l i e u of taxes.
E x p e r i e n c e with the land p r o g r a m f r o m
the 1930's to the 1960's indicates that this
question h a s not yet b e e n fully s e t t l e d to
the s a t i s f a c t i o n of State and l o c a l governments.
Experience with the land p r o g r a m indicated that s i m p l e p r o c e d u r e s , r e a d i l y
understood and a d m i n i s t e r e d , and not
changed frequently, contributed to the efficiency of work and on the whole brought
the b e s t r e s p o n s e f r o m the public and
f r o m t h e w o r k e r s on the p r o j e c t s . In gene r a l , the g r e a t e r the d e g r e e of uniformity
and s i m p l i c i t y in a d m i n i s t r a t i o n of public
p u r c h a s e and c o n t r o l of public land u s e
within a State, the g r e a t e r the e a s e with
which the n e c e s s a r y work c a n be c a r r i e d
out and the objectives of the p r o g r a m
achieved.
A m a j o r question involving s u b m a r g i n a l
f a r m a r e a s was the extent to which public
p u r c h a s e could be effectively used to b r i n g
about d e s i r a b l e l a r g e - s c a l e a d j u s t m e n t s .
Students of this subject have pointed out
that public acquisition m u s t be supplemented
by cooperative p r o g r a m s between F e d e r a l ,
State, and l o c a l a g e n c i e s if good r e s u l t s
a r e to be achieved. It h a s been questioned
whether i t i s d e s i r a b l e f o r the F e d e r a l
Government to undertake extensive p u r c h a s e of s u b m a r g i n a l f a r m s in l a r g e blocks,
unless e s t a b l i s h m e n t of a National P a r k ,
National Wildlife Refuge, National F o r e s t ,
o r National G r a s s l a n d , o r s o m e o t h e r
s p e c i a l p u r p o s e i s involved.
P r o g r a m s designed to a c q u i r e land occupied by low-income o r i s o l a t e d f a m i l i e s
f o r the p u r p o s e of helping the f a m i l i e s
i m p r o v e t h e i r l e v e l of living, and of conv e r t i n g the land to a l e s s - i n t e n s i v e type
of a g r i c u l t u r e o r to n o n a g r i c u l t u r a l u s ~ e s ,
need t o be accompanied by c o m p l e m e n t a r y
a c t i v i t i e s . The s u c c e s s of the land utilization p r o g r a m depended l a r g e l y upon the
extent to which it was supplemented by
o t h e r p r o g r a m s , including State and county
zoning to r e s e r v e land f o r the u s e f o r which
i t was b e s t adapted and p r o g r a m s to a s s i s t
in the relocation and employment of d i s placed f a m i l i e s . Thus, a threefold c o o p e r a tive p r o g r a m i s n e c e s s a r y , e m b r a c i n g
public p u r c h a s e and c o n v e r s i o n of s t r a t e g i c
a r e a s of s u b m a r g i n a l f a r m l a n d s to u s e s to
which they a r e b e s t adapted and needed,
State and county zoning of lands against
occupancy f o r u s e s f o r which they a r e
physically and economically unsuited, and
a s s i s t a n c e to d i s p l a c e d f a m i l i e s i n r e locating and obtaining employment.
E x p e r i e n c e f r o m 1934 to 1964 shows that
g e n e r a l l y the a g r i c u l t u r a l land utilization
a d j u s t m e n t p r o j e c t s have s e r v e d a s good
d e m o n s t r a t i o n s of what c a n be done in
shifting s u b m a r g i n a l f a r m a r e a s to m o r e
extensive a g r i c u l t u r a l u s e s s u c h a s f o r e s t r y ,
p a s t u r e , and r a n g e , and to needed public
a r e a s f o r wildlife and r e c r e a t i o n . Durine
this 30-year period much p r i v a t e f a r m r e organization h a s o c c u r r e d , with p u r c h a s e
and l e a s e of the land n e c e s s a r y f o r f a r m
e n l a r g e m e n t . C r e d i t p r o g r a m s and p r o g r a m s f o r land and w a t e r development,
i m p r o v e m e n t , and c o n s e r v a t i o n have likew i s e a s s i s t e d in bringing about d e s i r a b l e
shifts in land u s e . In s o m e G r e a t Plains
r a n g e a r e a s of p r i v a t e land i n t e r s p e r s e d
with public land, the e n t i r e a r e a s have
been brought under b e t t e r u s e and managem e n t by m e a n s of l o n g - t e r m a g r e e m e n t s
o r by allowing a l l land to be used by coo p e r a t i v e c o n s e r v a t i o n and grazing a s s o ciations. The u s e of both State and F e d e r a l
land was m a d e available to t h e s e a s s o c i a tions under cooperative a g r e e m e n t s p r o viding f o r good p r a c t i c e s of r a n g e managem e n t under a p r o g r a m s u p e r v i s e d and
controlled by F e d e r a l and State Governments.
A n u m b e r of t h e s e a g r e e m e n t s have exp i r e d , and have been renewed with s i m i l a r
policy a r r a n g e m e n t s . G r a n t s and s a l e s have
been m a d e to States f o r manyof the s m a l l e r
f o r e s t , r e c r e a t i o n , and wildlife a r e a s . The
-
bulk of the a c r e a g e in the l a r g e r p r o j e c t s
h a s been added to n e a r b y National F o r e s t s
and F e d e r a l Grazing D i s t r i c t s , o r h a s
been u s e d in e s t a b l i s h m e n t of new National
F o r e s t s and National G r a s s l a n d s . P r a c t i c e s , p r o c e d u r e s , and land management
organizations f o r the land utilization a r e a s
cited have b e e n r e v i s e d a s new conditions
and needs a r o s e .
The p u r c h a s e of s o l a r g e a n a c r e a g e - 5.6 million a c r e s - - o f s u b m a r g i n a l f a r m land in t h e G r e a t P l a i n s was justified
l a r g e l y b e c a u s e of the widespread m i s u s e
of the land, r e s u l t i n g i n r u r a l poverty and
inadequate f a r m units, and the urgent need
f o r i n c r e a s i n g opportunities f o r employm e n t and i n c o m e in s u c h c o m m u n i t i e s .
H e r e especially, the d e m o n s t r a t i o n a l value
of t h e land utilization p r o j e c t s was shown.
By exhibiting p r o p e r land use to s u r r o u n d ing f a r m e r s and r a n c h e r s and to the public
g e n e r a l l y , the i m p r o v e d p r a c t i c e s and b e t t e r
m a n a g e m e n t s p r e a d beyond the b o r d e r s of
the p r o j e c t s . Although the s u c c e s s of the
p r o g r a m a s a n educational p r o c e s s h a s
n e v e r been fully m e a s u r e d , many people
in the G r e a t P l a i n s and e l s e w h e r e have
s t a t e d that they gained f r o m o b s e r v a t i o n
of and e x p e r i e n c e with the r e s u l t s of the
land utilization p r o g r a m .
The m a j o r group action a l t e r n a t i v e s to
public p u r c h a s e of s u b m a r g i n a l f a r m a r e a s
in t h e G r e a t P l a i n s i n the 1930's w e r e
c o o p e r a t i v e g r a z i n g a s s o c i a t i o n s to l e a s e
and m a n a g e l a r g e blocks of land a s c o m munity-type p a s t u r e s , adoption of land use
o r d i n a n c e s by s o i l c o n s e r v a t i o n d i s t r i c t s ,
r u r a l zoning, block leasing of r a n g e l a n d s
by individual r a n c h e r s , graduated taxation
in a c c o r d a n c e with u s e and capability of
the land, and county c o n t r o l o r m a n a g e m e n t of land unsuitable f o r cultivation. It a p p e a r s that no one of t h e s e m e a n s alone would
have b e e n e n t i r e l y s a t i s f a c t o r y . They w e r e
m o s t effective when used i n combination.
As was o b s e r v e d in land utilization p r o j e c t a r e a s in the 1930's by one w r i t e r , r u r a l
zoning followed by relocation will help
m a k e both m o r e s u c c e s s f u l (E).
Perhaps
in t i m e , F e d e r a l p u r c h a s e a s the m o s t effective way of c o r r e c t i n g a b u s e s can b e
r e p l a c e d to s o m e extent by m o d e r a t e public
educational and a d m i n i s t r a t i v e a i d s f o r
guiding land u s e , land and w a t e r developm e n t , and p r i v a t e s e t t l e m e n t , and f o r s u p e r vising c r e d i t and handling tax-delinquent
lands ( a s f o r example, under the F u l m e r
A C ~ ) . ' ~
12Public Law No. 395, 74th Cong., ZndSess., 1936.
C l e a r distinction should be m a d e between relief m e a s u r e s taken in a tempor a r y e m e r g e n c y , and m e a s u r e s t a k e n a s p a r t
of a p e r m a n e n t National p r o g r a m . If this
distinction i s m a d e , land
and p r o g r a m s f r o m the o u t s e t can b e t t e r s e r v e a
useful purpose.
John D. Black (16), in 1945, wrote "...the
p r o g r a m that gets-nearest
to dealing with
this problem i s the land utilization p r o gram
This i s the p r o g r a m f o r buying
rundown t r a c t s of land, rehabilitating and
r e o r g a n i z i n g them into economic units,
and then leasing them back into private
o w n e r s h i p ( o r g r o u p s of o p e r a t o r s ) . Apparently, t h i s p r o g r a m i s conceived a t
p r e s e n t (1945), like the Wisconsin and
New York p r o g r a m s , mainly a s a p r o g r a m
f o r taking land out of r e g u l a r f a r m u s e
and getting i t into s p e c i a l u s e s , such a s
t i m b e r , g r a z i n g o r meadow. Where shift
of land, l a r g e l y f r o m one m a j o r u s e c l a s s
to a n o t h e r , i s needed- -and situations of this
s o r t a r e not h a r d to f i n d - - s u c h p r o c e d u r e s
a r e indicated."
A land r e t i r e m e n t p r o g r a m should be
p a r a l l e l e d by a p r o g r a m f o r finding f a r m
jobs. A r e t i r e m e n t p r o g r a m cannot solve
the land p r o b l e m when occupants lack
b e t t e r opportunities e l s e w h e r e . The l a r g e s t
a r e a s of poor land a r e t h o s e in need of
reforestation,
regrassing,
conservation
p r a c t i c e s , o r d r a i n a g e - - a l l costly o p e r ations which r e q u i r e w o r k e r s . It i s not
inconceivable that F e d e r a l p r o g r a m s could
be developed to r e c l a i m poor land a r e a s
and f u r n i s h employment should i t b e needed.
But whatever m e a n s a r e taken to develop
income opportunities f o r f a m i l i e s in poor
land a r e a s , t h e s e people should have a p a r t
i n the p r o g r a m , and should wholeheartedly
a c c e p t the plan. T h e m o r e responsibility
l o c a l people a s s u m e f r o m the beginning,
the m o r e likely a r e they to c o o p e r a t e l a t e r .
Another l e s s o n l e a r n e d a t s o m e c o s t i s
that with the exception of c a s e s calling f o r
i m m e d i a t e evacuation, f a m i l i e s should be
withdrawn f r o m a n a r e a g r a d u a l l y and o v e r
a n extended period. This p r o c e d u r e will
r e s u l t i n l e s s d i s r u p t i o n to people, local
g o v e r n m e n t s , and s o c i a l institutions. In the
end, i t m a y even prove that a l l the land
i n a n a r e a need not b e purchased. By
purchasing d e m o n s t r a t i o n a r e a s and using
them f o r public p u r p o s e s , the key to sound
land u s e o v e r a wide a r e a m a y be provided
(156). The s u c c e s s f u l cooperation of the
Soil C o n s e r v a t i o n S e r v i c e a n d the F a r m
S e c u r i t y A d m i n i s t r a t i o n i n c a r r y i n g out
such a p r o g r a m i n s o m e of the Georgia
. ..
p r o j e c t s h a s b e e n d e s c r i b e d on pages 22 and
23.
The land utilization p r o g r a m of the 1930's
was r u r a l development in action. In n u m e r ous a r e a s of the c o u n t r y i t a s s i s t e d i n
c o n s e r v a t i o n and i m p r o v e m e n t of t h e land
and w a t e r r e s o u r c e s , and i n p r o t e c t i n g the
health, s a f e t y , and w e l f a r e of t h e people.
Its methods of achieving b e t t e r land u s e
and c o n s e r v a t i o n w e r e d i r e c t e d p r i m a r i l y
a t economic i m p r o v e m e n t , t h e physical
development of land and w a t e r being a m a j o r
m e a n s of bringing m o r e jobs, l a r g e r inc o m e s , and s o c i a l advantages.
In a l m o s t e v e r y a r e a w h e r e land u t i l i z a tion p r o j e c t s w e r e located they led to a n
i n c r e a s e i n work o p p o r t u n i t i e s , to job
t r a i n i n g , and to alleviation of poverty. In
o r d e r to m e e t t h e i r living e x p e n s e s , f a r m e r s
on s u b m a r g i n a l land i n m a n y a r e a s had
c o n c e n t r a t e d on c a s h c r o p s of cotton, wheat,
c o r n , and tobacco, had cut o v e r t h e i r woodl a n d s , o r had o v e r g r a z e d t h e i r range. Subm a r g i n a l land prevented t h e m on the one
hand f r o m p r a c t i c i n g s t a b l e types of f a r m i n g ,
while on the o t h e r hand i t f o r c e d t h e m to
exploitative u s e of land, w a t e r , t r e e s , and
grass.
The r e s u l t s of e x p e r i e n c e with the land
utilization p r o g r a m of the 1930's m a y p r o vide useful guides f o r f u t u r e p o l i c i e s and
p r o g r a m s dealing with land u s e a d j u s t m e n t ,
c o n s e r v a t i o n , r u r a l development, and a l l e viation of r u r a l poverty.
II. EXAMPLES OF LAND UTILIZATION PROJECTS
T h e s c o p e , o b j e c t i v e s , and r e s u l t s of t h e
land u t i l i z a t i o n p r o g r a m of t h e 1 9 3 0 ' s m a y
b e i l l u s t r a t e d by 12 widely d i f f e r e n t t y p e s
of p r o j e c t s . E a c h of the 12 p r o j e c t s s e r v e d
s o m e w h a t d i f f e r e n t p u r p o s e s , a c c o r d i n g to
t h e l a n d u s e and r e l a t e d p r o b l e m s of t h e
r e g i o n w h e r e i t was l o c a t e d .
C a s e s t u d i e s of 3 of t h e a g r i c u l t u r a l
d e m o n s t r a t i o n p r o j e c t s a r e g i v e n in d e t a i l
to i l l u s t r a t e t h e s e l e c t i o n of p u r c h a s e
a r e a s ; t h e i r c o m p o s i t i o n ; how they w e r e
a c q u i r e d , d e v e l o p e d , a n d m a n a g e d ; and
their disposition, use, and accomplishm e n t s . N e a r l y e v e r y p r o j e c t was a s p e c i a l
c a s e by i t s e l f , b e c a u s e of t h e wide diff e r e n c e in land use problems i n the various
r e g i o n s of the c o u n t r y . H o w e v e r , enough
s i m i l a r i t i e s e x i s t e d to m a k e s t u d i e s of e x p e r i e n c e s of individual a g r i c u l t u r a l p r o j e c t s
u s e f u l i n u n d e r s t a n d i n g the p r o g r a m and
its results.
Nine o t h e r p r o j e c t s a r e c i t e d b r i e f l y to
s h o w t h e g r e a t v a r i e t y of l a n d u s e p r o b l e m s ,
t h e chief t y p e s of p r o j e c t s a u t h o r i z e d , a n d
s o m e of t h e r e s u l t s of t h e p r o g r a m .
T h e o r i g i n a l n a m e s of the 12 p r o j e c t s ,
a n d t h e i r p r e s e n t s t a t u s , a r e given below:
Original land utilization projects,
1934-39
-
Federal and State projects formed from
land utilization projects
Projects now assigned to Federal
use:
Piedmont and North Central
Georgia (Ga.-3 and 22)
Perkins-Corson (S. Dak.-21)
Badlands Fall River (S. Dak.-1)
Milk River (Mont.-2)
Morton County (Kans.-21)
Oconee National Forest and Hitchiti Experimental Forest Station1
Grand River National Grassland
Buffalo Gap National Grassland
Milk River Federal Grazing District
Cimarron National Grassland
Projects now assigned to State use:
French Creek (Pa.-7)
Bean Blossom (1nd.-4)
Beltrami (Minn.-3)
Bladen Lakes (N.C.-4)
Clemson (S.C.-3)
Sandhills (N.C.-3)
New York Land (X.Y.-4)
French Creek State Park
Yellowwood State Forest
Beltrami State Wildlife Management Area
Bladen Lakes State Forest
Clemson College Forest
Sandhills State Wildlife Management Area
New York State Forest
'For details of 1960 use, see tabulation on p. 43.
OCONEE NATIONAL FOREST AND ADJACENT WILDLIFE REFUGES,
EXPERIMENT STATIONS, AND PARKS
E x a m p l e s of the a g r i c u l t u r a l l a n d u t i l i z a tion p r o j e c t s i n t h e S o u t h e a s t e r n S t a t e s a r e
the 2 P i e d m o n t p r o j e c t s , s i t u a t e d l e s s t h a n
75 m i l e s s o u t h e a s t of A t l a n t a a n d j u s t n o r t h
of Macon. F i g u r e 11 g i v e s t h e l o c a t i o n of
the Plantation Piedmont P r o j e c t (CA-3) and
o t h e r G e o r g i a p r o j e c t s e s t a b l i s h e d by 1935.
The P l a n t a t i o n P i e d m o n t P r o j e c t was one
of the f i r s t p r o j e c t s to b e u n d e r t a k e n u n d e r
the land u t i l i z a t i o n p r o g r a m . T h e o t h e r
Piedmont project, North Central Georgia
( C A - 2 2 ) , was s t a r t e d i n a d j a c e n t C r e e n e
County i n 1937-38. F r o m t h e s e p r o j e c t s
l a t e r w e r e f o r m e d t h e O c o n e e National
F o r e s t , P i e d m o n t N a t i o n a l Wildlife Refuge,
National a n d S t a t e p a s t u r e a n d f o r e s t e x p e r i m e n t stations, and State and local parks
a n d r e c r e a t i o n a l a r e a s . H e r e the p u r c h a s e
a n d d e v e l o p m e n t of the land i n h u n d r e d s of
p a o r , e r o d e d , p a r t l y i d l e c o t t o n f a r m s was
c a r r i e d out to s h o w how s u c h l a n d could b e
r e s t o r e d a n d c o n v e r t e d to m o r e p r o d u c t i v e
u s e s f o r b e n e f i t of t h e o c c u p a n t s and a l l
people of the r e g i o n .
T h e Old Cotton B e l t i n t h e 1 9 3 0 1 s , of
which t h e P i e d m o n t p r o j e c t s w e r e a p a r t ,
was and s t i l l i s a r e g i o n of shifting n e e d s
and u s e s f o r f a r m l a n d . Changes in demand
f o r a g r i c u l t u r a l p r o d u c t s , together with
competition f r o m new lands of the M i s s i s sippi R i v e r Delta and the newly developed
i r r i g a t e d p r o j e c t s of the West, contributed
to the shift of land f r o m cotton, f i r s t to
t e m p o r a r y i d l e n e s s , then a f t e r a few y e a r s
to f o r e s t a s t r e e s e e d s s c a t t e r e d and had
t i m e to grow. Growth of population beyond
the capacity of the land to s u p p o r t i t f r o m
a g r i c u l t u r e alone led to m i g r a t i o n f r o m the
f a r m to jobs in n e a r b y cities and to o t h e r
States.
The Piedmont p r o j e c t s w e r e in the B r i e r
P a t c h Country, made f a m o u s by J o e l
Chandler H a r r i s . When, 3 g e n e r a t i o n s a g o ,
H a r r i s w r o t e the s t o r i e s told h i m by Uncle
Remus about the a d v e n t u r e s of B r ' e r Rabbit
and B r ' e r F o x , and o t h e r fabled occupants
of the f i e l d s and woodlands of the B r i e r
P a t c h Country of the L o w e r Piedmont, i t
a l r e a d y was a fading example of the old
cotton f a r m s y s t e m . F a r m s w e r e becoming
s m a l l e r b e c a u s e of divisions among m o r e
people dependent upon the land, and l e s s
productive b e c a u s e of depletion of s o i l and
r a v a g e s of e r o s i o n c a u s e d by a c e n t u r y of
continuous r o w - c r o p f a r m i n g .
In 1934, when the p r o j e c t s w e r e u n d e r taken, a n e s t i m a t e d 90 p e r c e n t of the land
i n the p r o j e c t a r e a s had b e e n in cultivation
a t s o m e t i m e i n the p a s t 100 y e a r s . Thous a n d s of a c r e s w e r e once c l e a r e d a t g r e a t
l a b o r and put under cultivation f o r c r o p s .
Many thousands of a c r e s w e r e involved in
the rotation f r o m f o r e s t to f i e l d s , then
back to woods, and p e r h a p s on to a second
o r a third clearing.
Much of the land, while o r i g i n a l l y f e r tile, was not well adapted to continuous
r o w - c r o p f a r m i n g b e c a u s e of m o d e r a t e to
s t e e p s l o p e s and e r o s i o n . The land r e q u i r e d
e i t h e r c o n s e r v a t i o n p r a c t i c e s in cultivation
o r long n a t u r a l r e s t o r a t i o n p e r i o d s i n
p a s t u r e and f o r e s t .
A c r e a g e s of cropland h a r v e s t e d in the
counties w h e r e the p u r c h a s e p r o j e c t s w e r e
located was a t a peak f r o m 1910 to 1920,
but dropped m o r e than 50 p e r c e n t by 1930,
m o r e than 80 p e r c e n t by 1960. Much of the
big d e c l i n e f r o m 1920 to 1930 was b e c a u s e
of the s e v e r e l o s s e s in cotton production
r e s u l t i n g f r o m the heavy infestation of the
cotton boll weevil. E r o s i o n d a m a g e to the
land a l s o had taken a heavy toll i n f e r t i l i t y
and i n suitability of land f o r cultivation.
