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40th
Anniversary Wilderness Celebration
The Superior National
Forest's Boundary Waters Canoe Area is located within the
triangle which lies south of the Pigeon and Rainy Rivers and
extends southward to Lake Superior. This triangle is frequently
referred to as the Minnesota Arrowhead Country. Geologically
the 1,029,000 acre BWCA occupies the lower portion of the
Canadian Shield. Here glaciers of the past have exposed bedrock
and formed a myriad of lakes now connected by streams and
portages. This is the Boundary Waters Canoe Area.
The early explorers
of the 17th century found the Sioux Indians in possession
of the area (with exception to the Arrowhead region), with
the Chippewa Indians contesting their right to hold it. By
the middle of the 18th century, the Chippewas had driven the
Sioux to the south and the west and assumed occupancy of the
region. The change in control, however, altered its conditions
but little.
Next came the white fur traders, the voyageurs,
or coureur de bois, with their scattered
posts and forts throughout the Arrowhead
region. During the open-water season they
used the canoe and bateau (on the Great
Lakes) for travel and the transportation
of furs and supplies. When the snows were
deep, some tended trap lines, using snowshoes
to traverse over the snowcovered land.
Many others traded with natives in the
area, who did a majority of the trapping
at that time. All in all, theirs was usually
a life of vigorous activity.
At the close of the French and Indian War
in 1765, the jurisdiction of Canada was
changed from the French to the British,
but bitter contentions continued to exist
between competitive fur companies. The
heavy pressures on the furbearers during
the first thirty or forty years of the
19th century so depleted the population
of furbearing animals that the major companies
were forced to operate farther west in
areas which had not been exploited. The
traders left their landmarks--as evidence
of earlier occupation. As they traveled
over the numerous lakes and rivers, they
found convenient waterways and connecting
portages--most shown to them by their
native guides, whose people had used them
for several thousands of years. Little
did they realize that these canoe routes
would one day constitute a national issue.
When the thirteen colonies became the United
States of America and the Treaty of Paris
established the Mississippi as the western
boundary of the country, the Americans
vied with the English for the fur trade
in the area. The problems arising were
not settled until the consummation of
the Webster-Ashburton Treaty of 1842,
when a definite boundary line was established
between Minnesota and Canada.
With the signing of the Treaty of LaPointe
in 1854 with the Chippewas of Lake Superior,
much of eastern Minnesota was further
thrown open to white man's exploration
and development. The mineral prospectors
were the first to rush in, and they searched
up and down the border. There were several
gold rushes which proved ephemeral, such
as that at Lake Vermillion in 1865-66.
The brief enthusiasm produced no appreciable
amount of gold. More important, however,
was the discovery of iron ore on the Vermillion
Range. Mines were developed at Soudan
and Ely in the late 1880's and early 1890's.
This was followed almost immediately by
the location of extensive and rich deposits
of hematite on the Mesaba Range. By the
opening of the 20th century, the region
was dotted by a number of thriving communities
and numerous shaft and open pit iron mines.
Contrary to popular belief, the Boundary
Waters Canoe Area was not one of primeval
forests and untouched wilderness,, and
has not been continuous virgin timber
country for many decades. By the time
of World War I, much of the land had either
been burned away or cutover, with the
result that a great part of the forest
growth consisted of jack pine, spruce,
balsam and aspen rather than red and white
pine and white spruce. There is definite
evidence that fires were common in the
area over the past several centuries.
These fires created habitat conditions
favorable for wildlife as well as increased
production of blueberries, long a choice
native crop.
It is difficult to piece together any reliable
information because of the lack of early
records. On page 9 of Rainy River Country,
by Grace Lee Nute, we find the following
statement:
"Forest fires were destructive and
hazardous then as now. The second of three
Jesuit priests to serve as a missionary
at Fort St. Charles (on a small island
in Lake of the Woods--built by LaVerenrye
in 1732), Father Jean Pierre Aulneau,
wrote to his relative] in France that
in 1735 he 'journeyed nearly all the way'
from Lake Superior to Lake of the Woods
'through fire and thick stifling smokes'
which prevented him from 'even once catching
a glimpse of the sun'."
Whether these early fires were caused by
the action of Indians, explorers, traders,
or the result of electrical storms will
perhaps never be known. The fact remains
that increasing information is being discovered
which verifies the extensive fires of
the distant past.
In 1895, a former St. Cloud resident, General
Christopher C. Andrews, the first Chief
Fire Warden of Minnesota and later its
Forestry Commissioner, persistently supported
the cause of preserving various segments
of Minnesota's forests for posterity.
With the help of some Twin Cities citizens,
he began a public educational campaign
in the interest of a forest reserve for
the Upper Mississippi. In 1902, their
efforts bore fruit in the creation of
a 200,000 acre forest reserve in the vicinity
of Lake Winnibigoshish, which later became
the nucleus of the Chippewa National Forest.