I n s e c t and e r o s i o n d a m a g e s i n the 1920's
combined with the economic l o s s e s b e c a u s e of the d e p r e s s i o n in the 1930's d i s couraged f a r m e r s f r o m the continued outl a y s r e q u i r e d f o r cotton f a r m i n g . F a i l u r e
to m e e t e x p e n s e s f o r 2 to 3 y e a r s left
m a n y f a r m e r s , m e r c h a n t s , and b a n k e r s in
the a r e a b r o k e o r on the m a r g i n of bankruptcy.
P a s t u r e a c r e a g e s i n c r e a s e d during t h e s e
y e a r s , along with d a i r y i n g and beef c a t t l e
p r o d u c t i o n : ~ P a s t u r e a c r e a g e s , however,
w e r e relatively s m a l l , and occupied only
a m i n o r p a r t of the c r o p l a n d l e f t out of
cultivation. By f a r the g r e a t e r p a r t of the
uncultivated cropland a c r e a g e a f t e r a few
y e a r s of weed, b r i e r , and b r o o m s e d g e
growth r e t u r n e d r a t h e r quickly to volunteer
f o r e s t . A s i m i l a r p a t t e r n of change i n u s e
of cropland o c c u r r e d in s o m e 30 o t h e r
Lower Piedmont Georgia counties.
Land Use Plans in the 1930's
The Piedmont land utilization p r o j e c t s
w e r e initiated a s the r e s u l t of detailed
s u r v e y s which w e r e m a d e f r o m 1932 to
1934 by m e n f r o m the Georgia A g r i c u l t u r a l
E x ~ e r i l n c n tS t a t i o n , t h c B u r r a u of Q s i c u l tural E c o n o m i c s , t h e D u r c l a u of C h e m i s t r y
a n d S o i l s , a n d t h e F o r e s t S ~ T V ~ CThe
C . results n i t h e s e s u r v e y s w e r e published, in
p a r t , a s r e s a a r c h s t u d i e s (67). Of p a r t i c u l a r i n k ~ r e s tw a s a land c l a s s i f i c a t i c r n m a p o f
t h e 4 c o u n t i e s of t h e p r o j e c t a r e a [ f l ~ 12).
.
T h e o r i c i n a l p l a n s , made in c o o p e r a t i o n
nxith t h e p e o p l e o f t h e a r e a , c a I l e d for p u r c h a s e a n d d e v e l o p m e n t of d c m o n s t r a t i o n
f o r e s t s , p s s t u r ~ r t , wlldlifr: r e f u g e s , and
r e c r e a t m n a l a r e a s , t a b l i n g 150,000 a c r e s
of m a r g i n a l to s u b r n ~ r g i n a lc o t t o n f a r m Land. T h e plans includhd p r o v i s i o n s f o r
r e s e t t l ~ m e n t and e m p l o y m c n k of f a m i l i e s
occupying t h e l a n d p u r c h a s e d . S h o r t a g e of
f u n d s a n d c h a n g e s In t h e p u r c h a s e p r o g r a m
h e l d t h c a c r e a g e a c t u a l l y a c q u i r e d to 144,000
a c r e s . This land w a s d e v e l o p e d a s p l a n n e d .
S e v e r a l h u n d r e d w o r k e r s , s o m e of them
f o r m e r o c c u p a n t 5 of the l a n d p u r c h a s e d ,
a n d s o m c of them f r o m n e a r b y f a r m s a n d
s m a l l towns, were e m p l o y e d f o r 3 or m o r e
y e a r s i n d e v e l o p m e n t work.
N a t u r a l r e s t o c k i n g of f o r e s t a r c a s In
pine trees w a s a i d e d b y m a n a z t d p r a c t ~ c c s
a n d f i r c p r o t e c t m n m t a s u r c r , and suppler n e n t ~ dby planting t r e e s o n o p e n i d l e land.
In t h ~ sm a n n e r , m a n y t h o u s a n d s of acrvs o i
badly e r o d e d , rundovm, h i l l y f a r m l a n d w e r e
s o o n w c l l s t o c k c d with r a p i d l y growing
t r e e s . By iVorld 'il'ar 11, 10 p a r s l a t e r , t h e
n a t u r a l f o r e s t s w e r e bcginninz t o s u p p l y
m u c h - n e e d e d l u m b e r , p o l e s , a n d pulpwood
f r o m sus tained-yield cuttings.
U s e of Project Resources in the 19GO's
PIEDMONT LAND
U T I L I Z A T I O N PROJECT
Figure 1 2
A f t e r 30 ycars, t h e public f o r e s t s a r e
s u c c e s s f u l c o m m e r c i a l o p e r a t i o n s . N o t only
d o t h e y r e t u r n a c a s h i n c o m e to m a n a g e m e n t a g e n c i e s , t i m b e r o p e r a t o r s , and w o r k men, b u t e v e n m o r e i m p o r t a n t , they serve
a s v i s i b l e d c r n o n s t r a t i o n s of good forest
m a n a ~ e r n e n ti n a r e g i o n w h e r e m i l l i o n s of
a c r e s of p r i v a t e l y o w n e d , unneeded, e r o d e d
f o r m e r c o t t o n f a r m s have reverted to f o r e s t .
T h e s e public f o r e s t s a r e warchcd closcly
b y f a r m e r s a n d o w n e r s and o p e r a t o r s of
f o r e s t l a n d to l e a r n the b e s t ..r2ays of f o r e s t
management.
S o m e nf the m o s t p r o d u c t i v e f n r c s t l a n d s
i n t h e region a r e m a r k e d b y o l d f u r r o w s ,
a s abandoned fields usually have b e t t e r
s o i l , a r t e a s i e r to p r e p a r e a n d p l a n t to
t r e e s , a n d 3 r e m o r e accessible thah woodlands i n general.
F r o m the 2 P i e d m o n t l a n d u t i l i z a t i o n
p r o j e c t s , 6 l a n d use a r e a s w e r e f o r m e d .
Thr? d e m o n s t r a t i o n a l and recreational feat u r e s of a l l 6 areas a r c well d r v e l o p e d
a n d widely u s e d . W h i l e each unit h a s b e e n
s e t a p a r t f o r a p r i m a r y public p o r p o s c , a l l
h a v e v a r i e d m u l t i p l e u s e s , including f o r e s t ,
wildlifc, p a s t u r e , r e c r e a t i o n , w a t e r s h e d
protection, conservation demonstration, and
education.
I
L i s t e d below a r e the m a j o r u s e a r e a s
f o r m e d f r o m t h e P i e d m o n t and N o r t h
Maior Use Assignments. 1961
Oconee National Forest
Uncle Remus Ranger District (GA-3)
Redlands Ranger District (GA-22)
C e n t r a l G e o r g i a Land Utilization P r o j e c t s
(GA-3 a n d GA-22):
Administering Agency
Forest Service
1,
Total Oconee National Forest
Hitchiti Experimental Forest (GA-3)
Total, Forest Service
Piedmont National Wildlife Refuge (GA-3)
Georgia State Experiment Station
(Pasture & Forest) (GA-3)
Rock Eagle State Park & 4-H Club camp
and center (GA-3)
Jones County Recreational Area (GA-3)
Fish & Wildlife Serv.
Ga. State Expt. Sta.
Ga. State Park Serv. &
State University
County Board of
Commissioners
Total (GA-3)
Total (GA-22)
Grand total
From administering agency records and reports, 1961.
Income and Expenditures
Timber Sales
T i m b e r s a l e s f r o m t h e Oconee National
F o r e s t f o r t h e 9 y e a r s 1955-63 a v e r a g e d
12,963 thousand f e e t b o a r d m e a s u r e , and
w e r e valued a t $354,064. T i m b e r s a l e s i n clude s a l e s of pulpwood, f u e l wood, a n d
p o l e s , a s well a s l u m b e r . A l l t i m b e r s a l e s
have b e e n c o n v e r t e d to thousand f e e t b o a r d
m e a s u r e f o r t h e s a k e of s u m m a r i z i n g t o t a l
v o l u m e and v a l u e .
T h e Uncle R e m u s R a n g e r D i s t r i c t
A s a n i l l u s t r a t i o n of t h e i n c o m e f r o m
p r o j e c t l a n d s , a s u m m a r y of r e c e i p t s and
disbursements i s presented h e r e for the
Uncle I i e m u s R a n g e r D i s t r i c t of the Oconee
National F o r e s t . T h e 1960 a u d i t o r ' s r e p o r t
showed r e c e i p t s of $388,294, of which
$360,904 w a s f r o m t h e s a l e of f o r e s t p r o d u c t s . T o t a l d i s b u r s e m e n t s f o r 1960 w e r e
$322,910. Most of t h e d i s b u r s e m e n t s w e r e
f o r p e r s o n a l and c o n t r a c t s e r v i c e s , s u p p l i e s , a n d m a t e r i a l s u s e d f o r mainte.nance,
p r o t e c t i o n of t h e a r e a , a n d i m p r o v e m e n t s
s u c h a s a c c e s s r o a d s a n d d e v e l o p m e n t of
recreational areas.
T h e l e a s e u n d e r which t h e p r o j e c t w a s
o p e r a t e d by the s o i l c o n s e r v a t i o n d i s t r i c t s
e x p i r e d a t t h e end of 196 1. Beginning with
1962, the land h a s b e e n m a n a g e d d i r e c t l y
by the National F o r e s t S u p e r v i s o r f o r
G e o r g i a , a c c o r d i n g to r e g u l a t i o n s g o v e r n ing the a d m i n i s t r a t i o n of National F o r e s t s .
According to the a u d i t o r ' s r e p o r t ,
$298,639.38 was expended i n 1961 f r o m
a c c u m u l a t e d r e c e i p t s f r o m s a l e of p r o j e c t
products f r o m the land, f o r improvement
of t h e l a n d i n t h e Uncle R e m u s R a n g e r
D i s t r i c t . The i m p r o v e m e n t s included cons t r u c t i o n of 19.7 m i l e s of r o a d to s e r v e the
c o m m e r c i a l f o r e s t a r e a s a t a c o s t of
$172,261.07, d e v e l o p m e n t of 2 n e w r e c r e a tion a r e a s , Hillsboro Lake and Sinclair
L a k e K e c r e a t i o n A r e a s , a t a c o s t of
$120,590.43, a n d c o n s t r u c t i o n of a w a t e r
s y s t e m a n d well a t p r o j e c t h e a d q u a r t e r s
a t a c o s t of $5,787.88.
Recreation
Management
T h e r e c r e a t i o n a r e a i m p r o v e m e n t s cons i s t e d of paved a c c e s s r o a d s ; c l e a r e d and
g r a d e d c a m p s i t e s , picnic g r o u n d s , p a r k i n g
l o t s , a n d t r a i l s ; buildings s u c h a s b a t h h o u s e s
and r e s t a n d d r e s s i n g r o o m s ; w a t e r a n d
s e w e r s y s t e m s ; and g r i l l s , picnic t a b l e s ,
boat d o c k s , s w i m m i n g f a c i l i t i e s , g a r b a g e
a n d t r a s h c a n s , and o t h e r e s s e n t i a l equipm e n t . T h e r o a d s i n t h e f o r e s t w e r e built
c h i e f l y to p r o v i d e a c c e s s to c o m m e r c i a l f o r e s t a r e a s f o r maintenance work, protection
f r o m f i r e , cutting and handling t i m b e r , a n d
u s e by r a n g e r s , g a m e w a r d e n s , and h u n t e r s .
Additional r e c r e a t i o n a l f a c i l i t i e s w e r e
being developed i n t h e Oconee National
F o r e s t i n 1963 a n d 1964. One r o a d s i d e p a r k
h a s b e e n c o m p l e t e d and p i c n i c a r e a s d e veloped a t 2 l a k e s , plus 2 w a y s i d e p a r k s i n
t h e w e s t e r n p a r t of t h e a r e a . F a c i l i t i e s a r e
a v a i l a b l e f o r boating a t 2 a r e a s , a n d s w i m m i n g a t one. Two camping s i t e s have b e e n
c o m p l e t e d r e c e n t l y and s e v e r a l o t h e r c a m p ing s i t e s a r e a l s o planned i n d i f f e r e n t a r e a s .
T h e v i s i t o r s to r e c r e a t i o n a r e a s i n t h e
Oconee National F o r e s t a v e r a g e d 45,700
p e r y e a r f r o m 1959 to 1963. T h e n u m b e r
i n c r e a s e d to m o r e than 75,000 annually i n
1963 and 1964.
R e c r e a t i o n i s o n e of t h e m a j o r u s e s of
the P i e d m o n t p r o j e c t a r e a s . In addition to
H i l l s b o r o L a k e a n d S i n c l a i r L a k e , new
r e c r e a t i o n a l a r e a s i n the Oconee National
F o r e s t , t h e r e a r e 2 o l d e r s i t e s . One of
t h e s e r e c r e a t i o n s i t e s , t h e Rock E a g l e P a r k
development, is centered around a famous
Indian r o c k m o u n d - - a p r e h i s t o r i c effigy
t h a t h a s b e e n r e s t o r e d , i n P u t n a m County,
n e a r Eatonton. T h e 1 0 0 - a c r e l a k e p r o v i d e s
f a c i l i t i e s f o r p i c n i c s , bathing, boating, a n d
fishing. It f i r s t was l e a s e d , t h e n t r a n s f e r r e d
by g r a n t , to the 4-H Club G r o u p C a m p and
C e n t e r . T h e public h a s a c c e s s to bathing,
boating, and picnic f a c i l i t i e s on o n e s i d e
of t h e l a k e . O t h e r h i s t o r i c a l s i t e s i n t h e
a r e a a r e t h e r u i n s of o n e of t h e e a r l i e s t
cotton m i l l s i n G e o r g i a , built about 1812 i n
t h e S c u l l ' s Shoal a r e a , and two l a r g e p r e h i s t o r i c Indian mounds about one-half m i l e
s o u t h of t h i s s i t e . A n o t h e r r e c r e a t i o n a l
unit, which h a s been i n u s e f o r s e v e r a l
y e a r s a t M i l l e r C r e e k L a k e i n J o n e s County
n e a r G r a y , c o n s i s t s of a 2 5 - a c r e l a k e t h a t
p r o v i d e s f a c i l i t i e s f o r picnicking, bathing,
boating, a n d fishing. It was t r a n s f e r r e d b y
g r a n t to t h e B o a r d of C o m m i s s i o n e r s f o r
J o n e s County.
Since 1943, t h e a d m i n i , s t e r i n g a g e n c i e s
f o r a r e a s now i n t h e Oconee National F o r e s t
and t h e P i e d m o n t National Wildlife Refuge
p r o j e c t s h a v e h a d a c o o p e r a t i v e wildlife
p r o g r a m with t h e G e o r g i a G a m e and F i s h
C o m m i s s i o n . The wildlife m a n a g e m e n t a r e a
c o n t a i n s about 43,000 a c r e s of p r i v a t e and
G o v e r n m e n t l a n d , m a n a g e d f o r d e e r , wild
t u r k e y , and o t h e r wildlife. T h r e e m a n a g e d
d e e r hunts h a v e b e e n h e l d i n r e c e n t y e a r s
(1959-63) with s o m e 1,000 o r m o r e h u n t e r s
participating.
T h e r e m a i n d e r of the p r o j e c t a r e a i s
o p e n s e a s o n a l l y f o r s m a l l - g a m e hunting.
AS a r e s u l t of t h e m a n a g e m i n t a r e a prdg r a m , d e e r h a v e i n c r e a s e d and s p r e a d to
adjoining a r e a s to s u c h a n extent that a
15-day o p e n s e a s o n b e f o r e t h e m a n a g e d
hunts i s p o s s i b l e on both t h e p r o j e c t and
county l a n d s o u t s i d e of t h e m a n a g e m e n t
a r e a . T h e r e i s c l o s e c o o p e r a t i o n with t h e
U.S. F i s h a n d Wildlife S e r v i c e p r o g r a m on
the adjoining P i e d m o n t National Wildlife
Refuge, f o r m e r l y a p a r t of t h e l a n d u t i l i z a tion p r o j e c t a r e a .
T h e P i e d m o n t l a n d utilization p r o j e c t s
h a v e c o o p e r a t e d i n a n d helped s u p p o r t a
f i r e - c o n t r o l a g r e e m e n t with the G e o r g i a
F o r e s t r y C o m m i s s i o n , the F i s h a n d Wildlife Service, the H i t c h i t i Experimental
F o r e s t , the F o r e s t Service, and the Georgia
A g r i c u l t u r a l E x p e r i m e n t Station p r o j e c t .
This cooperative p r o g r a m i s closely r e l a t e d to t h e o p e r a t i o n s of a l o c a l pulp m i l l
a n d l u m b e r c o m p a n y holdings adjoining the
area.
T h e a r e a i s p a r t i c u l a r l y s u i t e d f o r continued m u l t i p l e - u s e a d m i n i s t r a t i o n a n d
m a n a g e m e n t . It h a s a definite r e l a t i o n s h i p
to t h e w a t e r s h e d n e e d s and b e n e f i t s of the
l o c a l community. It l i e s within the w a t e r s h e d of t h e l a r g e G e o r g i a P o w e r Company
Sinclair Lake development, immediately
south of t h e p r o j e c t , a n d i s within the
w a t e r s h e d of t h e p r o p o s e d G r e e n B r i e r
C r e e k Flood Prevention Project.
Multiple-use management f o r f o r e s t s ,
wildlife, p a s t u r e s , hunting, fishing, a n d
r e c r e a t i o n , a n d d e m o n s t r a t i o n s of developm e n t , c o n s e r v a t i o n , and u s e of l a n d and
w a t e r a r e p r a c t i c e d throughout t h e 144,238a c r e p r o j e c t a r e a , t h u s i n s u r i n g u s e of a l l
r e s o u r c e s to good advantage. The concept
of m u l t i p l e u s e i s , of c o u r s e , modified
w h e r e n e e d e d f o r r e c o g n i t i o n of p a r a m o u n t
rights and responsibilities.
land utilization p r o j e c t s o r g a n i z e d i n South
Dakota, and one of the l a s t p r o j e c t s initiated
i n the Nation. As a r e s u l t , i t profited f r o m
e x p e r i e n c e gained i n o t h e r a r e a s . F i g u r e 13
shows the location of the P e r k i n s - C o r s o n
and o t h e r p r o j e c t s i n South Dakota.
One r e a s o n f o r m a n a g e m e n t of g r a z i n g
on National G r a s s l a n d s by g r a z i n g a s s o c i a t i o n s i s that i t f u r n i s h e s a r e a d y m e a n s
of extending uniform land u s e c o n t r o l s
beyond the boundaries of p u r c h a s e d land,
and thus a s s i s t s i n b e t t e r u s e and m a i n t e nance of the e n t i r e a r e a than if u n d e r t a k e n
t r a c t by t r a c t . The land i n the Grand R i v e r
National G r a s s l a n d i s managed with a s s o c i a t e d p r i v a t e and public l a n d by a Statea u t h o r i z e d g r a z i n g a s s o c i a t i o n under a
g r a z i n g a g r e e m e n t with the F o r e s t Service.
Livestock a r e g r a z e d on the l a n d under a
After painstaking study f r o m 1954 to 1960
by the F o r e s t S e r v i c e of the b e s t u s e and
m a n a g e m e n t p r o c e d u r e s f o r the land u t i l i z a tion p r o j e c t s i n the G r e a t P l a i n s , s e v e r a l
a g r i c u l t u r a l p r o j e c t s i n South Dakota w e r e
established a s National G r a s s l a n d s . In 1960,
the P e r k i n s -Carson p r o j e c t w a s e s t a b l i s h e d
a s the Grand R i v e r National G r a s s l a n d .
The P e r k i n s -Carson Land Utilization
Project represented a completely different
situation f r o m that i n P i e d m o n t Georgia.
H e r e , l a n d used f o r d r y l a n d f a r m i n g with
exceptionally low wheat yields was a c q u i r e d
and c o n v e r t e d into a g r a z i n g a r e a , and
f a r m e r s and r a n c h e r s on land p u r c h a s e d
w e r e aided i n relocating on b e t t e r land. The
p r o j e c t contains 155,428 a c r e s , located
along the G r a n d R i v e r i n P e r k i n s and C o r s o n Counties. The p r o j e c t was the l a s t of 5
OCTOBER 1.1938
LAND
UTlLlZATlON PROJECTS
%=.LC.
"fLE5
,,.T"TC
m
to
0
SOUTH
to
20
>o
.n
DAKOTA
Figure 13.--South Dakota land utilization projects.
l3 References used in preparing this section are bibliography references (3, 46, 47, and 133), and a paper
presented at a ranger-manager meeting, Custer National Forest, March 1955, by D. A. Dyson, entitled "Philosophy and General Policies of Land Utilization--How It Was Accepted by the User."
45
c o m m o n p e r m i t s y s t e m by f a r m e r s a n d
r a n c h e r s who h a v e a n a d e q u a t e f e e d b a s e
to support t h e i r livestock during the time
they a r e not on a s s o c i a t i o n c o n t r o l l e d land.
History of the South Dakota Land
Utilization Projects
The land u t i l i z a t i o n p r o j e c t a r e a s i n
w e s t e r n South Dakota c o n s i s t of s o m e of
the p o o r e s t l a n d i n t h e S t a t e f o r c u l t i v a t e d
crops. Before the homesteader reached
t h e s e a r e a s , r a n c h e r s w e r e u s i n g t h i s land
without p e r m i t . Land n e a r w a t e r w a s h e a v i l y
g r a z e d , while m a n y a r e a s without w a t e r
n e a r b y w e r e not u s e d a t a l l . During t h a t
p e r i o d , a c c e s s to w a t e r w a s a k e y to cont r o l of s u r r o u n d i n g land. B e c a u s e t h e
r a n c h e r w a s often without l e g a l c o n t r o l of
s u f f i c i e n t r a n g e f o r efficient r a n c h o p e r a t i o n s , h e c o n c e n t r a t e d on c o n t r o l of a c c e s s
to w a t e r a s a m e a n s of c o n t r o l l i n g l a n d to
which h e h a d no valid c l a i m s to o w n e r s h i p .
But t h e h o m e s t e a d a c t s u p s e t t h i s l i m i t e d
d e g r e e of c o n t r o l , a s the p o t e n t i a l f a r m e r
s e t t l e r was allowed to h o m e s t e a d a n y unr e s e r v e d p o r t i o n of t h e public domain.
Homestead laws required that a house b e
b u i l t on t h e l a n d and t h a t a c e r t a i n a c r e a g e
of l a n d b e c u l t i v a t e d . The f i r s t h o m e s t e a d s
w e r e 160 a c r e s . L a t e r , i n 1909, 320 a c r e s
w e r e a l l o w e d , a n d i n 1916, i t b e c a m e p o s s i b l e t o h o m e s t e a d 640 a c r e s , b u t t h e s e
changed r u l e s c a m e too l a t e , f o r m u c h of
t h i s a r e a h a d a l r e a d y b e e n s e t t l e d i n 160acre farms.
In t h e 1 9 2 0 1 s , t h e c o m b i n e d e f f e c t s of
limited rainfall, drought, s m a l l f a r m s , low
p r i c e s , high t a x e s , a n d declining c r o p
y i e l d s b e g a n to b e f e l t . P r o p e r t y v a l u e s
d e c l i n e d , c r o p s f a i l e d , t a x delinquency b e c a m e c o m m o n p l a c e , a n d people b e g a n t o
m o v e away. B u t t h e s i t u a t i o n d e t e r i o r a t e d
s o generally and so gradually that it attracted
l i t t l e public attention. H o w e v e r , i n t h e following d e c a d e of t h e 1 9 3 0 1 s , the prolonged
d r o u g h t , t h e d e p r e s s i o n , and t h e c h a n g e s i n
s y s t e m s of f a r m i n g c o m b i n e d to a g g r a v a t e
t h e s i t u a t i o n . A s a r e s u l t , t h e whole Nation
b e c a m e m o r e a w a r e of the n e e d f o r s o m e
r e m e d i a l public a c t i o n .
Many c r o p f a r m e r s i n w e s t e r n South
Dakota found t h e m s e l v e s s t r a n d e d o n une c o n o m i c f a r m s , h e a v i l y in d e b t , and with
no r e s e r v e of c a p i t a l o r c r e d i t to continue
o r to expand t h e i r o p e r a t i o n s to e f f i c i e n t
s i z e . Many t r a c t s of land w e r e l e f t i d l e , o r
abandoned e n t i r e l y ; s o m e w e r e f o r e c l o s e d
b y l o a n c o m p a n i e s and b a n k s , which, i n
t u r n , often b e c a m e b a n k r u p t . T h e counties
took s o m e l a n d b y t a x d e e d , a n d the State
f o r e c l o s e d on s o m e which h a d b e e n f i n a n c e d
u n d e r t h e South Dakota R u r a l C r e d i t P r o g r a m . County a n d S t a t e G o v e r n m e n t s a n d
c r e d i t a g e n c i e s t r i e d to k e e p t h e l a n d in
o p e r a t i o n , a n d to a v o i d taking t i t l e to l a r g e
n u m b e r s of t r a c t s w h e r e t h e r e a p p e a r e d to
b e a n y hope of p a y m e n t of t a x e s and m o r t gage l o a n s . They f r e q u e n t l y r e f u s e d to t a k e
a d e e d to l a n d f o r d e b t s u n l e s s they h a d a
p u r c h a s e r in sight. T h e r e was considerable
public f e e l i n g a g a i n s t S t a t e , county, and
credit agency foreclosures.
Suitability of t h e Land f o r
Cultivated C r o ~ s
A h a r d f a c t of l i f e a b o u t the G r a n d R i v e r
a r e a i s the low and uncertain rainfall,
a v e r a g i n g o n l y 14 i n c h e s p e r y e a r f r o m
1907 to 1937, with m a n y d r y y e a r s and f e w
wet y e a r s . In the a r e a s with b e t t e r s o i l s
and topography, s u c c e s s f u l production of
wheat a n d roughage i s p o s s i b l e if combined
with s t o c k r a i s i n g . But m o s t of the a r e a ,
b e c a u s e of l i m i t e d m o i s t u r e a n d rugged
t e r r a i n , i s s u i t a b l e only f o r g r a z i n g .
Settlement P a t t e r n s and People
B e c a u s e of t h e u n s u i t a b i l i t y f o r f a r m i n g ,
t h e p a t t e r n of s e t t l e m e n t o n s m a l l to
medium-sized f a r m s , established a s a r e s u l t of t h e h o m e s t e a d l a w s , w a s bound in
t i m e to h a v e s o m e u n f o r t u n a t e c o n s e q u e n c e s
in c r o p failures, low incomes, f a r m forec l o s u r e s , a n d t a x delinquency. The people
who flocked to t h i s a r e a f r o m 1907 to 1912
w e r e , i n g r e a t p a r t , t h o s e who had l i t t l e
e x p e r i e n c e i n t h e d r y l a n d f a r m i n g that i s
r e q u i r e d i n t h e W e s t e r n G r e a t P l a i n s Region. T h o s e who h a d f a r m e d w e r e l a r g e l y
f r o m t h e N o r t h C e n t r a l S t a t e s and o t h e r
r e g i o n s w h e r e m o i s t u r e w a s m o r e abundant
a n d m o r e c e r t a i n . M o r e o v e r , they s e t t l e d
i n n u m b e r s too g r e a t f o r t h e land. P e r k i n s
County i n 1912 h a d m o r e than 13,000 people.
In 1960 i t h a d f e w e r than 6,000 people.
In 1937, 506 f a r m s , l a r g e l y i n P e r k i n s
County, w e r e s t u d i e d by l a n d e c o n o m i s t s
and f a r m m a n a g e m e n t e x p e r t s . M o r e than
25 p e r c e n t of t h e f a r m s w e r e unoccupied,
a n d 35 p e r c e n t of t h e c r o p l a n d was i d l e o r
abandoned. Due t o t h e d r o u g h t o f t h e 1 9 3 0 1 s ,
t h e a v e r a g e n u m b e r of c a t t l e had dropped
f r o m 18,000 to 4,000 a n d of s h e e p , f r o m
44,000 to 25,000. N e a r l y 25 p e r c e n t of t h e
f a r m s had been taken over by mortgage
f o r e c l o s u r e s b y c r e d i t o r s , and by counties
f o r t a x d e l i n q u e n c i e s . S o m e of this was
b e c a u s e of s e v e r e d r o u g h t s a n d t h e g r e a t
d e p r e s s i o n of t h e 1 9 3 0 1 s , b u t m u c h was
b e c a u s e of t h e n o r m a l u n c e r t a i n t y of c r o p
f a r m i n g on s m a l l to m e d i u m - s i z e d d r y l a n d
f a r m s in a n a r e a unsuitable f o r farming.
a n d r o a d s a n d t h e building of f i r e b r e a k s b y
the grazing association resulted in s o m e
s a v i n g s to l o c a l g o v e r n m e n t s .
Purchase and Development of the Project
A f t e r a c q u i s i t i o n of t h e l a n d , o n e of t h e
f i r s t p r o b l e m s w a s r e l o c a t i o n of f a m i l i e s
whose h o m e s w e r e p u r c h a s e d . T h i s p r o b l e m w a s l a r g e l y confined to t h o s e who h a d
i n s u f f i c i e n t m e a n s to r e n t o r buy land, o r
who l a c k e d s k i l l s f o r o t h e r jobs. R e s e t t l e m e n t a i d was given to t h o s e m o s t i n n e e d
of h e l p i n finding h o m e s a n d jobs. Many
o t h e r s w e r e given e m p l o y m e n t on t h e p r o j e c t
r e m o v i n g unneeded buildings and f e n c e s ;
building d a m s a n d r e c r e a t i o n a r e a s ; a n d
m a k i n g land i m p r o v e m e n t s , including r e s e e d i n g c r o p l a n d a r e a s to g r a s s , e r o s i o n
control, and water conservation m e a s u r e s .
Some o b s e r v e r s s u g g e s t e d t h a t t h e way
to s o l v e t h e p r o b l e m i n t h e p o o r a r e a s was
to l e t t h e p a t t e r n of l a n d u s e a n d o w n e r s h i p
r e a d j u s t i t s e l f . But e x p e r i e n c e i n t h e G r e a t
P l a i n s a n d o t h e r r e g i o n s a s w e l l had shown
that t h e p r o b l e m of l o w i n c o m e a n d c r o p
f a i l u r e i s not s u b j e c t to quick a d j u s t m e n t ,
with i n d i v i d u a l s , f i r m s , a n d State a n d l o c a l
agencies bearing the costs. As a n a l t e r n a tive, a F e d e r a l land utilization purchase
p r o g r a m was e s t a b l i s h e d , to a c q u i r e a n d
i m p r o v e f o r g r a z i n g 155,000 a c r e s of f a r m l a n d a s a n a i d t o l i v e s t o c k f a r m e r s a n d to
the c o m m u n i t y a s a whole.
T h e land a c q u i r e d c o n s i s t e d of s c a t t e r e d
t r a c t s within
designated project a r e a ,
u s u a l l y i n a p a t t e r n s u i t e d to grouping into
c o m m u n i t y p a s t u r e s . T r a c t s which a p p e a r e d
to b e s a t i s f a c t o r y r a n c h h e a d q u a r t e r s gene r a l l y w e r e not p u r c h a s e d . The s m a l l f a r m s ,
rough l a n d s , a n d d r y t r a c t s needed f o r cont r o l of a c c e s s a n d w a t e r a p p e a r to h a v e
m a d e up m o s t of t h e p u r c h a s e s . In s o m e
c a s e s of i s o l a t e d t r a c t s , a d j a c e n t county
and State l a n d w a s p u r c h a s k d o r public
d o m a i n land w a s t r a n s f e r r e d t o t h e p r o j e c t
t o block i n a n a r e a . Of t h e a p p r o x i m a t e l y
500,000 a c r e s , 30 p e r c e n t was p u r c h a s e d - a s m a l l e r proportion than in s o m e other
South Dakota p r o j e c t s . M o s t of t h e l a n d p u r chased f r o m private owners had improvem e n t s , and a p a r t h a d b e e n plowed f o r c r o p s .
By August 1943, 19,000 a c r e s had b e e n
s e e d e d , 33 d a m s a n d dugouts f o r holding
w a t e r c o n s t r u c t e d . a n d 210 m i l e s of new
fences built around community pastures.
F u r t h e r w o r k h a s b e e n done s i n c e that
t i m e . F r o m 1943 to 1959, m u c h w a s done
by t h e g r a z i n g a s s o c i a t i o n i n i m p r o v e m e n t
and m a i n t e n a n c e of l a n d a n d w a t e r r e s o u r c e s t h r o u g h u s e of a p o r t i o n of t h e f e e s
charged for grazing permits, a s direct
Federal payments for these purposes decreased.
The r e m o v a l of 162 f a r m o p e r a t i n g units
in the project a r e a affected s e v e r a l schools,
and s o m e w e r e c l o s e d o r c o n s o l i d a t e d with
o t h e r s i n t h e c o u n t i e s . The grouping of
t r a c t s into c o m m u n i t y - t y p e p a s t u r e s a n d
the r e m o v a l of o t h e r l a n d f r o m f a r m i n g
m a d e i t p o s s i b l e to c l o s e r o a d s o r to r e d u c e
r o a d m a i n t e n a n c e . T h e c l o s i n g of s c h o o l s
Resettlement of Families
Later Administration and Use
Grazing
T h e p r o j e c t was a d m i n i s t e r e d by the
Soil C o n s e r v a t i o n S e r v i c e o r h e l d u n d e r i t s
c u s t o d i a n s h i p d u r i n g t h e p e r i o d of a c q u i s i tion a n d t h e s t a g e s of d e v e l o p m e n t f r o m
1938 to 1954. A d m i n i s t r a t i o n was t r a n s f e r r e d f r o m t h e Soil C o n s e r v a t i o n S e r v i c e
t o t h e F o r e s t S e r v i c e i n 1954. A t p r e s e n t ,
it i s administered under a 10-year a g r e e m e n t with t h e G r a n d R i v e r C o o p e r a t i v e
G r a z i n g A s s o c i a t i o n , s i g n e d i n 196 1.
The a g r e e m e n t between the F o r e s t Servi c e and the grazing association contains
s p e c i f i c a t i o n s f o r u s e a n d m a i n t e n a n c e of
t h e l a n d and i m p r o v e m e n t s . T h e p r i m a r y
r e s t r i c t i o n i s that t h e l a n d b e u s e d only f o r
g r a z i n g and t h a t g r a z i n g b e l i m i t e d to t h e
n u m b e r of a n i m a l units i t i s d e t e r m i n e d t h e
r a n g e c a n c a r r y f o r a c e r t a i n n u m b e r of
s u m m e r and fall months. A F o r e s t Service
ranger supervises overall administration
of t h e r a n g e r d i s t r i c t a n d a s s i s t s i n d e v e l opment and recommendations for use. A
t o t a l of 182,129 a c r e s a r e m a n a g e d b y t h e
a s s o c i a t i o n , including 155,428 a c r e s of
l a n d u t i l i z a t i o n p r o j e c t l a n d a n d 26,701
a c r e s of p r i v a t e l y owned a n d S t a t e a n d
county owned land.
The grazing association's maintenance
s u p e r v i s o r and his a s s i s t a n t s distribute
s a l t , m a i n t a i n t h e s t o c k o i l e r s , r e p a i r the
a p p r o x i m a t e l y 385 m i l e s of b o u n d a r y f e n c e ,
a n d do t h e r e q u i r e d m a i n t e n a n c e o n s p r i n g s ,
w e l l s , dugouts, a n d r e s e r v o i r s . Most of t h e
developments f o r watering the stock have
p r o j e c t s have b e e n c o m p l e t e d to p r o t e c t
existing h a b i t a t s f o r t h i s s p e c i e s and d e velop new ones. Hungarian p a r t r i d g e o c c u r
throughout t h e a r e a , but the populationis not
g r e a t . Chinese pheasant a r e found along the
r i v e r and on c r o p l a n d n e a r the b r u s h y d r a w s .
T h e r e a r e a p p r o x i m a t e l y 4 m i l e s of
s h o r e l i n e under F o r e s t S e r v i c e jurisdiction
along Shadehill R e s e r v o i r . T h e r e a r e plans
f o r a boat r a m p and s a n i t a r y f a c i l i t i e s on
one of the points, if demand w a r r a n t s it.
T h e G r i z z l y Campground, completed in 1962,
i s a p p r e c i a t e d and u s e d by many people.
About t h r e e - f o u r t h s m i l e of a c c e s s r o a d
was c o n s t r u c t e d i n 1963 f r o m the c a m p ground to a State G a m e , F i s h , and P a r k road.
b e e n financed by the g r a z i n g a s s o c i a t i o n .
Maintenance of t h e 231 m i l e s of f i r e g u a r d s
by the g r a z i n g a s s o c i a t i o n .
The g r a z i n g a s s o c i a t i o n owns and m a i n . i n s a r u r a l f i r e t r u c k that i s stationed i n
L e m m o n and i s o p e r a t e d by t h e city f i r e
d e p a r t m e n t . F i r e detection h a s not b e e n
too g r e a t a p r o b l e m , b e c a u s e m o s t r a n c h e s
and f a r m s have telephones. F i r e s u p p r e s s i o n i n p r a c t i c a l l y a l l c a s e s h a s b e e n by
the l o c a l f i r e d e p a r t m e n t s f r o m L e m m o n ,
B i s o n , H e t t i n g e r , Glad Valley, o r Lodgepole,
with a s s i s t a n c e f r o m r a n c h e r s and f a r m e r s .
The l o c a l f i r e d e p a r t m e n t s have r a d i o cont a c t with the State Highway D e p a r t m e n t ; the
G a m e , F i s h , and P a r k s D e p a r t m e n t ; the
Highway P a t r o l ; the g a m e warden; and the
l o c a l police.
T h e r e a r e 21 community p a s t u r e s i n the
Grand R i v e r G r a s s l a n d , ranging f r o m 1,280
a c r e s up to m o r e than 18,000 a c r e s , and
48 p r i v a t e a l l o t m e n t s . Range condition m a p ping h a s b e e n completed. Allotment plans
a r e completed f o r only a few of t h e a l l o t ments.
Income and Expenditures
The a v e r a g e F e d e r a l i n c o m e r e c e i v e d
p e r y e a r , 1954 to 1962, f o r the u s e of the
155,000 a c r e s of F e d e r a l land i n the Grand
R i v e r National G r a s s l a n d was $43,106.
Grazing p e r m i t s i s s u e d to a n a v e r a g e of
138 r a n c h e r s during the 6 y e a r s 1959 to
1964 r a n g e d f r o m 58,240 a n i m a l - u n i t months
of grazing i n 1959 to 50,700 in 1964. This
r e p r e s e n t e d 6 m o n t h s ' g r a z i n g f o r 7,526
head of c a t t l e and 4,620 s h e e p i n 1964.
B e c a u s e of drought, the stocking r a t e s have
v a r i e d f r o m y e a r to y e a r .
A v e r a g e annual r e c e i p t s , expenses f o r
l o c a l m a n a g e m e n t and maintenance, and
c a p i t a l e x p e n d i t u r e s f o r development 195962, a r e l i s t e d below:
Recreation
D e e r and antelope a r e plentiful and u s e
the e n t i r e a r e a . T h e r e a r e s o m e a r e a s
where d e e r a r e somewhat concentrated,
but i t i s not uncommon to find m u l e d e e r
a n y w h e r e i n t h e a r e a . White-tailed d e e r
a r e found along the Grand R i v e r and i t s
brush-lined tributaries.
S h a r p t a i l g r o u s e a r e f a i r l y n u m e r o u s but
t h e i r h a b i t a t s a r e becoming s p a r s e . S e v e r a l
Item
Average number
Income from-Grazing, 1954-62
hlineral leases, 1954-62.
Land use, 1954-62
Recreation, 1962
Wildlife, 1962 inventory..
...........
58,244 animal-unit months1
109 mineral leases
706 acres in hay and other crops2
50,800 visits
3,400 antelope
900 white-tailed deer
2,000 mule deer
.........
...........
Total
Average annualsincome
or expenditures
$24,735
13,571
4,800
--
--
.....................
Expenditures for-Local management, operation and maintenance,
1959-62
Development and capital
improvements, 1960-62.
.....................
3,178
I
1 month's grazing tenure f )y 1 mature cow or steer, or 5 sheep.
Includes sale of crested wheat grass seed when there was a good seed crop.
Source: Summarized from tables prepared by the project management field office of the
Forest Service, January 1964.
48
Changes, 1955-64
T h e r e w e r e s e v e r a l significant changes
i n the c h a r a c t e r of the p r o j e c t f r o m 1955 to
1964. The f i r s t and m o s t i m p o r t a n t h a s to
do with the s i z e of each r a n c h unit.In 1955,
the p r i v a t e r a n c h units a s s o c i a t e d with t h e
p r o j e c t a p p e a r e d to b e s m a l l e r t h a n a v e r a g e
f o r t h e community, with m a n y units r e l y i n g
e n t i r e l y on p r o j e c t lands f o r s u m m e r p a s t u r e . Now a l m o s t a l l o p e r a t o r s h a v e additional p r i v a t e p a s t u r e , a n d t h e a v e r a g e s i z e
of t h e i r p e r m i t s i s no indication of t h e
s c a l e of t h e i r o p e r a t i o n s .
The g r a z i n g f e e s a r e b a s e d on a Governm e n t c h a r g e , and a l s o include c o s t s of
g r a z i n g a s s o c i a t i o n o p e r a t i o n s , and s o m e
additional c h a r g e f o r development a n d m a i n tenance. The Grand R i v e r G r a z i n g A s s o c i a tion, i n c o r p o r a t e d i n 1940, h a s s t r e n g t h e n e d
and i m p r o v e d i t s l e a d e r s h i p i n development
and m a i n t e n a n c e of public and p r i v a t e land.
Achievements of the P r o j e c t
Public o b j e c t i v e s , a s d e s c r i b e d i n p a r t I,
p. 1 2 , f o r t h e land u s e p r o g r a m i n t h e G r e a t
P l a i n s , w e r e m o r e completely achieved i n
the P e r k i n s - C o r s o n p r o j e c t t h a n in s o m e
o t h e r p r o j e c t s . T h e r e a r e a n u m b e r of
r e a s o n s f o r this. F i r s t , t h e land w a s p u r chased i n f a i r l y solid b l o c k s . Second, t h e
g r a z i n g a s s o c i a t i o n i t s elf p u r c h a s e d m a n y
of t h e i s o l a t e d t r a c t s that r e m a i n e d i n the
project a r e a . Third, the grazing association
was a b l e to provide l e a d e r s h i p i n the d e velopment and a d m i n i s t r a t i o n of t h e p r o j e c t
a r e a . F o r t h e s e r e a s o n s , community p a s t u r e s i n the p r o j e c t have b e e n r e l a t i v e l y
s u c c e s s f u l and the r e l a t i o n s h i p of t h e g r a z ing a s s o c i a t i o n and F e d e r a l a d m i n i s t r a t o r s
has been generally harmonious.
Comparison of the Georgia Piedmont and
the Ferkins-Corson Land Utilization
Projects
While the s a m e g e n e r a l p r o g r a m object i v e s w e r e p u r s u e d in both t h e G e o r g i a and
South Dakota land utilization p r o j e c t s , the
o r i g i n of the p r o b l e m i n e a c h c a s e was
different. The H o m e s t e a d Act, leading to
1 6 0 - a c r e f a r m s i n a poor d r y l a n d a r e a ,
was a f a c t o r i n South Dakota, but not i n
G e o r g i a . A c e n t u r y of i n t e n s i v e r o w - c r o p
cultivation of e r o d i b l e , sloping land under
a s h a r e tenancy s y s t e m was a chief f a c t o r
i n Georgia. In f a c t , n e a r l y a l l the i n s t i t u -
tional and physical land p r o b l e m s which l e d
to a b u s i v e u s e of c r o p l a n d w e r e different
i n the 2 c a s e s . The c o n t r a s t s a r e i n t e r e s t ing and significant. P o s s i b l y even t h e c r i t e r i a f o r evaluating the s u c c e s s of the
p r o g r a m i n each c a s e need to b e different.