A few years later, General Andrews' zeal
was transferred to the Arrowhead Country,
where he sought lands which would be permanently
dedicated to public use. The Legislature
of Minnesota, elected by the State's overwhelming
farm population, did not give favorable
consideration to his proposals. He then
turned to the Federal Government and was
rewarded with success. On June 30, 1902,
the Commissioner of the General Land Office
withdrew 500,000 acres of forest in Lake
and Cook Counties from entry. A second
withdrawal dated August 18, 1905, covered
approximately 141,000 acres. The third
withdrawal dated April 22, 1908, covered
approximately 518,700 acres.
Following the third withdrawal, steps were
taken by the Secretary of Agriculture
to have the area officially designated
as the Superior National Forest. This
was formally approved by Proclamation
No. 848 by President Theodore Roosevelt
on February 13, 1909, and covered an area
of approximately 1,018,638 acres.
It should be noted that the proclaimed
area of the Superior National Forest was
137,000 acres less than the acreage listed
in the three withdrawals. The lands outside
of the proclaimed boundaries were formally
released from the temporary withdrawal
on September 22, 1909.
The original Proclamation No. 848 of February
13, 1909, set aside three separate areas
as constituting the forest because these
areas were those in which the least amount
of land had been alienated. The first
included the southern shore of Lake Saganaga
and large area to the south; the second
included a long narrow strip from Lac
LaCroix to the western edge of Basswood
Lake; the third and largest consisted
of a large block in the east central portion
of the present Forest. Conspicuously absent
from this Forest was the strip of border
country from Basswood to Saganaga Lake,
which contains some of the choicest portions
of the present Boundary Waters Canoe Area.
It was not to become a part of the Forest
until 1936. This area, which was largely
alienated, generated many of the problems
of management, some of which are still
not solved. It is important that the ownership
situation, and particularly how the Forest
was put together, be understood if one
is to comprehend some of the later points
of controversy and difficulties of management.
After its establishment, little was heard
about the Superior National Forest for
the period of 1909 to about 1920. The
three most important events which occurred
during that period may be briefly described
as follows: The first was the passage
of the Weeks Act of March 1, 1911. This
made it possible to concentrate ownership
in the proclaimed areas and made it possible
for other areas to be proclaimed. The
most important area of this nature was
the border country lying between Basswood
and Saganaga Lakes. The second important
event was the first expansion of the Superior
National Forest accomplished by Presidential
Proclamation No 1215 in 1912. This added
about 380,000 acres to the Forest. The
third important development was the influx
of recreation visitors to the national
forest, and especially to the border lake
country. This followed immediately after
World War I. Apparently, the rigorous
training required by the Armed Forces
had emphasized the need for periods of
relaxation and had stimulated interest
in outdoor life. At the same time, automobile
transportation and the development of
highway systems provided greater mobility
for many of our people. It is interesting
to note that for the year 1919 the total
number of visitors to the Superior National
Forest was estimated to be 12,750. Even
for the relatively small group there were
limited accommodations.
The two decades following 1920 constitute
a story of successive controversies over
use and management.
The increased interest in travel, and especially
outdoor recreation, resulted in a great
influx of people to the national forest
of the entire country. It was then that
the devotee of recreation came in conflict
with those interested in the production
of timber and the generation of hydro-power.
At that time, little consideration was
given to develop plans for the public
use of forests. There were neither precedents
nor policies upon which to base programs
for the recreationists. The first attempt
for managing the recreation resources
of the Forest came in 1919 when Arthur
H. Carhart was employed as a landscape
architect for the Forest Service. His
appointment meant (1) recognition of the
necessity of recreation planning in the
national forests, (2) production of the
first plan of management of what was later
to become the Boundary Waters Canoe Area
of the Superior National Forest, and (3)
the first actual studied application of
protected wilderness as an integral part
of national forest management.
The following paragraph is basic to Mr.
Carhart's general thought: "It is
evident, if Minnesota wishes to retain
the scenic beauty which is hers, there
must be some immediate action toward general
preservation of good timber stands bordering
lakes and streams. This does not mean
that cutting shall be excluded from these
locations but that the aesthetic qualities
shall, where of high merit, take precedence
over the commer- cialization of such timber
stands."
At the conclusion of 1922, Mr. Carhart
resigned from his position with the comment,
"The recreation work needs more funds
and organization to work with in order
to approach the needed progress."
This statement is as true today as it
was then.
A more complete point of view was expressed
in 1921 in a resolution adopted by the
Superior National Forest Recreation Association:
"Be it resolved to recommend to the
Secretary of Agriculture and the United
States Forest Service that a more thorough
study be made of the Superior National
Forest, which will take into account every
possible feature of development, economic,
recreational, scenic and aesthetic,, with
a view that its final development will
give the highest possible service to all
the people of the United States."