In studying the p r o j e c t s , a t t e m p t s w e r e
m a d e to get a n s w e r s to 2 questions: ( 1 ) What
was the economic effect of t h e p u r c h a s e
p r o g r a m s on the a g r i c u l t u r e of the c o m m u n i t i e s ? ( 2 ) How h a s the development and
a d j u s t m e n t of a g r i c u l t u r e d i f f e r e d within
a n d outside of t h e p r o j e c t a r e a s ? T h e s e 2
questions a r e of c o u r s e c l o s e l y r e l a t e d , a n d
v e r y difficult to a n s w e r , u n l e s s the effects
of the p r o g r a m happen to be v e r y g r e a t . In
t h e s e c a s e s , no positive a n s w e r s w e r e
a v a i l a b l e , s i n c e a g r i c u l t u r e h a s changed
g r e a t l y i n the 3 0 - y e a r p e r i o d s i n c e initiation of the p r o j e c t s b e c a u s e of i m p r o v e d
p r a c t i c e s , m e c h a n i z a t i o n , a n d s h i f t s in type
of f a r m i n g and land u s e . However, t h e r e
w e r e s o m e judgments by individuals that
t h e p r o j e c t s w e r e beneficial and b y o t h e r s
t h a t they w e r e not of g r e a t effect i n changing
the type of a g r i c u l t u r e .
In t h e Georgia P i e d m o n t p r o j e c t a r e a ,
the n u m b e r of f a r m s and amount of land in
row c r o p s h a s declined to l e s s than 25 p e r c e n t of the peak production period. The
change w a s l a r g e p r i o r to t h e 1 9 3 0 1 s ,b e c a u s e of boll weevil infestation, e r o s i o n ,
low productivity, a n d declining cotton yields.
Shifts to g e n e r a l i z e d l i v e s t o c k f a r m i n g ,
d a i r y i n g , and f o r e s t r y a l r e a d y had s t a r t e d
i n the 19201s, t o g e t h e r with heavy outm i g r a t i o n of f a r m people. The Georgia
Piedmont p r o j e c t s w e r e a d e m o n s t r a t i o n of
what could be done to s t a b i l i z e conditions
and to change and i m p r o v e land u s e and
development.
In the Grand R i v e r National G r a s s l a n d
a r e a , f o r m e r l y the P e r k i n s - C o r s o n Land
Utilization P r o j e c t , t h e r e l i k e w i s e a r e s p e c ulations by o b s e r v e r s a s to effects and
changes. It i s difficult to s e p a r a t e the effects
of t h e p r o j e c t f r o m t h e effects of m a n y
o t h e r f a c t o r s that p r o m o t e d change between
the 1930's and the 1 9 6 0 ' s . The g e n e r a l
opinions e x p r e s s e d a r e that the p r o j e c t
h a s b e e n useful to the a r e a . In making
c o m p a r i s o n s between land utilization p r o j e c t s , i t i s well to r e m e m b e r that significant
c o n t r a s t s e x i s t between p r o j e c t s i n the
G r e a t P l a i n s a s well a s between t h o s e
p r o j e c t s and p r o j e c t s i n o t h e r r e g i o n s .
In s u m m a r y , no meaningful c o m p a r i s o n s
can b e m a d e among land utilization p r o j e c t s
without balancing m a n y f a c t o r s . The s u c c e s s of a p r o j e c t should b e m e a s u r e d i n
t e r m s of t h e location and condition of t h e
land when p u r c h a s e d ; t h e amount of l a n d
p u r c h a s e d ; t h e t i m e and money n e e d e d f o r
development, i m p r o v e m e n t , a n d m a i n t e n a n c e ; t h e effect of t r a n s f e r s of a d m i n i s t r a t i v e r e s p o n s i b i l i t y ; a n d s o on.
BUFFALO GAP NATIONAL GRASSLAND1&
The Buffalo Gap National G r a s s l a n d , o r ganized f r o m t h e Badlands- F a l l R i v e r Land
Utilization P r o j e c t (SD1-South Dakota), i s
l o c a t e d i n C u s t e r , Jackson, and Pennington
Counties i n s o u t h w e s t e r n South Dakota.
Work h e r e w a s initiated i n 1934, with p r o j e c t
h e a d q u a r t e r s a t Hot S p r i n g s and Wall,
S. Dak. Following a c q u i s i t i o n and developm e n t , t h e p r o j e c t was a d m i n i s t e r e d by t h e
D e p a r t m e n t of A g r i c u l t u r e i n c o o p e r a t i o n
with l o c a l g r a z i n g a s s o c i a t i o n s .
Description and Justification
T h e 550,000 a c r e s i n t h e p r o j e c t a r e
c h a r a c t e r i z e d by wide e x p a n s e s of gently
r o l l i n g p r a i r i e g r a s s l a n d with r o u g h e r
t e r r a i n a n d badland f o r m a t i o n s along t h e
White a n d Cheyenne R i v e r s . At t h e t i m e of
p u r c h a s e , 8 6 p e r c e n t of t h e land w a s i n
p a s t u r e , 13 p e r c e n t i n c r o p l a n d , a n d 1 p e r cent i n w a s t e l a n d . Cropland w a s of r e a s o n ably good-quality c l a y s o i l s , but b e c a u s e of
t h e l a c k of r a i n f a l l , g r a i n y i e l d s w e r e 2 t o
4 b u s h e l s a n a c r e . F a r m s a v e r a g e d 245
a c r e s in s i z e , t o o s m a l l f o r e c o n o m i c c r o p
p r o d u c t i o n u n d e r t h e s e m i a r i d conditions
and t y p e s of f a r m i n g p u r s u e d . Rangeland
w a s badly o v e r g r a z e d , leaving l i t t l e v e g e t a t i o n t o r e t a r d t h e flow of s p r i n g r a i n s and
afford p r o t e c t i o n f r o m d r i v i n g winds. Cons e q u e n t l y , wind and w a t e r e r o s i o n c a u s e d
g r e a t d a m a g e . Living conditions h e r e i n
t h e 1 9 3 0 ' s v a r i e d f r o m f a i r l y good t o ext r e m e l y poor. Of 706 f a m i l i e s s t u d i e d , 412
w e r e dependent o n r e l i e f . Inadequate h o u s ing, l a c k of m e d i c a l c a r e , a n d s c a r c i t y of
d r i n k i n g w a t e r and food w e r e p r e v a l e n t .
Many c h i l d r e n s u f f e r e d f r o m u n d e r n o u r i s h m e n t and i l l health.
T h e r e w e r e no o r g a n i z e d r e c r e a t i o n a l
facilities. Seventy-six s m a l l country schools
with a n a v e r a g e of l e s s t h a n 7 pupils p e r
s c h o o l w e r e s c a t t e r e d throughout t h e a r e a .
T h e r e w a s a high r a t e of t a x delinquency.
Early Development
T h i s land, w h e r e well m a n a g e d , produced
f a i r native p a s t u r e . ~ e s t o r a t i d of
n the g r a s s
c o v e r w a s a c c o m p l i s h e d between 1935 and
1941 and t h e a r e a w a s devoted t o g r a z i n g
u n d e r c o n t r o l l e d conditions. E r o s i o n cont r o l m e a s u r e s w e r e i n s t a l l e d and p a s t u r e
w a s i m p r o v e d by planting g r a s s , c o n s t r u c t ing d a m s t o c o n s e r v e w a t e r and c r e a t e
w a t e r i n g p l a c e s f o r s t o c k , building c h e c k
d a m s , developing s p r i n g s , and e r a d i c a t i n g
h a r m f u l rodents. F e n c e s and auto p a s s e s
(cattle guards, o r special entrances for
v e h i c l e s o n l y ) w e r e built. Two g a m e s a n c t u a r i e s w e r e e s t a b l i s h e d t o p r o t e c t wildlife.
C o m p l e t i o n of t h e p r o j e c t placed t h e g r a z i n g
i n d u s t r y of t h e a r e a on a m o r e s t a b l e b a s i s
a n d p r c v i d e d a d e m o n s t r a t i o n of r e c l a m a t i o n and b e t t e r land u s e m e t h o d s a p p l i c a b l e
t o m i l l i o n s of a c r e s of s i m i l a r l;nd i n the
northern Great Plains.
During t h e 5 4 w e e k s of o p e r a t i o n p r i o r
t o J a n u a r y 1, 1937, a n a v e r a g e of 269
m e n w e r e e m p l o y e d on this project
weekly.
Families Residing on Land
T h r e e - h u n d r e d and t h i r t y - s e v e n f a m i l i e s
l i v e d i n t h e p r o j e c t a r e a i n 1934-35. N e a r l y
a l l t h e s e f a m i l i e s moved f r o m t h e p r o j e c t
a r e a ; 120 r e q u i r e d a s s i s t a n c e in r e l o cating.
Use of the Project Land, 1959-63
The half- m i l l i o n a c r e s of r a n g e f u r n i s h e d
f o r a g e f o r a n a n n u a l a v e r a g e of 202,318
a n i m a l - u n i t months of g r a z i n g i n t h e 5 y e a r s
1959-63. A v e r a g e F e d e r a l i n c o m e a n d expenditures during t h e s e y e a r s a r e listed
o n t h e following page.
l4Buffalo Gap National Grassland records, Forest Service records, 1954-64, and unpublished notes of Loyd
Giover, S. Dak. State Univ. and Expt. Sta., and Norman Landgren, Econ. Res. Serv., were used in preparing
this section.
Average number
Item
-
Average annual
income or
expenditures
-
1959-63 income from-Grazing
............................................. 202.318 animal-unit
months1
Mineral leases .................................... 151 leases
Hay and other crops ............................. 177 acres
Total... ........................................
Recreation ......................................... 44,490 visits
Wildlife inventory ................................ 1,600 antelope
Watershed
..........................................
83 white-tailed deer
720 mule deer
All areas are useful for
watershed purposes
Expenditures for local management, operation, and development, 1962-64
................
l 1 month's grazing by 1 mature cow or steer, or 5 sheep.
There a r e 4 improved recreational a r e a s
f o r c a m p i n g a n d picnicking. Hunting, f i s h ing, hiking, r i d i n g , s i g h t s e e i n g , a n d n a t u r e
study a r e i m p o r t a n t a c t i v i t i e s of t h e v i s i t o r s . Plans have been m a d e f o r additional
recreational facilities.
In a d d i t i o n t o t h e d e e r a n d a n t e l o p e l i s t e d
i n t h e wildlife i n v e n t o r y , t h e r e a r e n u m e r o u s
s m a l l g a m e a n i m a l s a n d g a m e b i r d s , including wild t u r k e y s .
Fall River Ranger District
The F a l l River Ranger District, the
l a r g e s t of t h e 2 d i s t r i c t s i n t h e g r a s s l a n d ,
c o n t a i n s 310,000 a c r e s of u s a b l e r a n g e
f r o m t h e l a n d u t i l i z a t i o n p r o j e c t a r e a . The
n u m b e r of c a t t l e p e r m i t t e d w a s 12,283, and
t h e n u m b e r of s h e e p 5,634, f o r a n a v e r a g e
g r a z i n g s e a s o n of s l i g h t l y o v e r 6 m o n t h s .
T h e n u m b e r of l i v e s t o c k w a s j u s t about
equal t o the a p p r a i s e d c a r r y i n g capacity.
N e a r l y t w o - t h i r d s of t h e a n i m a l - u n i t m o n t h s
of g r a z i n g p e r m i t t e d w e r e on National
G r a s s l a n d and o n e - t h i r d o n p r i v a t e l a n d
f e n c e d a n d u s e d with t h e G r a s s l a n d . The
a v e r a g e p e r m i t on the Grassland was f o r
67 a n i m a l u n i t s , and o n t h e G r a s s l a n d and
the enclosed private land combined was f o r
105 a n i m a l u n i t s . D i r e c t p e r m i t t e e s n u m b e r e d 110 and grazing d i s t r i c t permittees
9 0 . Nearly a l l o p e r a t o r s had additional
s u m m e r pasture.
Range Improvements Inventory
Including t h o s e m a d e p r i o r t o 1954, r a n g e
i m p r o v e m e n t s i n t h e F a l l Rive? R a n g e r
D i s t r i c t c o n s i s t of 446 s t o c k w a t e r d a m s
a n d dugout w a t e r h o l e s o r ponds, 18 w e l l s ,
1 s p r i n g , 382 m i l e s of f e n c e , 21 c a t t l e
g u a r d s , a n d 1 b a r n , a t a t o t a 1 c o s t of
$685,390. I m p r o v e m e n t s a r e f i n a n c e d i n p a r t
b y F e d e r a l a g e n c i e s a n d i n p a r t by p e r m i t t e e s , with p e r m i t t e e s doing s o m e of t h e
work according to agreement. Plans for
d e v e l o p m e n t and m a i n t e n a n c e o r i g i n a t e
p r i n c i p a l l y with t h e F o r e s t S e r v i c e .
S ~ e c i a l Use
Permits
The m o s t n u m e r o u s s p e c i a l - u s e p e r m i t s
t o a u t h o r i z e a c c e s s a r e found i n c o n n e c t i o n
with u r a n i u m mining c l a i m s , oil and g a s
l e a s e s , a n d r i g h t s - o f - w a y f o r p o w e r , pipelines, ditches, and fences. These a c c e s s
p e r m i t s a r e , of c o u r s e , d i s t i n c t f r o m t h o s e
l e g a l i n s t r u m e n t s which g r a n t a c c e s s r i g h t s
t o m i n e r a l s . Mining i n r a n g e l a n d a r e a s
o f t e n i n c r e a s e s d a m a g e , by dumping w a s t e
a n d by c r e a t i n g e r o s i o n a s e a r t h i s dug a n d
moved.
Range Management
The National G r a s s l a n d s a r e a l l o t t e d t o
r a n c h e r s a s individuals o r groups f o r g r a z i n g s p e c i f i e d n u m b e r s of l i v e s t o c k . S i z e of
allotment i s b a s e d on amount of f o r m e r
use a s well a s on weather and r a n g e conditions.
Range a n a l y s i s field work has been completed on the 162 National G r a s s l a n d g r a z i n g
a l l o t m e n t s t o r a n c h e r s . Maps a r e finished
f o r 117 a l l o t m e n t s . Management plans have
been o r a r e being written on 29 a l l o t m e n t s .
It will be n e c e s s a r y t o r e v i e w t h e r a n g e
a n a l y s i s on about 10 percent of t h e allotm e n t s t o m a k e c o r r e c t i o n s and i m p r o v e
t h e data. Management plans need t o be
w r i t t e n for 133 allotments.
Six individual allotments t o r a n c h e r s ,
including a t o t a l of 34,407 a c r e s , a r e under
intensive management. Two a l l o t m e n t s have
e s t a b l i s h e d s y s t e m s of r e s t rotation, and 4
a l l o t m e n t s a r e under d e f e r r e d rotation.
The S h i r t t a i l a 11 o t m e n t i s managed
under a s y s t e m of d e f e r r e d rotation,
which i s a p a r t of the revegetation p r o gram.
Grazing a g r e e m e n t s w e r e in effect i n
1964 with 2 cooperative grazing d i s t r i c t s ,
t h e P i o n e e r and Indian D i s t r i c t s . The Pion e e r D i s t r i c t includes 101,935 a c r e s and
has 67 m e m b e r s . The Indian D i s t r i c t includes 49,050 a c r e s , with 23 r a n c h e r m e m b e r s . The Cottonwood D i s t r i c t , f o r which a
c o o p e r a t i v e a g r e e m e n t was being developed
in 1964, contains 53,355 a c r e s of project
land.
Wildlife developments consist of 2 w a t e r ing p l a c e s f o r wild t u r k e y and 6 fenced
habitat a r e a s which have been developed
o v e r a period of y e a r s . T r e e s and s h r u b s
have been planted in t h e habitat a r e a s .
B r o w s e and b e r r y - p r o d u c i n g s h r u b s have
been planted within fenced a r e a s s u r r o u n d ing 4 developed s p r i n g s . T h r e e b i g - g a m e
and b r o w s e production and utilization a r e a s
a r e being maintained.
In 1964, 8 stockwater d a m s and dugout
ponds o r w a t e r holes w e r e c o n s t r u c t e d on
National G r a s s l a n d a l l o t m e n t s by p e r m i t t e e s . The F o r e s t S e r v i c e s h a r e d one-half
t h e cost by allowing grazing f e e c r e d i t s .
S u r v e y s and plans w e r e m a d e by the F o r e s t
S e r v i c e r a n g e technician. In addition, t h e
r a n g e technician s u r v e y e d and p r e p a r e d
cooperative a g r e e m e n t s f o r 4 d a m s
and a s p r i n g that w e r e c o n s t r u c t e d by
p e r m i t t e e s a t no cost t o t h e F o r e s t S e r v ice.
'
Use of Project i n 1964
One of the a i m s of t h e land u s e p u r c h a s e
p r o g r a m was t o extend good land u s e beyond
t h e boundaries of t h e land purchased. In
t h e G r e a t P l a i n s t h i s was accomplished by
f o r m i n g g r a z i n g a s s o c i a t i o n s and putting a l l
t h e land t h e s e a s s o c i a t i o n s controlled under
a Federal grazing association partnership
type of management. In t h e Buffalo Gap
G r a s s l a n d , 64 p e r c e n t of t h e p e r m i t t e d
g r a z i n g i s on t h e F e d e r a l land and 36 p e r cent i s on p r i v a t e fenced land withinor n e a r
the g r a s s l a n d . It was o r i g i n a l l y a s s u m e d that
t h e grazing a s s o c i a t i o n s would add to t h e i r
grazing land by l e a s i n g t h e county t a x deed
land, but t h e counties c h o s e to s e l l t h i s
land and thus put i t hack on the tax roll.
Management p r o b l e m s have been c r i t i c a l
a t t i m e s in r e c e n t y e a r s , b e c a u s e of drought
and consequent v a r i a t i o n s in c a r r y i n g
capacity of r a n g e f r o m y e a r to y e a r . Rec u r r i n g p e r i o d s of low and high rainfall and
accompanying changes in f o r a g e production
n e c e s s i t a t e y e a r l y consideration of adjustm e n t s in stocking r a t e s . It i s not a routine
matter o r a simple operation to issue grazing p e r m i t s o r to adjust t h e m to changes in
c a r r y i n g capacity. R a n c h e r s , grazing a s s o ciation r e p r e s e n t a t i v e s , and r a n g e r s must
work cooperatively t o maintain a beneficial
working relationship. The needed contacts
t o obtain t h i s r e l a t i o n s h i p r e q u i r e t i m e and
n u m e r o u s r a n c h and field visits and much
office work by r a n g e r s . R a n g e r s a r e s a i d
t o need m o r e t i m e t h a n they now have f o r
g r a z i n g a s s o c i a t i o n and p e r m i t t e e contacts
on t h e ground t o work out grazing u s e
a r r a n g e m e n t s and p r o b l e m s s a t i s f a c t o r i l y
f r o m both t h e p r i v a t e and public standpoint.
In t h e Buffalo Gap National G r a s s l a n d
m o r e land i s g r a z e d under individual allotm e n t s than i n t h e Grand River National
G r a s s l a n d . Only a l i m i t e d number of community p a s t u r e s a r e possible b e c a u s e of
t h e widely s c a t t e r e d a c r e a g e i n t e r s p e r s e d
with o t h e r public and p r i v a t e holdings. The
F e d e r a l agency a d m i n i s t e r i n g t h e land has
had t o provide t h e l e a d e r s h i p for developm e n t of t h e land. In a few c a s e s t h e r e have
been differences o v e r policy w h i c h r e q u i r e d
t i m e t o adjust s a t i s f a c t o r i l y . As a r e s u l t ,
development of t h i s land has not been a s
fully achieved a s in s o m e o t h e r a r e a s .
MILK RIVER GRAZING DISTRICT PROJECT
''
2
C h a r a c t e r i s t i c of the l a n d d e v e l o p m e n t
work in t h e G r e a t P l a i n s i s t h a t of t h e
9 5 3 , 0 0 0 - a c r e M i l k River P r o j e c t ( L U - M T - 2 )
in Phillips, Valley, and Blaine C o u n t i e s i n
k4ar;tana (fig. 14). The o b j e c t i v e of t h c
d e v e l o p m e n t was t o c o n v e r t o v e r g r a z e d
p a s t u r e and abandoned f a r m l a n d s into p r o ductive, p e r m a n e n t , a n d s t a b i l i z e d r a n g e .
G r a s s w a s r e s t o r e d on t h e land both by
fiivirig i t a p e r i o d of r e s t in which t o naturally r e s e e d , and by a r t i f i c i a l l y r e s e e d i n g
w h c r c d e s t r u c t i o n of g r a s s w a s m o s t s e r i o u s . I m p r o v e m e n t of w a t e r f a c i l i t i e s a l s o
played a n i m p o r t a n t p a r t . A l a r g e n u m b e r
of c h e c k d a m s a n d stock ponds w e r e built
t o c o n s e r v e small a m o u n t s of r a i n f a l l a n d
snowfall and t o d i s t r i b u t e w a t e r f o r cattle.
F e n c e s w e r e changed t o c o n f o r m t o new
p a t t e r n s of u s e , and buildings no l o n g e r
needed w e r e r e m o v e d . S o m e r e c r e a t i o n a l
a r e a s a l s o w e r e developed, including picnic
and c a m p s i t e s .
"This p r o j e c t w a s t h e s e c o n d l a r g e s t i n
t h e Kation. It c o n s i s t e d of l a n d a c q u i r e d
f r o m p r i v a t e o w n e r s , i n t e r m i n g l e d with
public d o m a i n land. P r i v a t e d r y f a r m i n g
l a n d w a s a c q u i r e d a n d converteci into a
g r a t i n g a r e a , while t h e i m p o v e r i s h e d d r y l a n d wheat f a r m e r s w e r e a i d e d i n moving
onto b c t t e r t r a c t s . T h e a r e a w a s o r g a n i z e d
i n t o S t a t e g r a z i n g a s s o c i a t i o n d i s t r i c t s and
used under suitable conservational rcgulations.
In n o r t h e r n Montana, t h e r e a s o n s i o r l a n d
purchase w e r e similar to those in the
Dakotas and 1:r7yoming. F i r s t , h u n d r e d s of
f a m i l i e s had b e c o m e dependent upon public
relief, seed l o a n s , o r o t h e r s u b s i d i e s , bec a u s e of t h e inability of t h e i r l a n d t o p r o duce g r a i n c r o p s except i n wet y e a r s .
Second, t h o u s a n d s of a c r e s of r a n g e l a n d
w e r e s e r i o u s l y depleted by wind e r o s i o n
a n d o v e r g r a z i n g . Thousands of a c r e s of
r a n g e l a n d had been h o m e s t e a d e d i n public
Figurc 14.--hiontana land urilizarion projects.
;!J
z,x,
Bibliography reicl'ences used I n preparing this sucrion w e r e (g6,
3rd 126).
d o m a i n a r e a s and plowed up f o r g r a i n cultivation, destroying the natural g r a s s cover.
P e r h a p s 10 o r 20 y e a r s would have t o e l a p s e
before natural reseeding replaced the g r a s s
cover.
T h e Milk R i v e r G r a z i n g P r o j e c t would
n e v e r h a v e b e e n u n d e r t a k e n if t h e p r o b l e m
had b e e n a p p r o a c h e d f r o m t h e viewpoint of
how t o a c q u i r e t h e b e s t a v a i l a b l e g r a z i n g
land. It w a s u n d e r t a k e n t o h e l p r e s i d e n t
f a m i l i e s o b t a i n m o r e a d e q u a t e i n c o m e s by
r e l o c a t i n g on b e t t e r f a r m l a n d , a n d t o r e s t o r e to r a n g e land which was p o o r l y a d a p t e d
t o cultivation.
T h e Milk R i v e r p r o j e c t w a s a n effort t o
r e o r g a n i z e t h e u s e of l a n d and w a t e r r e s o u r c e s o n a n a r e a b a s i s . It not only r e s t o r e d n e a r l y a m i l l i o n a c r e s of l a n d p o o r l y
a d a p t e d f o r f a r m i n g t o g r a z i n g , but enc o u r a g e d r e l o c a t i o n of people i n t h e i r r i g a t e d a r e a s t o d e v e l o p i r r i g a t e d land f o r
i n t e n s i f i e d p r o d u c t i o n of f e e d c r o p s . T h e
Milk R i v e r i s a s o u r c e of w a t e r f o r a r a t h e r
n a r r o w s t r i p of i r r i g a t e d land. Extending
b a c k o n e i t h e r s i d e a r e m a n y m i l e s of
g r a s s l a n d i n t e r s p e r s e d with b e n c h e s of
dryfarming. As the project progressed,
many families in the dryfarm a r e a s gradually congregated in the i r r i g a t e d a r e a s ,
w h e r e homes, roads, schools, and other
f a c i l i t i e s could b e m o r e efficiently m a i n tained. The rangelands to either side w e r e
available f o r grazing.
The l a n d u t i l i z a t i o n p r o j e c t l a n d s w e r e
l e a s e d a n d o p e r a t e d f r o m about 1940 t o
1958 u n d e r t h e m a n a g e m e n t of l o c a l g r a z ing a s s o c i a t i o n s . T h e l i v e s t o c k w a s p a s t u r e d u n d e r p l a n s a n d r u l e s s e t up coope r a t i v e l y by t h e g r a z i n g a s s o c i a t i o n a n d t h e
F e d e r a l c u s t o d i a l agency. S o m e o p e r a t o r s
had w h e a t l a n d which t h e y d r y f a r m e d f r o m
their homes in the irrigated a r e a s . Divers i f i c a t i o n of e n t e r p r i s e s a m o n g l i v e s t o c k ,
f e e d c r o p s , and wheat brought g r e a t e r s e c u r i t y by l e s s e n i n g t h e d e p e n d e n c e on i n c o m e
f r o m a single c r o p o r e n t e r p r i s e .
The g r a z i n g a s s o c i a t i o n paid f e e s t o t h e
Government according to the carrying cap a c i t y of t h e land. The a s s o c i a t i o n p r o v i d e d
r a n g e r i d e r s and managed the operation,
including n u m b e r s of l i v e s t o c k p e r m i t t e d ,
d i s t r i b u t i o n of w a t e r , and g r a z i n g r e l a t i o n s
and maintenance. Each m e m b e r was allotted
t h e n u m b e r of l i v e s t o c k t h a t could b e g r a z e d
i n a c c o r d a n c e with t h e a m o u n t of f e e d which
h e could p r o d u c e on h i s f a r m and i n a c c o r d a n c e with t h e c a r r y i n g c a p a c i t y of t h e
r a n g e l a n d i n h i s a r e a . The g r a z i n g f e e p e r
head p e r m o n t h v a r i e d with t h e p r i c e s of
beef and mutton. The f e e s w e r e u s e d t o
m a n a g e t h e land, m a i n t a i n a n d i m p r o v e i t ,
a n d pay t h e r e n t a l u n d e r t h e a g r e e m e n t with
t h e F e d e r a l c u s t o d i a l a g e n c y . Twenty-five
p e r c e n t of t h e F e d e r a l i n c o m e was paid t o
t h e c o u n t i e s w h e r e t h e l a n d w a s located.
A r e a m a n a g e m e n t i n t h e f o r m of g r a z i n g
associations and soil conservation district
p l a n s and p r o g r a m s m o d i f i e d t h e m a n a g e m e n t a n d u s e of m a n y f a r m s and r a n c h e s
i n t h e r e g i o n a n d a i d e d i n m a i n t e n a n c e of
t h e land i n a m a n n e r that g a v e a m o r e
reliable income.
The Milk R i v e r l a n d u t i l i z a t i o n p r o j e c t
w a s a d m i n i s t e r e d by t h e Soil C o n s e r v a t i o n
S e r v i c e f r o m 1940 t o 1953, and by the F o r e s t
S e r v i c e f r o m 1954 t o 1958. I n 1958, t h e
p r o j e c t land was t r a n s f e r r e d t o t h e Eiureau
of Land Management of t h e D e p a r t m e n t of
the Interior for management i n Federal
g r a z i n g d i s t r i c t s along with a d j a c e n t and
i n t e r m i n g l e d public d o m a i n land. R a n c h e r s
a n d f a r m e r s u s e t h e g r a z i n g l a n d by payment
of f e e s f o r t h e i r l i v e s t o c k u n d e r t h e a n i m a l unit p e r m i t s y s t e m f o r land u t i l i z a t i o n
project land i n the F e d e r a l grazing districts.
CIMARRON NATIONAL GRASSLAND
The C i m a r r o n National G r a s s l a n d of
M o r t o n County, Kans., w a s s t a r t e d i n 1936
o n l a n d p u r c h a s e d with l a n d u t i l i z a t i o n funds
(fig. 15). O v e r a 3 - y e a r p e r i o d , about
107,000 a c r e s along t h e C i m a r r o n R i v e r
w e r e a c q u i r e d . In November 1938, t h e a r e a
was placed under the administrative control
of t h e S o i l C o n s e r v a t i o n S e r v i c e , and a n
a c t i v e p r o g r a m of r e s e e d i n g g r a s s e s w a s
s t a r t e d and h a s continued t o t h e p r e s e n t . l 6
l6Soil Survey Report, U.S. Dept. Agr., Morton
County, Kans., 1963.
In 1954, t h e p r o j e c t w a s t r a n s f e r r e d t o
t h e F o r e s t S e r v i c e f o r a d m i n i s t r a t i o n , and
i n 1960 was e s t a b l i s h e d a s a National
G r a s s l a n d f o r g r a z i n g , r e c r e a t i o n , and
wildlife.
F o r a g e i s t h e p r i n c i p a l u s e , but a s e c o n d a r y o b j e c t i v e i s s o i l s t a b i l i z a t i o n and
t h e p r e v e n t i o n of e r o s i o n . T h i s i s being
a c c o m p l i s h e d by r e s e e d i n g , balancing t h e
n u m b e r of l i v e s t o c k with t h e a v a i l a b l e f o r age, and other range-improving practices.
T h e C i m a r r o n National G r a s s l a n d o r g a n i z a t i o n i s c o o p e r a t i n g with wildlife
b i g - g a m e hunting; g a m e b i r d s a r e plentiful.
S e v e r a l s e r i e s of w a t e r f o w l a n d f i s h i n g
ponds w e r e constructed along the Cimarron
R i v e r by t h e S t a t e F i s h a n d G a m e D e p a r t m e n t . The u s e of t h e a r e a by s p o r t s m e n i s
i n c r e a s i n g . It i s p l a n n e d t o i n c r e a s e the
a m o u n t of g a m e by i m p r o v i n g quallLy a n d
q u a n t i t y of food a n d c o v e r . A t a b u l a t i o n
f o l l o w s , showing a v e r a g e u s e a n d i n c o m e
d u r i n g 19 53- 6 2 :
I rum
-
r\nimal-unit months of
grazing1
...............
X,!ineral leascs ..........
Recrcarion visits .......
other2 ....................
1 month's grazing tenure by 1mature cow o r steer,
land urilization prolccr, Octoh~~r
or 5 sheep.
1938.
lncludcs cropping, haying, and miscellaneous other
mamgcment: a g e n c i e s by p r o v i d m g t h e b c s t
land uses, such a s Lransmission and pipeline easepossible h a b i t a t f o r g a m e b i r d s a n d a n i m a l s ,
ments.
and by c o n t r o l l i n g r o d e n t s a n d p r e d a t o r s .
T h e r e a r e limited r e s o u r c e s for fishing a n d
Source: Narional Grassland records, Forest S~rvice.
Figure l5.--Kansas
F R E N C H C R E E K S T A T E PARK
t o t r a v e l even f u r t h e r out into the country
f o r scenic outdoor r c c r e a t i o n a l facilities.
O n t h e s e g r o u n d s , the p r o j e c t w a s a p p r o v e d
a s a n exceptional, c a s e , a n d w o r k w a s
s t a r t e d in 1934-35 t o develop t h e 6,000
a c r e s of woodland, f i e l d s , a n d p a s t u r e s
i n t o a n a t t r a c t i v e o u t d o o r p l a y g r o u n d . The
F r e n c h C r e e k p r o j e c t w a s a n e x a m p l e of
t h e problems e n c o u n t e r e d i n j u s t i f y i n g p u r c h a s e a n d retirement of f a r m l a n d s u ~ r a b l s
f o r c o n v e r s i o n t o r e c r e a t i o n a l and o t h e r
special purpose uses.
T h e area w a s t r a n s f e r r e d to t h e c o m m o n w e a l t h of P e n n s y l v a n i a in 1 9 4 7 f o r u s e a s
3 S t a t e Park. T h r e e l a k e s a r e w i t h i n t h e
park; the l a r g e s t , H o p e w e l l L a k e , c o v e r s
68 a c r e s . Facli>ties include picnic a r e a s ,
c a m p s i t e , , bathing b e a c h e s , hiking a n d
b r i d l e t r a i l s , p l a c e s f o r f i s h i n g a n d boatin^, a n d food a n d r e f r e s h m e n t c o n c e s s i o n s .
H o r s e s h o e T r a i l , a h i s t o r i c t r a i l extending
f r o m V a l l e y F o r ~ et o Dattllnz R u n Gap
n e a r H e r s h e y , ~ 5 5 t h~r o u
s g h t h e Fark.
I:ifty m i l e s w e s t of downtown P h i l a d e l p h i a
l i e s what \vas f i r s t n a m e d F r e n c h C r e e k
Recreational A r e a , a n d l a t e r , French Crask
S t a t e P a r k . I t i s a d m i r a b l y a d a p t e d to
r e c r e a t i o n a l use, h a v i n g i n t e r e s t i n g s c e n e r y
a n d beautiful s t r e a m s a n d Lakes. R o a d s
and r a i l r o a d s bring it within e a s y r e a c h
of s e v e r a l m i l l i o n p e o p l e w h o llvc w i t h i n
A 5 0 - m i l e r a d i u s . Many people h a d long
w i s h e d t o a c q u i r e this t r a c t f o r r e c r e a t i o n a l purposes, a s the a r e a d i d not have
a d e q u a t e r e c r e a t i o n a l facilities.
I t w a s not e n t i r e l y j u s t i f i a b l e t o p u r c h a s e
this land a:: p a r t of the l a n d utilization
p r o g r a m , f o r n o t only w a s i t s p r i c e r e l a t i v e l y high a t the t i m e , but t h e a m o u n t of
c r o p l a n d i t c o n t a i n e d w a s not l a r g e , and
t h e f a r m l a r > d w a s not f u l l y s u b m a r g i n a l
w h e n m o d e r a t e l y w a l l m a n a g e d . Yet c n m m o n s e n s e i n d i c a t ~ d the urgent need of
r e s e r v i n g t h i s a r e a f o r public use b e f o r e
p r i v a t e d ~ v e l n y m e n t i o r c e d people i n t h e
r.egion, e s p e c i a l l y those w i t h low i n c o m e s ,
55
NEW YORK LAND UTILIZATION PROJECT17
t h e m s e l v e s during the long period of waiting f o r a c t i o n on t h e i r applications.
Seventy-two of the displaced f a m i l i e s had
s o m e equity in t h e i r f a r m s and so w e r e
usually a b l e t o find places and r e l o c a t e
without a s s i s t a n c e . Fifty purchased other
f a r m s ; 22 did not continue f a r m i n g , but
b e c a m e day w o r k e r s o r r e t i r e d because of
age.
L a t e r , 10 f a m i l i e s w e r e a s s i s t e d by tLle
F a r m Security A d m i n i s t r a t i o n i n obtaining
p e r m a n e n t f a r m locations. F o r t y percent
of the f a m i l i e s found new p l a c e s and moved
to them without Government a s s i s t a n c e .
Some f a m i l i e s r e c e i v e d s m a l l loans to aid
with relocation and o p e r a t i o n of f a r m s in
new locations.
In the 19401s, a s u r v e y was made by
C o r n e l l University and the B u r e a u of Agric u l t u r a l Economics to find how f a m i l i e s
f r o m the p u r c h a s e a r e a succeeded in a d justing to relocation (42). Of 92 f a m i l i e s
interviewed, 69 (7.5 p e r c e n t ) s a i d they w e r e
b e t t e r off a s a r e s u l t of selling their land
and r e s e t t l i n g in a new location. The other
29 f a m i l i e s s a i d their situation had not
improved.
It s e e m s r e a s o n a b l e t o conclude f r o m
t h e s e a n s w e r s that the r e l o c a t i o n p r o g r a m
was about 75 ~ e r c e n st u c c e s s f u l . The fami l i e s who w e r e m o s t s u c c e s s f u l in r e l o c a tion and r e a d j u s t m e n t w e r e the young f a m i l i e s where husband and wife w e r e between
21 and 40 y e a r s of age, had completed 8
g r a d e s of school o r m o r e , w e r e i n good
health, and continued a s . f a r m owners and
operators
The 15,000 a c r e s p u r c h a s e d in the New
York Land Utilization P r o j e c t (NY-LU 4 ) in
the s o u t h - c e n t r a l region of the State n e a r
Ithaca w e r e gradually being abandoned in the
middle 1930's. Five of the land p u r c h a s e
a r e a s w e r e in Tompkins County. One, the
Hector Unit, was in Schuyler County. Of
the 293 t r a c t s purchased in 1935-37 only
133, o r l e s s than half, w e r e occupied. Unf a v o r a b l e s o i l and topography w e r e . gene r a l l y accepted c a u s e s f o r the abandonment
of f a r m i n g .
According to the r e c o r d s , 118 f a m i l i e s
moved a s a d i r e c t r e s u l t of the p u r c h a s e
p r o g r a m , and 5 w e r e given life l e a s e s on
t h e i r homes and p e r m i t t e d to live in the
p u r c h a s e a r e a . Of the f a m i l i e s who moved,
90 p e r c e n t w e r e f a r m e r s . Many f a m i l i e s
w e r e a b l e to find new h o m e s without a s s i s t a n c e . Some purchased other f a r m s .
O t h e r s went to live in nearby villages and
towns, frequently n e a r o r with r e l a t i v e s .
Some f a m i l i e s needed help in relocation.
A l i s t of 200 f a r m s f o r s a l e was p r e p a r e d , and f a r m e r s whose land was p u r c h a s e d w e r e told of t h e s e opportunities,
and i n s o m e c a s e s w e r e shown a number
of f a r m s . At the t i m e the p r o j e c t land was
p u r c h a s e d , a s u r v e y was made of the f a m i l i e s who applied f o r a s s i s t a n c e , with the
intention of helping them obtain work and
p l a c e s to live on r e s e t t l e m e n t projects.18
Although a few f a m i l i e s w e r e accepted f o r
r e s e t t l e m e n t p r o j e c t s in the f i r s t 3 y e a r s
a f t e r the project land was purchased, the
m a j o r i t y w e r e found ineligible, o r withdrew
t h e i r applications a s they found p l a c e s
.
BELTRAMI WILDLIFE MANAGEMENT AREA19
A different approach t o the problem of
acquisition of land f o r land utilization
p r o j e c t s i s i l l u s t r a t e d by the B e l t r a m i
Island
project
i n n o r t h e r n Minnesota
(fig. 16). H e r e the p u r c h a s e of about 80,000
a c r e s in poor, s c a t t e r e d f a r m s in l a r g e
f o r e s t a r e a s was c a r r i e d out chiefly to
r e l i e v e individual d i s t r e s s , and to r e l i e v e
the counties of the heavy expenditures inl7Bibliography references used in preparing the
section are (-2) and (42).
1 8 Survey by the Rural Resettlement Division of the
Federal Emergency Relief Administration and the
Resettlement Administration.
l 9Bibliography reference (99) was used in preparing this section.
volved in maintaining schools f o r children
living on isolated f a r m s and in keeping
r o a d s open to the s c a t t e r e d homes. The
purchased f a r m s w e r e at f i r s t included in
a public f o r e s t , but this land was l e s s
valuable than other land that might have
been selected if c o m m e r c i a l f o r e s t s had
been the single objective. The project contained c o n s i d e r a b l e a r e a s of burned-over
land, on which restocking of t i m b e r t r e e s
was a s e r i o u s problem. But t h e r e was little
question f r o m the viewpoint of social and
economic w e l f a r e that the lands should be
put in public ownership. Many of the count i e s in the region bordering the w e s t e r n
G r e a t Lakes w e r e on the brink of financial
difficulty u n l e s s changes w e r e made in the
s c a t t e r e d type of s e t t l e m e n t , which r e q u i r e d
Figure 16.--:vitnnesorn
lard u t i l i m c i o n projects, October 1938.
heavy c a s t s for p u b l i c s e r v i c e s . T h e
B e l t r a m i I s l a n d project did m u c h t o d e m o n strake i n p r a c t ~ c a l t e r m s the w a y s and
m e a n s of c a r r y i n g out t h i s all-important
process. The a i d w h i c h t h e project provided
to t h e s e t t l e r s t h e m s e l v e s w a s of g r e a t social
significance, f o r they w e r e helped to move
f r o m isolated unproductive f a r m s inside i m m e n s e woodland a r e a s to b ~ t t e fra r m s C ~ O S P
to m a r k e t s , ~ c h o o l s ,roads, and r u r a l communities i n w h i c h t h e i r i n t e r e s t s c e n t e r e d .
Under a l o n g - t e r m a g r e e m e n t m a d e i n
Minner;ota D ~ p a r t m e n tof Cons e r v a t i o n m a n a ~ a dt b e l a n d a s a p a r t of t h e
B e l t r a m i State F o r e s t . L a t e r , b e c a u s e of
t h e suitability of t h e land f o r b i ~ ,g a m e
animals, w i l d b i r d s , and f u r - b e a r i n g anim a l s , m a j o r e m p h a s i s w a s placed o n w i l d life m a n a g e m e n t a n d t h e project w a s re1940, t h e
t h e R e l t r a m i W i l d l i f e Management
.%reamliecreation and f o r e s t r y a r e i m p o r t a n t
secondary u s e s of t h e Land.
~hamec!
YELLOWWOOD S T A T E FOREST
a living u n d e r t h e s e c o n d i t i o n s in t h e Bean
B l o s s o m p r o j e c t a r e a a l o n e . Yet t h e val.ue
of t h e l a n d in t h e a r e a a s a p l a y g r o u n d
a n d r e c r e a t i o n a l site, A S a s c e n i c a t t r a c t i o n ,
a n d f o r f o r e s t s had a l r e a d y b e e n p r o v e n b y
the 1 6 , 0 0 0 - a c r e B r o w n County State Park
a n d G a m e P r e s e r v e n e a r Nashvi!le.
The imrnediatr objpctive of t h e project:
w a s t o t a k e the land o u t of u n p r o f i t a b l e use
a n d t o s h o w h0y.v i t could b e u s e d e c o n o m i c a l l y f o r m o r c d e s i r a b l e p u r p o s e s . By 1938,
clevelopment of t h e Bean B l o s s o m P r o j e c t
h a d l a i d t h e f o u n d a t i o n for a b e t t e r rural
e c o n o m y hasecl on s o u n d u s e of natural
r e s o u r c e s . .a.n e x t e n s i v e f o r e s t had b e e n
i m p r o v e d and enlarged. A 147-acre l a k e
a n d 2 l a k e s of 20 a c r e s each had b e e n made,
and r o a d s , t r a i l s , c a m p s i t e s , a n d picnic
a r e a s i m p r o v e d and d e v e l o p e d .