In 1927, President Calvin Coolidge issued
Proclamation No. 1800, the third proclamation
enlarging the Superior National Fores,
which added approximately 360,000 acres
to the Superior National Forest. During
the succeeding years, considerable public
support developed for the preservation
of the scenic values of the area. Public
hearings were held and as a result, in
1926, Secretary of Agriculture Jardine
issued the first policy statement for
the so-called primitive area, the main
provisions of which included:
1. To retain as much wilderness
as possible associated with the land
having recreational opportunities.
2. To build no roads where the
Forest Service exerts control.
3. To build simple campground
facilities as may be needed to prevent
escape of fire or protect sanitary
conditions.
4. To utilize the timber produced
under careful methods of cutting that
insure a continuous supply with the
preservation
of nature scenery along lakeshores,
adjacent to campgrounds and similar
areas.
Within a year, the Forest Service developed
a recreational plan for the Canoe Area
in accordance with the Jardine policy.
As a result of the water power threat and
by public demand, the Shipstead-Newton-Nolan
Act was passed in 1930.
The events leading to the passage of this
Act are a fascinating story in itself;
the untiring devotion to a few to a cause--often
against great odds. However, after a long
light at the close of the 1930 Session
of Congress, the law was passed. The Act's
main provision were:
1. To conserve for recreational
use the beauty of shorelines which
are now used or will be used for general
boat or canoe
travel.
2. That there be no logging within
400 feet of natural shorelines, except
for practical reasons.
3. That there be no further alteration
of the natural water levels, except
by special Act of Congress.
4. That all public lands were
withdrawn from entry.
In 1933, the State of Minnesota passed
similar legislation to protect State-owned
shorelines within the same area. President
Roosevelt in 1934 created the Quetico
Superior Committee whose purpose was to
consult and advise with the several Federal
Departments and agencies operating in
the Superior area and with the State of
Minnesota. The committee has been extended
by succeeding Presidents. The minutes
of meetings reflect that all major phases
of management of the Boundary Waters Canoe
Area have been discussed and mutually
agreed to by the Committee and the Forest
Service.
The next circumstance involves the name
of the Area. Originally, it was called
a Wilderness Area. The name then changed
to "Primitive Area" then "Roadless
Primitive Area." Standard nomenclature
for various types of recreational areas
was lacking at that time.
In 1958, the present more fittinig name,
Boundary Waters Canoe Area, was adopted.
While names have changed, the fundamental
policy of providing for maximum use and
enjoyment of the area while protecting
its resources and maintaining its natural
qualities has not.
From the early 1920's, one of the major
detracting factors to establishing an
area of wilderness environment was the
mixed landownership.
With the passage of the Weeks Act in 1911,
making acquisition possible, the Superior
National Forest was, through a series
of extensions in 1930-33-35-36, increased
to its present size. This made it possible
to increase the Boundary Waters Canoe
Area to its present area of one million
acres.
In the late 1940's it became apparent that
if the objectives were to be reached,
the remaining resorts and summer homes
must be acquired. Again, groups and individuals
interested in the area pressed for enactment
of the Thye-Blatnik Bill, which became
Public Law 733 in 1948. This Act authorized
and directed the Forest Service to acquire
lands within an area covering about two-thirds
of the Boundary Waters Canoe Area. It
carried an authorization of $500,000,
which was subsequently appropriated by
Congress.
In 1956, the area was extended by Public
Law 607 to cover all of the Boundary Waters
Canoe Area and the authorization increased
to $2,500,000. In 1961, an additional
authorization of $2,000,000, was made
available, making a total authorization
of 4-1/2 million dollars, all of which
as been appropriated by Congress. The
Forest Service was also authorized to
employ the right of eminent domain on
tracts that could not otherwise be acquired.
In 1948, considerable progress had been
made in the acquisition of the unimproved
lands. Action has been started to acquire
all remaining improved private lands through
direct purchase of condemnation, and all
unimproved private land, through purchase
or exchange.
In 1949, President Truman issued an Executive
Order establishing an air-space reservation
over the Boundary Waters Canoe Area. Briefly,
this order restricted flying below 4,000
feet above sea level except in emergencies
or for safety reasons. It became effective
in 1951.
The Wilderness Act of 1964 designated the
BWCA as a unit of the National Wilderness
Preservation System. This act recognized
the unique history and character of the
BWCA and provided for special management
considerations.
A special BWCA regulation (36 CFR 251.85)
prepared in accordance with the Wilderness
Act was approved in 1965. This regulation
with its administrative guides of the
Chief, Forest Service, provides the primary
direction for management today.
Various plans of management, revised roughly
each ten years, have employed into a comprehensive
Management Handbook. This Handbook is
a fairly complete working tool designed
to provide uniformity in applying direction
contained in the various laws and regulations
described above.
Getting the job done--during this 38 years
of special management--has taken the imagination,
initiative, the tenacity of many public
spirited citizens and groups, a great
amount of bold and forthright action by
legislative and administrative leaders
at Federal and State levels. The exciting
experiences, the trials, tribulations
and frustrations of those charged with
getting the job done on the ground has
provided the final link to success. The
BWCA today is dedicated to public use
and enjoyment in a natural setting that
can be perpetuated
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