T h e R e a n B l o s s o m Project was m a n a g e d
b y t h e Indiana Conservation D e p a r t m e n t
under a long-term agreement as a State
F o r e s t f r o m 1 9 3 8 t o 1956, when i t w a s
g r a n t e d t o t h e S t a t e a n d b e c a m e Yellowwood
Statc Forest.
T h e f o r e s t m a y b e r e a c h e d by Indiana
S t a t e R o a d s 4 5 a n d 46, n e a r B c l m ~ n t .The
three l a k e s - - A d t L a k e , Bear Lake, and
Y c l l o w o o d L a k e - - a l l are well stacked f o r
e x c e l l e n t fishing. Hunting i s p e r r n i t t c d d u r ing t h e open s e a s o n f o r several g a m e
species.
V i s i t o r s t o Yellowwood S t a t e F o r e s t w i l l
f i n d p l e a s u r e In a n u m b e r of t h i n g s : The
a b u n d a n c e of w i l d f l o w e r s a n d wildlife, the
m a g n i f i c e n t t r e e s , t h e b e a u t i f u l lakes, the
i n s p i r a t i o n a l s c e n e r l - . But t h e hiking t r a i l s
have become the f e a t u r e attraction. The
p o p u l a r i t y of t h o s e a t Yellowwood is a t t r i b u t a b l e t o t h e i r l e n g t h , t o their r u g g e d n e s s ,
t o t h e c h a l l e n g e s t h e y p r e s e n t , and t o t h e i r
u n s p o i l e d n a t u r a l beauty.
Two t r a i l s h a v e b e e n m a r k e d t h r o u g h t h e
f o r e s t . Thc 22-mile Tulip Tree T r a c e ,
o p e n e d i n 1958, c o m m e n c e s at t h e s o u t h
e n d of t h e p i c n i c a r e a a t Yellowwood L a k e
a n d t e r m i n a t e s in M o r g a n - M o n r o e S t a t c
F o r e s t w h i c h l i e s n o r t h a n d w e s t of Yellowwood. E i g h t e e n m i l e s of t h e Trace a r e
t h r o u ~ hd e n s c f o r e s t , following old Indlan,
pioneer, and stagecoach trails.
T h e s e c o n d t r a i l , T e n OfClocX L i n e ,
o p e n e d i n F e b r u a r y 1959, e x t e n d s f r o m a
point a c r o s s f r o m t h e s o u t h c a m p i n g
g r o u n d a t Yellowwood L a k e t o t h e f i r e t o w e r
o n VJeed P a t c h Hill i n D r o w n County S t a t e
T ~ P2 1 , 5 0 0 - a c r e Be.an B l o s s o m L a n d
U t i l r z a t i n n P r o j e c t , now t h e YeSlowwood
S t a t e Forest, w a s r n i t i a t ~ di n 1935 i n the
s c e n i c h i l l s of B.toivn County, Ind., 6 m i l a s
w e s t of N a s h v ~ l l a ,h d , (fig. 17).
F a r m i n g in t h e a r e a was m o s t l y l i m i t e d
t o s m a l l , h i l l y p a t c h e s of l a n d not s u i t e d t o
cultivation. Trrnber had been o v e r c u t , r c duclny, t h i s s o u r c e a f i n c o m e . W i l d l ~ f cwas
r a p i d l y d i m i n i s h i n g . R e l i e f c o s t s w c r e high,
and m a n y f a m i l i e s w e r e i n n e e d . S u p p o r t of
s c i ~ o o l s and r o a d s was a heavy burden.
T h e r e was w i d e s p r e a d t a x delinquency.
R e t u r n of i a r n i l i e s t o the l a n d d u r i n g dep r e s s i o n y e a r s a n d a b s e n c e of o u t s i d e e m p l o y m e n t h a d added to t h e p r o b l e m . S o m e
180 f a m i l i e s w e r e s t r u g g l i n g v a i n l y t o e a r n
Figure 17.--Indiana 1 3 ~ durilization projccrs, October
1938.
2Cr~ibliography
refcrenccs
(Eand (176)
- were used
''
In preparing chis s~ction.
58
t o r s , o t h c r t h a n r u g g c d hiking e n t h u s i a s t s ,
j u s t c o m e f o r a d a y o r weekend .of 1 e i s . u r e l y
TO i n s u r e t h e i r
l o a f i n @ a n d picnicking.
e n j o y m e n t of t h e f o r e s t , p i t n i t a r e a s h a v e
been enlarged and playground equipment
e r e c t e d f o r c h i l d r e n . Many people c o m e
j u s t t o d r i v e t h e m i l e s of s c e n i c f o r e s t
roads.
Yellowwood F o r c s t i s p e r h a p s t h c b e s t
e x a m p l e i n t h e S t a t e f o r study i n a c t i o n of
c o r r c c t f o r e s t m a n a g e m e n t . Study p l o t s a r e
t o b c found t h r o u g h o u t a n d t h e r e s u l t s of
f o r e s t management a r e clearly evidenced
by s e v e r a l t h o u s a n d a c r e s of r e c l a i m e d
f i e l d s which w e r e p l a n t e d t o fast-growirrg
pine; s o m e of t h e t r e e s , now 24 y e a r s old, a r e
s e v e r a l i n c h e s in d i a m e t e r a n d 40 f e e t tail.
P a r k which l i e s t o t h e s o u t h e a s t . This 16m i l e hike is a r o u g h o n e a c r o s s a s e r i e s
of r i d g e s a n d v a l l e y s .
Thes~
t r a i l s have b e c o m e so p o p u l a r t h a t
t h o u s a n d s of hikers f r o m Indiana and o t h e r
p a r t s of t h e c o u n t r y t r a v e r s e t h e i r r o u t e s .
Boy S c o u t s use t h e t r a i l s f o r n a t u r e s t u d y
and o t h e r o u t d o o r Scouting a c t i v i t i e s .
To m e e t t h e i n c r e a s i n g p u b l i c u s e of t h i s
f o r e s t f o r outdoor r e c r e a t i o n , many i m p r o v e m e n t s h a v e been m a d e . Two n c w
c a m p g r o u n d s h a v e beam c l e a r e d , o n e p r i m a r i l y f o r Boy S c o u t s a n d o n e f o r t h e public,
daubling t h e g e n e r a l c a m p i n g a r e a . C a m p i n g
is p e r m i t t e d only w h e r e d e s i g n a t e d .
Other improvements include a water
s y s t e m a n d s a n i t a r y f a c i l i t i e s . Many v i s i -
BLADEN LAKES STATE
T h e BIaden L a k e s S t a t e F o r e s t of K o r t h
Carolina was formed from t h e J o n e s and
S a l t e r Lakes L a d bli21zation P r o j e c t (fig.
18). The l a n d i n t h i s p r o j e c t w a s p u r c h a s e d d u r i n g the perirsd 1936-42 u n d c r t h e
a u t h o r r t y of T i t l e h l l of the Dankhead- J o n e s
F a r m Tenant A c t and a n t e c e d e n t e m e r gency a c t s . The 35,875 a c r e s c o s t a n a v c r age of $4.51 p e r a c r e .
In 1936, t h e area was o c c u p i e d by a
s t randcd populatron. F i r s t e e t t l c d d u r i n g
t h e l a t e c o l o n i a l p e r i o d , it had a h i s t o r y of
poverty. F o r a humired y e a r s after t h c
a r r i v a l of t h e f i r s t s e t t l e r s , f a r m e r s p r a c t ~ c e ds u b s i s t e n c e h a r m i n g a l o n g t h e r i v e r
lowlavds a n d c r e e k ' m t t s m s , a n d s o l d n a v a l
Figurc 13.--h'orth
FOREST^'
s t o r e s f r o m t h e l a r g e s t a n d s of IongIeaf
p i n e t h e n i n t h e a r e a . L a t e r , p r o d u c t i o n of
cotton b e c a m e important. A n i n c r e a s e i n
t h e population beyond t h e c a p a c i t y of t h e
l a n d t o s u p p o r t it c a m e f r o m 2 chief
s o u r c e s : T h o s e who m o v e d i n t o t h e a r e a
a s I a b o r e r s in the turpentine andlumbering
i n d u s t r i e s , a n d t h o s e who w e r e i n f l u e n c e d
by t h e u n w i s e p r o m o t i o n of c o t t o n p r o d u c tion.
By 1935 l o w p r i c e , p o o r s o i l , a n d t h e
b o l l w e e v i l had m a d e p r o d u c t i o n of c o t t o n
a s a c a s h c r o p unprotitable. T h c naval
s t o r e s a n d t i m b e r whidh had p r o v i d e d a
l a r g e p a r t of t h e population with a s o u r c e
of l i v e l i h o o d f o r m a n y y e a r s w a s p r a c t i c a l l y
Carolina Iand utilization
prole-cts,
April 1939.
2 L ~ h i sechon,
a
prepared w i t h che aid of t h e Forcst Supervisor of Bladcn Lakes S r a c Foresc, is a surnrnary
of I??).
59
e x h a u s t e d . \ \ i t h o u t t h e m e a n s of m o v i n g t o
a n a r e a of g r e a t e r p r o d u c t i v i t y , and w i t h
no w a y c f s u p p o r t i n g t h e m s e l v e s o n t h e i r
s u b m a r g i n a l l a n d s , t h e p e o p l e h a d , by 1935,
become truly stranded i n the economic
sense.
T h e d e l i n q u e n t t a x p r o b l e m w a s of g r a v e
~ m p o r t a n c e . T h e m a j o r i t y of f a r m s w h i c h
h a d not p a s s e d f r o m t h e h a n d s of t h e o r i g inal owners t o corporations, commercial
b a n k s , l a n d b a n k s , etc., had a n u m b e r of
y e a r s of back t a x e s owing.
Such was the general situation facing t h e
initial planners for t h e land utilizationprog r a m in this a r e a .
S e v e r a l months w e r e spent i n d e t e r m i n i n g
e c o n o m i c c o n d i t i o n s , a t t i t u d e s of l o c a l r e s i d e n t s and county o f f i c i a l s , l a n d v a l u e s ,
and l a n d b o u n d a r i e s , a n d i n s e c u r i n g options to p u r c h a s e the land. A g r i c u l t u r a l
land w a s a l s o purchased f o r the r e s e t t l e m e n t of f a r m f a m i l i e s d e s i r i n e s u c h r e settlement.
D u r i n g t h e p e r i o d 1936-1939, t h r o u g h u s e
of C i v i l i a n C o n s e r v a t i o n C o r p s l a b o r a n d
l o c a l r e s i d e n t s , m a n y m i l e s of t r u c k t r a i l s
w e r e constructed, game refuges were e s tablished, and the J o n e s Lake a n d s i n g l e t a r ?
Lake r e c r e a t i o n a l c e n t e r s w e r e developed.
H u n d r e d s of a c r e s of pine p l a n t a t i o n s w e r e
e s t a b l i s h e d on a l l a v a i l a b l e o p e n f i e l d s .
Many other p r o j e c t s b a s i c t o t h e developm e n t a n d m a n a g e m e n t of t h i s a r e a w e r e
begun o r completed during t h e s e y e a r s .
By 1938 t h e m a j o r i t ) . of t h e a r e a which
f o r m s the p r e s e n t Bladen Lakes State F o r e s t
w a s o p t i o n e d o r p u r c h a s e d . Under a c o o p erative agreement, the property was turned
o v e r t o t h e F o r e s t r y D i v i s i o n of t h e PJorth
C a r o l i n a D e p a r t m e n t of C o n s e r v a t i o n a n d
D e v e l o p m e n t on J u l y 1, 1939, f o r a d m i n i s t r a t i o n a n d o p e r a t i o n . S i n c e t h a t t i m e , with
t h e e x c e p t i o n of t h e f i r s t 2 c r i t i c a l y e a r s ,
Bladen Lakes State F o r e s t has beenoperated
a n d d e v e l o p e d on a c o m p l e t e l y s e l f s u s t a i n i n g b a s i s . On O c t o b e r 19, 1954, t h e
e n t i r e a r e a w a s t r a n s f e r r e d t o t h e S t a t e of
N o r t h C a r o l i n a by t h e F e d e r a l G o v e r n m e n t
in fee simple.
-
Objectives
The p r i m a r y objectives i n t h e managem e n t of t h e f o r e s t a r e a a r e t o build u p t h e
g r o w i n g s t o c k of t i m b e r o n t h e o v e r c u t a n d
hadly b u r n e d a r e a s ; t o u t i l i z e a l l r e s o u r c e s ,
i n c l u d i n g g a m e ; and t o d e m o n s t r a t e t h a t
s u c h a n a r e a c a n m o r e t h a n p a y i t s own w a y
under sound f o r e s t r y operations.
i s a s e c o n d a r y objective, the full expans i o n of t h e r e c r e a t i o n a l u s e of n a t u r a l l a k e s
a n d s u r r o u n d i n g a r e a s h a s b e e n of high
p r i o r i t y . In 1917, t h e c o n t i n u e d d e v e l o p m e n t
of t h e s e r e c r e a t i o n a l f a c i l i t i e s w a s t u r n e d
o v e r t o t h e DivisioR of S t a t e P a r k s .
In r e c e n t y e a r s , t h e u s e of t h e S t a t e
Forest as a demonstrational a r e a in all
p h a s e s of f o r e s t m a n a g e m e n t a n d o p e r a tional t e c h n i q u e s h a s been emphasized.
S e v e r a l hundred persons visit t h e f o r e s t
e a c h y e a r t o o b s e r v e planting, c o n t r o l - b u r n ing, r o a d c o n s t r u c t i o n , logging, s a w m i l l
operation, grafting and other silvicultural
techniques, charcoal manufacturing, frncepost t r e a t m e n t , and other g e n e r a l f o r e s t
management practices. Teachers, private
l a n d o w n e r s , b u s i n e s s m e n , county a g e n t s ,
f a r m boys, college students, foreign f o r e s t e r s , and F e d e r a l and State F o r e s t Servi c e personnel a r e r e p r e s e n t e d among t h e
v i s i t o r s . Cost a n a l y s e s a r e p r e p a r e d and
published f o r a l l the operations, and a r e
helpful a i d s when l e c t u r e s a r e presented t o
v i s i t o r s . Many i n t e r e s t e d p e r s o n s a v a i l
t h e m s e l v e s of t h e s e a n a l y s e s .
Financial D e v e l o p m e n t
A very trying t i m e was experienced i n
attempting t o s t a r t operations on the State
F o r e s t . On o c c a s i o n , d i f f i c u l t y w a s encount e r e d i n s e c u r i n g s u f f i c i e n t funds t o pay
f o r l a b o r . T h e p u r c h a s e of a d e q u a t e equipment was a process requiring many years.
D u r i n g t h e e a r l y d a y s of d e v e l o p m e n t , e m p l o y m e n t w a s vital t o t h e p r o g r e s s a n d
w e l f a r e of l o c a l r e s i d e n t s . A s t h e f o r e s t
progressed and a s labor costs increased,
it b e c a m e n e c e s s a r y to mechanize operat i o n s a s m u c h a s p o s s i b l e . At p r e s e n t , a m u c h
g r e a t e r v o l u m e of w o r k i s done w i t h a s m a l l
n u m b e r of m e n u s i n g m o d e m m a c h i n e r y t h a n
w a s d o n e b y l a r g e r c r e w s in e a r l i e r d a y s .
R e c e i p t s f o r 25 y e a r s , J u l y 1939 to J u n e
1964, a r e s u m m a r i z e d i n t h e following
tabulation:
Sawed lumber
Logs
Pulpwood
Treated posts
Ocher
25,558,885 board feet
12,803,452 board feet
56,969 cords
346,947 posts
$1,227,339
300,190
391.017
169,341
152.913
2,240,800
While t h e S t a t e F o r e s t h a s b e e n s e l f s u p p o r t i n g a l m o s t s i n c e i t s inception, l a r g e
s u m s of m o n e y a n d a g r e a t a m o u n t of e f f o r t
h a v e g o n e i n t o t h e p r o j e c t . T h e 35,875 a c r e s
of land c o s t the F e d e r a l Government a total
of $165,466.90 in 1939. Since this initial
p u r c h a s e of p r o p e r t y , the capitalized value
of the State F o r e s t h a s tremendously inc r e a s e d . Below i s a s u m m a r y of the valuation of the State F o r e s t f r o m a Bladen
County r e p o r t p r e p a r e d f o r t a x p u r p o s e s
i n October 1957:
............
Total value of forested lands
$1,301,570.00
Taxable valuation (35 percent of
above)
454,549.50
(Tax rate @ $1.35 per $100)
Tax paid to Bladen County on State
Forest
6,136.42
.....................................
........................................
This valuation does not include buildings,
h o u s e s , s a w m i l l , a n d equipment. It r e p r e s e n t s a n e s t i m a t e of the valuation of the
F o r e s t a s c o m p a r e d to o t h e r f o r e s t e d l a n d s
i n the county.
Personnel and Organization
The State F o r e s t d i r e c t l y employs 30
persons listed a s foresters, rangers, forem e n , equipment o p e r a t o r s , post plant o p e r a t o r s , f o r e s t r y w o r k e r s , etc. In addition to
t h e s e p e r s o n s d i r e c t l y employed, 12 to 16
a r e engaged i n c o n t r a c t u a l work, such a s
p r e p a r i n g f e n c e p o s t s a n d cutting pulpwood.
T h e r e a r e a p p r o x i m a t e l y 150 p e r s o n s dependent upon wage e a r n e r s working on the
Forest.
Experimental Projects in P r o g r e s s
A s s t a t e d before, a p r i n c i p a l objective of
the a d m i n i s t r a t i o n of the State F o r e s t i s i t s
continued development a s a d e m o n s t r a t i o n a l
a r e a f o r a l l i n t e r e s t e d p e r s o n s . In f u r t h e r a n c e of this objective, joint s t u d i e s a r e
undertaken with cooperating S t a t e a n d F e d e r a l agencies.
E a c h y e a r , a n extensive f i r e prevention
campaign i s waged in the g e n e r a l a r e a of
the State F o r e s t . F i r e prevention exhibits
a r e mounted in l o c a l s t o r e windows and
s u c h exhibits a t t r a c t a c o n s i d e r a b l e amount
of favorable attention. During p e r i o d s of
e x t r e m e d a n g e r , heavy m o t o r p a t r o l s a r e
s t a r t e d a n d p e r s o n a l contact work with a l l
p e r s o n s living around the F o r e s t i s intensified. A y e a r - r o u n d duty r o s t e r of a l l
p e r s o n s employed by the f o r e s t i s m a i n tained, a n d during c r i t i c a l p e r i o d s a l l p e r sons a r e subject to standby duty.
F o r t h e p a s t 8 to 10 y e a r s , l a r g e - s c a l e
c o n t r o l burning operations have been con-
ducted on the State F o r e s t . Nearly a l l longleaf r i d g e s a r e now on a 2- t o 3 - y e a r
burning rotation. These c o n t r o l l e d b u r n s
have
r e d u c e d the g e n e r a l t h r e a t of
f o r e s t f i r e s on the State F o r e s t , and have
a i d e d in the s u p p r e s s i o n of s e v e r a l potentially d i s a s t r o u s f i r e s . The controlled b u r n s
have a l s o s e r v e d t o r e l e a s e longleaf pine
s e e d l i n g s f r o m the g r a s s s t a g e in heavy
w i r e g r a s s c o v e r , to e l i m i n a t e brown spot
f r o m i n n u m e r a b l e a r e a s of s e v e r e infestation, a n d to p r e p a r e seedbeds r e c e p t i v e to
to the r e g e n e r a t i o n of many a c r e s of longleaf pine in openings throughout the f o r e s t
area.
No uncontrolled f o r e s t f i r e of any consequence h a s burned on Bladen L a k e s State
F o r e s t s i n c e A p r i l 1955.
Construction and Maintenance
Initially, only such h e a d q u a r t e r s buildings
were c o n s t r u c t e d a s were necessary-office, g a r a g e , a n d s u p e r v i s o r ' s r e s i d e n c e .
S e v e r a l of the b e t t e r h o m e s of local r e s i dents w e r e salvaged f o r u s e by State F o r e s t
employees. Since the e a r l y y e a r s , many
i m p r o v e m e n t s and additions have been m a d e
on a l l of the o r i g i n a l buildings and s e v e r a l
s t r u c t u r e s have been added.
Truck Trails
During the f i r s t y e a r s of i t s o p e r a t i o n s ,
t h e State c o n s t r u c t e d 44.6 m i l e s of f o r e s t
r o a d s . Heavy e m p h a s i s h a s been placed on
new r o a d a n d t r a i l c o n s t r u c t i o n w o r k during
t h e p a s t few y e a r s , and a p p r o x i m a t e l y 45
m i l e s of new r o a d s have been added to the
S t a t e F o r e s t network, making a total of
89.6 m i l e s . These r e p r e s e n t only r o a d s
maintained by State F o r e s t p e r s o n n e l . They
do not include the 40 o r 50 m i l e s of the
S t a t e highway s y s t e m of g r a d e d a n d paved
r o a d s passing through the F o r e s t o r the
i n n u m e r a b l e m i l e s of a c c e s s t r a i l s cons t r u c t e d and maintained.
G a m e Manaeement
No hunting i s p e r m i t t e d on Bladen Lakes
S t a t e F o r e s t . It i s a g a m e p r e s e r v e , and
g a m e w a r d e n s employed by the North C a r o lina Wildlife R e s o u r c e s C o m m i s s i o n heavily
p a t r o l the a r e a to i n s u r e that a l l wildlife
i s protected.
Of c o u r s e , innumerable p r i v a t e p a r t i e s of
d e e r h u n t e r s r e g u l a r l y hunt o n p r i v a t e lands
a r o u n d the S t a t e F o r e s t a n d h a r v e s t the
e x c e s s "crop" of d e e r r a i s e d on i t s p r o tected a r e a s .
SANDHILLS WILDLIFE MANAGEMENT AREA 2 2
The Sandhills P r o j e c t ( L U - N C - 3 ) i n N o r t h
Carolina i l l u s t r a t e s developments undert a k e n in t h e n a t u r a l l y f o r e s t e d e a s t e r n p a r t
of the United S t a t e s .
F o r t h e m o s t p a r t , the 1 1 3 , 0 0 0 a c r e s p u r c h a s e d in the Sandhills a r e a was unsuited
to s u c c e s s f u l cultivated c r o p productionand
m o r e a d a p t e d to upland g a m e on the h i l l s
and f i s h in t h e s t r e a m s , ponds, and l a k e s .
F o r e s t stand i m p r o v e m e n t at f i r s t was a
leading job. B e c a u s e of the need f o r f o r e s t t r e e s t o c k to r e s t o r e this sandy a r e a to
f o r e s t c o v e r , a f o r e s t - t r e e n u r s e r y was
one of the f i r s t things to be developed on
the Sandhills p r o j e c t . During t h e y e a r 1937,
13 million f o r e s t - t r e e seedlings w e r e p r o duced a n d u s e d on the p r o j e c t and o t h e r
n e a r b y p r o j e c t s w h e r e s i m i l a r conditions
prevailed.
Wildlife development a l s o r e c e i v e d high
p r i o r i t y on t h e Sandhills p r o j e c t . A f i s h
h a t c h e r y w a s e s t a b l i s h e d to prdvide f i s h f o r
r e s t o c k i n g s t r e a m s , l a k e s , and ponds i n t h e
p r o j e c t a r e a and in o t h e r p r o j e c t s in the
Southeast. P r o t e c t i v e cover f o r upland g a m e
a n d food c r o p s f o r g a m e b i r d s w e r e planted.
R e c r e a t i o n a l f a c i l i t i e s on this p r o j e c t included development of a n a r t i f i c i a l l a k e ,
a n d t h e building of cabins, t r a i l s , camping
a r e a s , a n d picnic grounds f o r the u s e of the
l a r g e n u m b e r of v i s i t o r s .
G a m e f a r m s w e r e developed f o r production of quail, t u r k e y , and s m a l l g a m e a n i m a l s . C o n s t r u c t i o n of impounding d a m s a s
s o u r c e s of w a t e r f o r many f i s h breeding
pools, fishing s i t e s , and other w a t e r needs
i n the a r e a was completed a t a n e a r l y stage
of p r o j e c t development. Lakes on the project
a r e now available f o r public fishing.
G a m e r a i s e d on the g a m e f a r m s was
r e l e a s e d on the designated g a m e r e f u g e s ,
a n d s u r p l u s g a m e d i s t r i b u t e d to other public
p r o j e c t s , including f o r e s t , r e c r e a t i o n a l , and
wildlife a r e a s . Public hunting i s allowed
u n d e r s u p e r v i s i o n and c o n t r o l . The overflow
of d e e r f r o m n e a r b y public f o r e s t s and
p r i v a t e a r e a s in uplands and swamps s e r v e d
to e s t a b l i s h a n i n c r e a s e i n the supply of
d e e r on the p r o j e c t . Hunting and fishing
p r i v i l e g e s a r e in demand, s i n c e the Sandh i l l s Region i s a n a t t r a c t i v e f a l l and winter
r e s o r t a r e a n e a r c e n t e r s of c o n s i d e r a b l e
population.
The p u r c h a s e and development of land
unsuited to f a r m i n g gave the owners and
o p e r a t o r s a n opportunity to d i s p o s e of subm a r g i n a l f a r m s a n d to move to b e t t e r land,
a n d h a s kept the s u b m a r g i n a l land f r o m
being u s e d f o r f a r m i n g . The p r a c t i c a l f o r e s t r y development by f i r e protection, t r e e
planting, a n d m a n a g e m e n t ; wildlife production and c o n s e r v a t i o n ; and development of
fishing, hunting, a n d r e c r e a t i o n a l f a c i l i t i e s
h a s s e r v e d to d e m o n s t r a t e ways t o u s e poor
f a r m lands i n the Sandhills Region f o r wild
g a m e a n d r e c r e a t i o n , to the g r e a t e r benefit
of the people of n e a r b y S t a t e s and of the
public g e n e r a l l y .
CLEMSON FOREST
Historical Background
The land i n C l e m s o n F o r e s t ( C l e m s o n
University Land Utilization P r o j e c t , South
C a r o l i n a (SC-3)) was a c q u i r e d during the
p e r i o d 1934- 39. The p u r c h a s e included 206
s e p a r a t e t r a c t s varying i n s i z e f r o m 9.8
to 1,054 a c r e s . During the preceding 175
y e a r s o r s o , the land was i n p r i v a t e owners h i p a n d u s e d in varying d e g r e e s of intens i t y by 1,000 o r m o r e f a r m f a m i l i e s that
occupied t h e land in r e g u l a r a n d i r r e g u l a r
succession.
C l e m s o n University began s u p e r v i s i n g the
land in D e c e m b e r 1939, under a cooperative
a g r e e m e n t with the F e d e r a l Government.
A d m i n i s t r a t i o n of the land w a s s e t u p u n d e r
23
t h e d i r e c t i o n of P r e s i d e n t R o b e r t F. Poole,
a n d i n 1946 and 1947 two f o r e s t e r s , N. B.
Goebel and Dr. K. Lehotsky, w e r e employed
to m a n a g e the f o r e s t a n d to e s t a b l i s h a b a s i c
curriculum in forestry.
Two notable events have o c c u r r e d s i n c e
then: ( 1 ) The land u s e a r e a , c o m p r i s i n g
27,469 a c r e s , was deeded to the u n i v e r s i t y
i n 1954 and ( 2 ) the Hartwell Dam, that would
t a k e 7,667 a c r e s of college land f o r i t s
r e s e r v o i r , including 5,626 a c r e s in f o r e s t ,
was begun i n 1956. University t i m b e r s a l vage o p e r a t i o n s began i n the basin in May
1956.
R e c o r d s on the t i m b e r h a r v e s t f r o m the
f o r e s t show that 33.3 m i l l i o n board f e e t of
t i m b e r w e r e h a r v e s t e d and sold in the 15
22~ibliographyreference (160) was used in preparing this section.
23Bibliography refr-ences used in preparing this section are (9,
9 2 , and
131).
y e a r s 1944-59. Included i n t h i s h a r v e s t w e r e
16.1 million board f e e t cut f r o m the 5,626
a c r e s a b s o r b e d by the Hartwell R e s e r v o i r .
Timber s a l e s 1959-62 a v e r a g e d $50,000
annually. Approximately 1 million board
f e e t of s a w t i m b e r and 5,000 c o r d s of pulpwood w e r e cut each y e a r .
Timber Inventories, 1936-58
In 1936 the U.S. Government m a d e a c r u i s e
of the t i m b e r i n t h e land utilization p r o j e c t
a r e a . The a r e a c l a s s e d a s f o r e s t l a n d in this
c r u i s e totalled 17,644 a c r e s . The c r u i s e
gave a total of 37,368,000 board feet, o r a n
a v e r a g e of 2,118 board f e e t p e r a c r e .
To obtain m o r e r e c e n t data r e g a r d i n g the
condition of the C l e m s o n F o r e s t a s a guide
to management, a s y s t e m a t i c reconnaiss a n c e inventory w a s m a d e during t h e s u m m e r of 1958, in which 232 point s a m p l e s
w e r e taken. The following tabulation comp a r e s the inventories:
Date of
inventory
Total forest
acreage
Total volume
Av. volume
per acre
Acres
-
Board ft.
Board ft.
In round f i g u r e s , t h e inventory showed
127,000 c o r d s of pine pulpwood, 77,000
c o r d s of hardwoods, 30 million board feet
of pine s a w t i m b e r , and 42 million board
feet of hardwood s a w t i m b e r . This gives a
total growing stock of 204,000 c o r d s of
wood plus 72 million board feet of sawtimber.
Coordination of Forest Management
with Research, Teaching, and
Demonstration
It i s the objective of the f o r e s t managem e n t staff t o so coordinate the management
a c t i v i t i e s that they will s e r v e the needs of
teaching, r e s e a r c h , and demonstration. Accordingly, the following suggestions w e r e
offered by the f o r e s t e r i n a r e p o r t in 1959:
1. P r o c e e d with the p r o g r a m of stand
delineation, and p r e p a r e p r e s c r i p t i o n s
f o r t h e trouble spots, i.e., s a l v a g e
and sanitation a r e a s , e t c .
2. Review the plan of operations f o r t h e
f o r e s t with a c o m m i t t e e of five r e p resenting teaching, r e s e a r c h , and
demonstration.
3. O p e r a t e the f o r e s t a s r e c o m m e n d e d
by the committee and approved by
the Head, Department of F o r e s t r y .
4. Budget the t i m b e r s a l e r e c e i p t s to
c a r r y on the d e v e l o p m e n t of t h e
forest.
It i s e s t i m a t e d that through s a l v a g e and
sanitation cuttings t h e r e c a n be a n annual
cutting budget of around 1,500,000 board
f e e t during the f i r s t cutting cycle. This
would r e s u l t in a n annual income of $30,000.
The pine and hardwood pulpwood m a r k e t
would take 5,000 c o r d s , 50 p e r c e n t of which
'would be pine. This would amount to $15.,000.
On the b a s i s of t h e s e e s t i m a t e s , a n annual
income of around $45,000 would be r e a l i z e d
f r o m timber sales.
Through t h e coordinated efforts of the
c o m m i t t e e , a s proposed in i t e m s 2 and 3
above, a f o r e s t c a n be developed that will
m e e t t h e needs of r e s e a r c h , teaching, and
demonstration, and incidentally provide the
income to finance t h e m a j o r o p e r a t i o n s .
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1953. M a j o r U s e s of Land i n the United S t a t e s . U.S. Dept. A g r . Tech. Bul.
1082, 100 pp., Oct.
1955. A g r i c u l t u r e and F o r e s t r y Competition o r C o e x i s t e n c e . I n t e r n a t l . J o u r .
A g r . Aff. 2 ( 2 ) : 169-185, J u n e .
Wynne, W a l l e r .
1943. C u l t u r e of a C o n t e m p o r a r y R u r a l Community, H a r m o n y , G e o r g i a . U.S.
Dept. A g r . B u r . A g r . Econ. R u r a l L i f e Studies 6, 58 pp., J a n .
Young, G. E.
1933. M a r g i n a l F a r m l a n d i n S o u t h e r n Indiana. Ind. A g r . Expt. Sta. Bul. 376.
28 pp., M a r c h .
APPENDIX A. --EXPLANATION O F DIFFERENCES IN REPORTS O F ACREAGES
ACQUIRED IN THE LAND UTILIZATION PROGRAM^^
Annual and o t h e r r e p o r t s and r e c o r d s of acquisition, title c l e a r a n c e , payment, and
t r a n s f e r of land by t h e a g e n c i e s a d m i n i s t e r i n g the land utilization p r o g r a m show that
11,299,000 a c r e s of land w e r e a c q u i r e d in t h e p r o g r a m ( t a b l e 12). If to this i s added the
353,525 a c r e s f o r which t i t l e s had not been c l e a r e d p r i o r to t r a n s f e r to o t h e r a g e n c i e s ,
the t o t a l amount of land a c q u i r e d under t h e p r o g r a m t o t a l s 11,652,062 a c r e s .
T h e r e w e r e s e v e r a l i n s t a n c e s of t r a n s f e r s of land a n d r e s p o n s i b i l i t y f o r title c l e a r ance subsequent to a c c e p t a n c e of options and t h e c o m m i t m e n t of funds, but p r i o r to t i t l e
t r a n s f e r s . F o r e x a m p l e , t h e r e c r e a t i o n a l land u s e p r o j e c t s w e r e consigned by Executive
O r d e r to t h e National P a r k S e r v i c e and o t h e r a g e n c i e s on November 14, 1936, b e f o r e
completion of t i t l e s .
The t o t a l a c r e a g e s f o r land a c q u i r e d u n d e r the land utilization p r o g r a m include the
land f o r which t i t l e s had b e e n obtained i n r e c r e a t i o n a l p r o j e c t s p r i o r to the t r a n s f e r of
t h e s e p r o j e c t s to o t h e r a g e n c i e s by the Executive O r d e r . T i t l e s had b e e n obtained f o r
127,697 a c r e s f o r r e c r e a t i o n a l p r o j e c t s on t h i s date, out of the t o t a l r e c r e a t i o n a l a r e a s
of 394,968 a c r e s , f o r which a p p r o v a l s and c o m m i t m e n t s to p u r c h a s e had b e e n made. Thus,
the difference--267,271 a c r e s - - o p t i o n e d and a p p r o v e d f o r p u r c h a s e , but f o r which titles
had not b e e n obtained a r e not included i n the total land utilization a c r e a g e r e p o r t e d
acquired.
P a y m e n t had b e e n m a d e and t i t l e s c l e a r e d f o r 713,319 a c r e s of the t o t a l of 734,999
a c r e s of wildlife l a n d s f o r which c o m m i t m e n t s had b e e n m a d e , leaving 2 1,680 a c r e s not
included i n the total a c q u i r e d under the land utilization p r o g r a m . Of the total Indian lands
of 971,879 a c r e s f o r which c o m m i t m e n t s had b e e n m a d e a t t i m e of t r a n s f e r , payment had
been m a d e and t i t l e s c l e a r e d f o r 907,325 a c r e s , making a d i f f e r e n c e of 64,574 a c r e s not
included in t h e a c r e a g e a c q u i r e d under the land utilization p r o g r a m .
Various landholding and a d m i n i s t e r i n g a g e n c i e s of t h e land utilization p r o g r a m i n the
1930's and e a r l y 1940's did not k e e p r e c o r d s of r e a l e s t a t e on a uniform b a s i s . Various
s e t s of f i g u r e s , o s t e n s i b l y pertaining to the s a m e acquisition, t r a n s f e r , a s s i g n m e n t , g r a n t ,
o r exchange, r e p o r t e d by different agencies i n the 1930's f r e q u e n t l y a r e not i n complete
a g r e e m e n t , n o r a r e they s u b j e c t to verification. T h e w r i t e r s of v a r i o u s r e p o r t s have endeavored to s e l e c t the m o s t r e a s o n a b l e p r e s e n t a t i o n of data. N e v e r t h e l e s s , o v e r a l l totals
given i n the t a b l e s m a y be a p p r o x i m a t i o n s s u b j e c t to v a r i a t i o n depending on d a t e s and
sources.
T o t a l a c r e a g e acquisitions r e p o r t e d by y e a r s g e n e r a l l y r e p r e s e n t land f o r which
t i t l e s had b e e n c l e a r e d and f o r which the s e l l e r s had b e e n paid. F o r s o m e y e a r s , e s p e cially f o r 1935 and 1936, data o n d e l i v e r y of c h e c k s w e r e not always r e a d i l y a v a i l a b l e , and
the a c r e a g e under l e g a l l y accepted options a n d a p p r o v a l s f o r p u r c h a s e w e r e used a s the
a c q u i r e d a c r e a g e . However, data f o r o t h e r y e a r s shows t h e r e was not a l a r g e difference
i n the total a c r e a g e f o r which options had been a c c e p t e d and a p p r o v a l s given f o r p u r c h a s e
during the y e a r , and the final a c r e a g e f o r which t i t l e s w e r e c l e a r e d and checks w e r e
delivered. The land u s e s a s of June 30, 1964, a r e shown i n tables 13 and 14.
Another s o u r c e of d i f f e r e n c e in land utilization a c r e a g e r e p o r t e d a c q u i r e d was exchanges, g r a n t s , and s a l e s of l a r g e r o r s m a l l e r a c r e a g e s of p r i v a t e and o t h e r public land
of land a c q u i r e d in t h e land utilization p r o g r a m . Table 15 shows g r a n t s and s a l e s to States
and l o c a l a g e n c i e s . F r e q u e n t l y , exchanges r e s u l t e d in i n c r e a s e s in a c r e a g e of c e r t a i n
p r o j e c t s . The d i f f e r e n c e s s o m e t i m e s a r e explained i n footnotes o r i n detailed r e c o r d s of
annual o p e r a t i o n s , but a r e not always c a r r i e d i n final o r s u m m a r y r e p o r t s .
T r a n s f e r s of about 500,000 a c r e s i n s c a t t e r e d t r a c t s of public domain land to t h e land
utilization p r o g r a m a l s o affected t o t a l a c r e a g e and a v e r a g e c o s t s p e r a c r e of land a c q u i r e d . R e c o r d s of t r a n s f e r s of t r a c t s of public d o m a i n land within o r a d j a c e n t to land
utilization p r o j e c t s a r e not always c l e a r a s to whether the a c r e a g e was included i n the
totals a c q u i r e d . Total a c r e a g e a c q u i r e d a s c a l c u l a t e d f r o m r e p o r t s and r e c o r d s m a y be
low b e c a u s e of exclusion of s o m e public-domain land.
2 4 Data and calculations are based on annual reports and memoranda of the Bureau of Agricultural Economics, the Soil Conservation Service, and the Resettlement Administration, and on .AgriculturalStatistics, 1936-53,
U.S. Dept. Agr.
TABLE 12.--Submarginal land acquired by U.S. Department of Agriculture, by States.193 5.46
S t a t e and region
....................................
............................
..................................
............................
.............................
..............................
.................................
...............................
.............................
.................................
.................................
........................
Northeast ..............................
Michigan .................................
Wisconsin ................................
Minnesota ................................
Lake S t a t e s ............................
Ohio .....................................
Indiana ..................................
I l l i n o i s .................................
Iowa .....................................
Missouri .................................
Corn B e l t ..............................
North Dakota .............................
South Dakota .............................
Nebraska .................................
Kansas ...................................
Northern P l a i n s ........................
V i r g i n i a .................................
West V i r g i n i a ............................
North Carolina ...........................
Kentucky .................................
Tennessee ................................
Appalachian ............................
:
Maine
New Hampshire
Vermont
Massachusetts
Rhode I s l a n d
Connecticut
New York
New J e r s e y
Pennsylvania
Delaware
Maryland
D i s t . of Columbia
Criginal or
emergency
programs.
1935-37l
New o r
T i t l e I11
program
1938-46 3
1.000 a c r e s
1.000 a c r e s
7
0
0
0
13
10
74
0
33
4
41
0
9
0
0
0
Total
1935-4h3
1.000 a c r e s
26
(4 ,
2
20
0
16
1
4
0
0
0
13
12
94
0
49
5
45
0
192
52
244
92
225
189
15
19
15
107
244
204
506
49
555
36
49
28
13
2
16
15
0
27
38
65
43
2
40
128
60
188
882
742
176
54
2 63
230
25
48
1,145
972
201
102
1,854
566
2 , 420
42
6
141
70
69
15
10
21
2
16
57
16
162
72
85
328
64
392
2
(4 ,
TABLE 12.--Submarginal land acquired by U.S. Department of A g r i c u l t u r e , by S t a t e s ,
1935-46--Continued
New o r
T i t l e 111
Program3
193866
Original o r
emergency
programs.
1935 -37l
S t a t e and region
1.000 a c r e s
1.000 a c r e s
..........................
.................................
.................................
.................................
Southeast .............................
Mississippi .............................
Arkansas ................................
Louisiana ...............................
Delta S t a t e s ..........................
Oklahoma ................................
South Carolina
Georgia
Florida
Alabama
...................................
Southern P l a i n s .......................
Montana .................................
Idaho ...................................
Wyoming .................................
Colorado ................................
New Mexico ..............................
Arizona .................................
Utah ....................................
Nevada ..................................
Texas
..............................
//ashington ..............................
Oregon ..................................
C a l i f o r n i a ..............................
P a c i f i c ...............................
United S t a t e s .......................
Mountain
Total
1935 -46
1.000 Acres
148
181
609
127
7
78
16
5
155
259
625
132
1.065
106
1.171
110
2 54
200
26
33
2
136
287
202
56&
61
625
60
18
93
114
153
132
78
207
285
402
1
151
410
308
46
4
3
1.709
I38
273
254
1.042
0
65
0
2. 111
139
424
6f3
1.350
46
69
3
3. 481
1.325
4. 806
241
239
0
9
102
22
250
341
22
480
W3
613
8. 676
2. 623
11.299
.
1
Annual Report of Resettlement Administration. 1936. t a b l e 2. pp 127.131. S t a t u s of
T i t l e Clearance Under O l d U t i l i z a t i o n Program P r i o r t o Authorization of T i t l e 111 of
Bankhead-Jones Farm Tenant Act. J u l y 1937. S o i l Conserv . S e r v . , Dec . 31. 1942 .
S t a t u s of T i t l e Clearance Under T i t l e 111. Bankhead-Jones Farm Tenant Act. Feb 28.
1943 Reports of t h e Chief. S o i l Conserv Serv., 1943-46
Reports covering d e t a i l s of land a c q u i s i t i o n by t h e S o i l Conservation Service. under
T i t l e I11 of t h e Rankhead-Jones Farm Tenant Act. prepared i n 1942 and 1943. do not include
a l l the land i n process of a c q u i s i t i o n . Consequently. t h e acreages r e p o r t e d i n them a r e
l e s s than those i n t h i s t a b l e .
New Hampshire. 45 a c r e s . Rhode I s l a n d . 53 a c r e s .
.
.
.
.
TLLBLE 13.--Land u t i l i z a t i o n land i n National F o r e s t s , National Grasslands, and o t h e r
a r e a s administered by t h e F o r e s t Service as of June 30, 1 9 u 1
S t a t e and r e g i o n
/
........................
Maine...
New Hampshire
Vermont...................
Massachusetts......
Rhode I s l a n d
Connecticut......
New York..
New J e r s e y
Pennsylvania.
Delaware
Maryland
D i s t . of Columbia.
...................
......
.............
....................
...............
......................
......................
...................
........................
........................
..............
Northeast .....................
........................
......................
Michigan
Wisconsin.
Minnesota........
Lake
...............
S t a t e s ...................
............................
....................
........................
............................
........................
Ohio
Indiana.....
Illipois
Iowa
Missouri
.....................
North Dakota.. ..................
South Dakota ....................
Nebraska ........................
Kansas.... ......................
Northern P l a i n s ...............
V i r g i n i a ........................
West V i r g i n i a ...................
North Carolina. .................
Kentuck y . . . . . . . . . . . . . . . . . . . . . . . .
Tennessee .......................
Appalachian. ..................
South Carolina.. ................
Georgia .........................
F l o r i d a .........................
Alabama .........................
Corn B e l t
Southeast .....................
See f o o t n o t e s a t end of t a b l e .
National
1,000 a c r e s
National
Grasslands
Other
areas
Tot a 1
TABLE l.3.--Land u t i l i z a t i o n land i n National Forests, National Grasslands, and o t h e r
a r e a s administered by t h e Forest Service as of June 30, 1964l.. continued
National
Forests
S t a t e and region
1
1.000 a c r e s
National
Grasslands
I
1.000 a c r e s
I
I
Other
areas
1.000 a c r e s
Tot a 1
1
1.000 a c r e s
.....................
........................
.......................
Mississippi
Arkansas
Louisiana
Delta S t a t e s
........................
...........................
Southern P l a i n s ...............
Montana .........................
Idaho ...........................
Wyoming .........................
Colorado ........................
New Mexico ......................
Arizona .........................
Utah ............................
Nevada ..........................
Mountain ......................
Washington ......................
Oregon ..........................
C a l i f o r n i a ......................
P a c i f i c .......................
United S t a t e s ...............
Oklahoma
Texas
Record of land u t i l i z a t i o n p r o j e c t s t r a n s f e r r e d t o t h e Forest Service, o r placed
under i t s custody. based on Forest Service t a b l e s dated May 15. . 1961. as subsequently
corrected a n d adjusted t o June 30. 1964
Maine 465 acres; Iowa 360 acres; Indiana 523 a c r e s
.
.
TABLE 14.--Federal Grazing D i s t r i c t areas, National Parks, National Wildlife Refuges, and
Indian Land u n i t s formed from land u t i l i z a t i o n p r o j e c t s under a d m i n i s t r a t i o n of agencies
oi' t h e U.S. Department of t h e I n t e r i o r
S t a t e and region
Federal
grazing d i s t r i c t areas1
National
wildlife
r e f uges2
National
parks
Indian
lands
Total
acreage
1,000 acres
1,000 acres
1,000 a c r e s
1,000 a c r e s
-
1,000 acres
Maine .............
New Hampshire . . . . .
Vermont ...........
hlassachusetts.. ...
mode I s l a n d . . . . . .
Connecticut .......
New York ..........
New Jersey..
Pennsylvania..
Delaware ..........
Maryland ..........
D i s t . of Columbia.
......
....
Northeast
0
0
0
0
0
0
0
0
0
0
0
0
.......
.Michigan..........
Wisconsin
Minnesota
.........
.........
Lake S t a t e s .....
Ohio ..............
Indiana ...........
I l l i n o i s ..........
Iowa ..............
Missouri. .........
Corn B e l t .......
.....
North Dakota.
South Dakota. .....
Nebraska
Kansas ............
..........
Northern P l a i n s .
..........
Virginia
West V i r g i n i a . . ...
North Carolina ....
Kentucky
Tennessee .........
..........
....
South Carolina.. ..
Georgia ...........
Appalachian.
F l o r i d a ...........
Alabama ...........
Southeast .......
See footnotes a t end of t a b l e .
0
0
0
0
0
0
0
0
0
0
0
0
6
0
0
0
0
0
0
0
1
0
5
0
0
0
0
0
0
0
0
0
0
0
0
0
TABLE 14.--Federal Grazing D i s t r i c t areas, National Parks, National W i l d l i f e Refuges, and
Indian Land u n i t s formed from land u t i l i z a t i o n p r o j e c t s under a d m i n i s t r a t i o n of agencies
of t h e U.S. Department of t h e Interior--Continued
S t a t e and region
/
.........
Federal
grazing d i s t r i c t areas1
National
wildlife
refuges2
1,000 acres
1,000 a c r e s
National
parks2
1
Indian
lands
Total
acreage
1,000 acres
I
)f~ississippi
Arkansas ............
Louisiana ...........
0
0
0
38
0
162
0
0
0
0
0
0
38
0
162
Delta S t a t e s ......
0
200
0
0
200
0kl:horna
Texas ...............
0
0
0
8
0
0
19
0
19
8
..
0
............
Southern P l a i n s .
8
Montana .............
Idaho ...............
Wycrning .............
Colorado ............
N e w Mexico. .........
Arizona .............
U t & ................
Nevada
0
19
I
I
I
27
I
..............
hlountain. .........
2,354
19
2
765
Washington ..........
Oregon ..............
C a l i f o r n i z . .........
0
95
0
28
0
4
0
0
0
0
28
1
36
9
4
0
1
128
I
P a c i f i c ...........
95
32
United S t a t e s ...
2,449
667
1
139
-
.
1,010
3,140
4,265
Land u t i l i z a t i o n p r o j e c t acreage reported i n 1964 by t h e Bureau of Land Management
a s administered i n Federal Grazing D i s t r i c t Areas.
From r e p o r t s and t a b l e s , Fish and W i l d l i f e Service, National Park Service, and
Indian Service, 1961.
Kansas, 80 a c r e s .
TABLZ 15 . ..Grants
and s a l e s of land u t i l i z a t i o n ~ r o j e c tlands t o S t a t e and l o c a l
agencies, 1954-1961
S t a t e and region
1.000 acres
..........................................
..................................
........................................
..................................
...................................
....................................
.......................................
.....................................
...................................
.......................................
.......................................
Llaine
New Hampshire
Vermont
Massachusetts
Rhode I s l a n d
Connecticut
New York
New J e r s e y
Pennsylvania
Llelaware
Maryland
D i s t . of Columbia
..............................
Northeast ....................................
Michigan .......................................
'll/isconsin ......................................
Pdinnesota ......................................
Lake S t a t e s ..................................
1.000 a c r e s
1.000 a c r e s
0
0
0
0
0
0
0
0
0
0
0
0
57
21
14
0
71
21
...........................................
........................................
.......................................
...........................................
.......................................
Corn B e l t ....................................
Ohio
Indiana
Illinois
Iowa
Missouri
...................................
...................................
.......................................
.........................................
Northern P l a i n s ..............................
V i r g i n i a ........................................
West V i r g i n i a ..................................
North Carolina .................................
Kentucky .......................................
Tennessee ......................................
Appalachian ..................................
South Carolina .................................
Georgia ........................................
F l o r i d a ........................................
Alabama ........................................
Southeast ....................................
North Dakota
South Dakota
Nebraska
Kansas
See f o o t n o t e s a t end of t a b l e
.
80
1
3
0
75
I
75
I
192
14
206
56
53
185
0
0
0
114
0
56
53
299
0
294
114
408
TABLE 15.--Grants and s a l e s of land u t i l i z a t i o n p r o j e c t l a n d s t o S t a t e and l o c a l
agencies, 1954-1961' ..Continued
.
S t a t e and r e g i o n
...................................
......................................
.....................................
Delta S t a t e s ................................
Oklahoma ......................................
Texas .........................................
Southern P l a i n s .............................
Montana .......................................
Idaho .........................................
Wyoming .......................................
Colorado ......................................
New Mexico ....................................
Arizona .......................................
Uteh ..........................................
Nevada ........................................
Mountain ....................................
Washington ....................................
Oregon ........................................
C a l i f o r n i a ....................................
P a c i f i c .....................................
United S t a t e s .............................
Xississippi
Arkansas
muisiana
1
l. OoO acres
I
1.000 a c r e s
1. 000 a c r e s
Record of g r a n t s and s a l e s from Jan . 2. 1954. t o May 15. 1961. t o S t a t e and l o c a l
agencies from acreages t r a n s f e r r e d t o t h e F o r e s t S e r v i c e . P r i o r t o Jan . 2. 1954. approximately 300. 000 a c r e s were t r a n s f e r r e d t o S t a t e and l o c a l agencies. making a t o t a l of
almost 1.300. 000 a c r e s i n 80 some p r o j e c t s .
Kansas; 152 a c r e s .
A P P E N D M B. --CHRONOLOGY O F THE LAND UTILIZATION
PROGRAM^^
A. F A C T O R S L,IADING U P TO ESTABLISHMENT O F T H E PROGRAM
1. R e s e a r c h a n d r e p o r t s o n l a n d u t i l i z a t i o n , 1919- 1934.
2. R e c o g n i t i o n b y C o n g r e s s of t h e p r o b l e m of s u b m a r g i n a l l a n d b y s p e c i a l a u t h o r i z a t i o n i n t h e A g r i c u l t u r a l M a r k e t i n g A c t of 1929 f o r t h e F e d e r a l F a r m B o a r d "to
m a k e investigations and r e p o r t s ,
including
land utilization f o r agricultural
p u r p o s e s ; r e d u c t i o n i n a c r e a g e s of u n p r o f i t a b l e m a r g i n a l l a n d s i n cultivation." 2 6
3. R e c o m m e n d a t i o n of a p r o g r a m of l a n d u t i l i z a t i o n b y t h e N a t i o n a l C o n f e r e n c e of
L a n d Utilization h e l d i n Chicago, N o v e m b e r 193 1.27
4. R e c o m m e n d a t i o n f o r r e t i r e m e n t of f a r m l a n d u n s u i t a b l e f o r a g r i c u l t u r a l u s e , b y
t h e Land Planning C o m m i t t e e of t h e N a t i o n a l R e s o u r c e s B o a r d i n i t s r e p o r t ,
December 1 9 3 4 . ~ ~
5. A c t i o n b y the S p e c i a l B o a r d of P u b l i c W o r k s t o s t a r t a F e d e r a l L a n d P r o g r a m
including p r o p o s a l to o f f s e t i n c r e a s e d p r o d u c t i o n f r o m n e w r e c l a m a t i o n p r o j e c t s
b y p u r c h a s e a n d r e t i r e m e n t of s u b m a r g i n a l f a r m l a n d s , A u g u s t 1933.
...
...
B. F I R S T FUNDS FOR SUBMARGINAL LAND PURCHASE O F $25,000,000 A L L O T T E D
BY T H E PRESIDENT T O F E D E R A L SURPLUS R E L I E F CORPORATION, DECEMBER
1933.
C. PROGRAM UNDER F E D E R A L EMERGENCY R E L I E F ANDAGRICULTURALADJUSTMENT ADMINISTRATIONS, 1934- 35.
1. F u n d s t r a n s f e r r e d F e b r u a r y 1934 b y S p e c i a l B o a r d of P u b l i c W o r k s f r o m F e d e r a l
S u r p l u s Relief C o r p o r a t i o n to F e d e r a l E m e r g e n c y Relief A d m i n i s t r a t i o n .
2. P o l i c i e s a n d p r o c e d u r e s outlined i n F e d e r a l S u r p l u s Relief C o r p o r a t i o n R e s o l u t i o n
of J a n u a r y 1934.
3. S u b m a r g i n a l L a n d C o m m i t t e e r e p r e s e n t i n g t h e F e d e r a l E m e r g e n c y Relief Admini s t r a t i o n a n d t h e D e p a r t m e n t s of t h e I n t e r i o r a n d A g r i c u l t u r e , including t h e L a n d
P o l i c y Section of A g r i c u l t u r a l A d j u s t m e n t ~ d m i n i s t r a t i o n a, s s i g n e d o v e r a l l d i r e c . t i o n of t h e p r o g r a m f r o m F e b r u a r y t o J u l y 1934.
4. S t a t e R u r a l R e h a b i l i t a t i o n C o r p o r a t i o n s given r e s p o n s i b i l i t y f o r r e s e t t l e m e n t of
f a m i l i e s , May 1934.
5. P r o c e d u r e a n d p o l i c i e s r e a l i g n e d u n d e r D i r e c t o r of t h e L a n d P r o g r a m , appointed
by F e d e r a l E m e r g e n c y Relief A d m i n i s t r a t i o n , J u l y 1934.
6. S p e c i a l b o a r d f o r public w o r k s a c c e p t e d p r o g r a m of p r o j e c t s outlined b y the Dir e c t o r of t h e L a n d P r o g r a m , J u l y 1934.
7. Drought r e l i e f funds t o t a l i n g $53,390,000 m a d e a v a i l a b l e to T h e L a n d P r o g r a m ,
August 1934.
8. M a j o r p a r t of d r o u g h t r e l i e f funds a l l o t t e d f o r l a n d p u r c h a s e a n d d e v e l o p m e n t
w i t h d r a w n f o r r e l i e f p u r p o s e s , M a r c h 1935.
9. I n c e r t a i n S t a t e s , w i t h d r a w a l f r o m h o m e s t e a d i n g o r d i s p o s a l of a l l public d o m a i n
l a n d s f o r c l a s s i f i c a t i o n , F e b r u a r y 1935.
10. F e d e r a l E m e r g e n c y R e l i e f A d m i n i s t r a t i o n A d m i n i s t r a t o r g i v e n a u t h o r i t y by P r e s i d e n t to p u r c h a s e a n d a d m i n i s t e r c e r t a i n p r o p e r t y , M a r c h 1935.
11. E m e r g e n c y Relief A p p r o p r i a t i o n A c t a u t h o r i z e d P r e s i d e n t t o a c q u i r e r e a l p r o p e r t y
a p p r o v e d A p r i l 1935.
2 5 ~ h iappendix
s
was prepared from (a)A Chronology of the Land Utilization Program, 1933-1940, by P.K.
Hooker, a 100-page unpublished manuscript, Soil Conservation Service, 1941; and (b) records and reports furnished by F. W. Grover, E.G. Grest, J.E. Elliott, and others of the Forest Service, 1949-1963; and by R W.
Rogers, R.K. Wright, Dorothy Long, and others of the Soil Conservation Service, all of the U.S. Department
of Agriculture.
2 6 U.S. Congress, Agricultural Marketing Act of 1929.
2 7 National Conference on Land Utilization, Chicago, Ill. Proc. Nov. 1931.
2 8 National Resources Board Report. Dec. 1, 1934; and Supplementary Report of the Land Planning Committee. Vol. I and 11. 1935.
'-.
.-.
12. A u t h o r i t y given t h e P r e s i d e n t to a l l o t funds f r o m e m e r g e n c y r e l i e f a p p r o p r i a t i o n s
to p u r c h a s e a n d d e v e l o p s u b m a r g i n a l l a n d s f o r public p u r p o s e s , August 1935. (Sec.
55, P L 320, 74th C o n g r e s s . )
D. PROGRAM UNDER R E S E T T L E M E N T
ADMINISTRATION^^
R e s e t t l e m e n t A d m i n i s t r a t i o n e s t a b l i s h e d , by E x e c u t i v e O r d e r , A p r i l 1935.
T h e l a n d u t i l i z a t i o n p r o g r a m t r a n s f e r r e d to t h e R e s e t t l e m e n t A d m i n i s t r a t i o n ,
with a n i n i t i a l a l l o t m e n t of $48 m i l l i o n d o l l a r s f o r l a n d p u r c h a s e a n d $18 m i l l i o n
d o l l a r s t o e m p l o y l a b o r f o r d e v e l o p m e n t , A p r i l 1935.
Land U t i l i z a t i o n Division of R e s e t t l e m e n t A d m i n i s t r a t i o n g i v e n i m m e d i a t e d i r e c t i o n
of p r o g r a m , A p r i l 1935.
R e a s s i g n m e n t of planning and a c q u i s i t i o n of land f o r r e s e t t l e m e n t of f a m i l i e s o n
s u b m a r g i n a l l a n d s f r o m L a n d Utilization Division t o R e s e t t l e m e n t Division, Nove m b e r 1935.
W i t h d r a w a l , M a r c h 1935, of $50,000,000 of d r o u g h t - r e l i e f - a l l o t t e d funds d e l a y e d
l a n d a c q u i s i t i o n - - a n d o p e n e d d o o r to e a r l y c r i t i c i s m of p r o g r a m . D e v e l o p m e n t of
p r o j e c t s r e s t a r t e d l a t e r b y a l l o t m e n t of $40,391,676 f o r e m p l o y m e n t of r e l i e f
labor.
M e m o r a n d u m of U n d e r s t a n d i n g with t h e D e p a r t m e n t of the I n t e r i o r : P u b l i c D o m a i n
L a n d s i n LU P r o j e c t s , O c t o b e r 1935.
M e m o r a n d u m of U n d e r s t a n d i n g with Office of Indian A f f a i r s , D e p a r t m e n t of t h e
I n t e r i o r : A d m i n i s t r a t i o n of Indian P r o j e c t s (including f i n a l d i s p o s i t i o n m a d e of
s u c h p r o j e c t s ) , O c t o b e r 1936 t o S e p t e m b e r 1939.
R e c r e a t i o n a l d e m o n s t r a t i o n p r o j e c t s t r a n s f e r r e d to National P a r k S e r v i c e , Novemb e r 1936.
Wildlife p r o j e c t s t r a n s f e r r e d t o t h e F i s h a n d Wildlife S e r v i c e ( f o r m e r l y t h e Biol o g i c a l S u r v e y ) p r i o r t o a n d a f t e r N o v e m b e r 1936.
L o g j a m i n p a y m e n t of v e n d o r s f i n a l l y b r o k e n , A p r i l to N o v e m b e r 1936.
R e s e t t l e m e n t A d m i n i s t r a t i o n t r a n s f e r r e d to D e p a r t m e n t of A g r i c u l t u r e , D e c e m b e r
1936.
B a n k h e a d - J o n e s F a r m T e n a n t A c t e h a c t e d b y C o n g r e s s , J u l y 1937.
A p p r o p r i a t i o n of $10 m i l l i o n f o r f i s c a l y e a r ending J u n e 1938, a n d n o t t o e x c e e d
$20 m i l l i o n f o r e a c h of 2 f i s c a l y e a r s t h e r e a f t e r , was a u t h o r i z e d b y t h e B a n k h e a d Jones F a r m Tenant Act, to effectuate the land utilization p r o g r a m , a s r e d i r e c t e d
by t h e Act.
N a m e of R e s e t t l e m e n t A d m i n i s t r a t i o n c h a n g e d to F a r m S e c u r i t y A d m i n i s t r a t i o n ,
S e p t e m b e r 1937, with a s s i g n m e n t of r e s p o n s i b i l i t y f o r r e s e t t l e m e n t a n d tenant
p u r c h a s e p r o g r a m s u n d e r T i t l e s I, 11, a n d IV of B a n k h e a d - J o n e s F a r m T e n a n t
Act.
E . LAND UTILIZATION PROGRAM UNDER BUREAU O F AGRICULTURAL ECONOMICS,
S e p t e m b e r 1937.
1. T r a n s f e r of l a n d u t i l i z a t i o n p r o g r a m to B u r e a u of A g r i c u l t u r a l E c o n o m i c s , a u t h o r i z e d b y S e c r e t a r y of A g r i c u l t u r e , S e p t e m b e r 1937.
2. D e p a r t m e n t a l p o l i c i e s f o r l a n d u t i l i z a t i o n p r o g r a m u n d e r Title111 of t h e B a n k h e a d J o n e s F a r m T e n a n t Act outlined by S e c r e t a r y , S e p t e m b e r 1937.
3. O r g a n i z a t i o n u n d e r B u r e a u of A g r i c u l t u r a l E c o n o m i c s , S e p t e m b e r 1937.
4. L a n d s a c q u i r e d u n d e r e m e r g e n c y p r o g r a m t r a n s f e r r e d to T i t l e 111 P r o g r a m ,
J u n e 1938.
5. T h e F a r m S e c u r i t y A d m i n i s t r a t i o n ' s p a r t i n p r o g r a m f r o m S e p t e m b e r 1937 to
J u l y 1938.
( a ) M e m o r a n d u m of U n d e r s t a n d i n g b e t w e e n F a r m S e c u r i t y A d m i n i s t r a t i o n a n d
B u r e a u of A g r i c u l t u r a l E c o n o m i c s a s t o r e s p o n s i b i l i t i e s f o r l a n d utilization,
S e p t e m b e r 1937.
2 9 F o r additional information, refer to (150, 151, 152, 153, 154, 155)
83
( b ) Memorandum of A g r e e m e n t between B u r e a u of A g r i c u l t u r a l Economics and
F a r m Security A d m i n i s t r a t i o n f o r r e l o c a t i o n of f a m i l i e s on land utilization
p r o j e c t s , F e b r u a r y 1938.
( c ) T r a n s f e r of p r o g r a m to B u r e a u of A g r i c u l t u r a l Economics completed, July
1938.
( d ) Memorandum of A g r e e m e n t between B u r e a u of A g r i c u l t u r a l Economics and
F a r m Security Administration f o r a s s i s t a n c e to f a m i l i e s on p r o j e c t s established
under Title 111, July 1938.
F. PROGRAM UNDER SOIL CONSERVATION SERVICE, October 1938 to December 1953.
1. S e c r e t a r y of A g r i c u l t u r e a u t h o r i z e s t r a n s f e r of p r o g r a m to Soil Conservation
S e r v i c e , October 1938.
2. Organization under Soil Conservation S e r v i c e f r o m November 1938 to May 1942.
3. Statement of objectives, policies and m a n a g e m e n t of t h e Soil Conservation Service.
G. PROGRAM UNDER FOREST SERVICE, J a n u a r y 1954 to December 1964.
1. T r a n s f e r of p r o g r a m to F o r e s t S e r v i c e a u t h o r i z e d by S e c r e t a r y of A g r i c u l t u r e , effective J a n u a r y 1954.
2. Disposal of lands a c q u i r e d under T i t l e I11 of the Bankhead-Jones F a r m Tenant Act:
( a ) ~ s s i ~ n m e n tssa,l e s , and t r a n s f e r s p r i o r to J a n u a r y 2, 1954.
( b ) A s s i g n m e n t s , s a l e s , and t r a n s f e r s on and a f t e r J a n u a r y 2, 1954.
n t u s e of land utilization p r o g r a m lands.
3. ~ a n a ~ e m e and