A04 SOW.pdf

S C O P E O F W O R K

ADMINISTRATIVE HISTORY

NICODEMUS NATIONAL HISTORIC SITE

KANSAS

U.S. DEPARTMENT OF INTERIOR – NATIONAL PARK SERVICE

PMIS PROJECT NUMBER # 176418

I. Introduction

The National Park Service (NPS), through the Midwest Regional Office (MWRO), requires the performance of research and writing of an Administrative History for Nicodemus National Historic Site in Topeka, Kansas. The history will help complete basic historical documentation of the park’s history and resources as developed and managed by the National Park Service. The information contained in the Administrative History is essential for present and future interpretation and resource management.

This Administrative History is a comprehensive synthesis of primary and secondary source material that conforms to professional standards regarding methodology of historical research and writing. Stylistic, bibliographical, and report production standards shall conform to the current edition of the Chicago Manual of Style. The study will include an oral history project whereby twenty (22) current and former NPS employees and others important to the history of this park unit will be interviewed in person, digitally recorded, and transcriptions prepared.

The Administrative History, including enumerated appendices, graphics, and index shall be completed within twenty-four months from the date of contract award.

II. DESCRIPTION OF THE RESOURCES

Nicodemus National Historic Site (NHS) is within the small unincorporated town of Nicodemus in northwest Kansas. The town—barely a few dozen buildings—tells us first-hand stories of the African American experience on the Great Plains. Founded in 1877, Nicodemus was the first western town built by and for black settlers. For black farmers in the region, it was the economic and cultural hub for many decades. It is the only remaining town of those established by blacks on the Great Plains following the Civil War during the Reconstruction era of 1865-1877.

After the Civil War, blacks in the South found that the political and economic gains of Reconstruction were being violently stripped away. Some looked westward, but, because racial tensions extended to the frontier, the idea of an all-black settlement took hold. The Nicodemus Town Company was formed by W.H. Smith, five black ministers, and W.R. Hill, a white town developer.

In September 1877, some 300 settlers recruited from Kentucky arrived at the newly platted town of Nicodemus. Like their white counterparts elsewhere on the frontier, they lived in primitive conditions. Newcomers were shaken by the spectacle of homes dug into the ground. Sixty people returned to the railhead in Ellis to live and some traveled all the back to Kentucky. By the mid-1880s, hard-working, strong-willed settlers transformed Nicodemus into a prosperous town. Lasting prosperity on the Great Plains, though, depended on the presence of a railroad line. Despite the tireless efforts of town boosters, the nearest railroad ran several miles south.

Nicodemus suffered along with the rest of the nation during the Great Depression and the Dust Bowl years of the 1930s.

In 1976, the original 161-acre town was listed as a National Historic Landmark district. On November 12, 1996, Congress authorized Nicodemus National Historic Site (Public Law 104- 333; 110 Statute 4163). The 1996 Enabling Legislation defines the purpose of Nicodemus National Historic Site as follows: “to preserve, protect and interpret for the benefit and enjoyment of present and future generations, the remaining structures and locations that represent the history (including the settlement and growth) of the town of Nicodemus; and interpret the historical role of the town of Nicodemus in the Reconstruction period in the context of the experience of westward expansion in the United States.”

The National Park Service and the residents of Nicodemus work together to preserve five remaining historic structures: St. Francis Hotel (1881), African Methodist Episcopal (A.M.E) Church (1885), First Baptist Church (1907), Nicodemus School District No. 1 building (1918), and Nicodemus Township Hall (1939). Nicodemus National Historic Site represents the only remaining all black town established at the end of Reconstruction, and is symbolic of the pioneer spirit of the black people who settled there.

Research Project – Develop and Complete the Administrative History for Nicodemus National Historic Site

This project will provide for the first Administrative History of Nicodemus National Historic Site. This history—of particular value to managers, planners, and interpreters—describes how the park was conceived and established and how it has been managed to the present day. The park's legislative history and important issues in planning, land acquisition, development, public relations, and other topics of ongoing management concern are emphasized.1

The primary emphasis of this Administrative History (also referred to as “study”) will provide a description and analysis of the development and administration of Nicodemus National Historic Site (NHS) as a unit of the National Park System. Contents of all NPS management reports and plans are to be summarized and management decisions explained.

National Park Service management and administrative oversight has shifted repeatedly over the past two decades: from Fort Larned National Historic Site (1996-2008), to an independent operation between 2008-2015, to Brown v. Board of Education National Historic Site (2016-present). In 2017, a new cooperative agreement expanded the scope of involvement by the local historical society in orientation and interpretation for on-site visitors, engaging community interpreters directly in conveying their history. This shift added management complexity.

In April 2020, National Park Service advertised for a new Superintendent to re-establish an on-site presence. It is expected that the new manager might be on site in the fall of 2020. However, 1 For more detailed guidance see National Park Service Administrative History: A Guide (1991).

administrative support and oversight remain with the Superintendent, Brown v. Board of Education NHS.

The population of Nicodemus is small, with most of its residents between 70-90 years. Two recent funding awards to support the collection of more oral histories arrived a few months after the deaths of important members of the community: Ora Switzer (106), Dorotha Herndon (102), and others. Community members involved in advocating and implementing the park are at retirement age; key residents farmer Gil Alexander and former Township Trustee James Bates passed away in 2017, the president of the Nicodemus Historical Society is in poor health, and the executive director is retiring soon. Given the small size and remote nature of the park and the difficulty in retaining managers and other key staff, an Administrative History becomes even more critical as a key orientation document as leadership changes occur.

The Administrative History will use primary and secondary sources to document park management issues, and opportunities, and analyze how they continue to impact park operations.

Methodologies include oral history interviews and research to document the development, management and operations of the park and will include research into the development of the area as a National Historic Landmark District since that status served as a foundation for action to establish a National Historic Site. Preparation of the Administrative History of this site is essential as there has been very little longevity for park staff; the park has already had six managers and multiple acting managers over its almost quarter-century history. Key division-lead positions were only filled within the past 5-7 years and are now all vacant. NPS and partner staff involved in the designation and implementation of the park are now or will soon be retired (next 1-4 years). Inconsistent management attention has impacted the relationship with the community and documenting this is critical knowledge for future managers.

The origin and rationale for key management decisions shall be thoroughly discussed and reference made to planning documents, studies, and other historical, archeological, and scientific research reports that resulted in major management decisions. Other topics, in addition to those enumerated above, to examine (in no particular order) include:

General Management Plan (2003)

Historic Structure Report, Nicodemus NHL (2002) and updated in 2010

Cultural Landscape Report (2003)

Nicodemus Historic District and Dugout House National Historic Landmark (1976)

Special Resource Study (1993)

Long-Range Interpretive Plan (2009)

Scope of Collection Statement (2009)

Historic Resource Study (2001)

Land Protection Plan (2010)

Foundation Document (2016)

Cooperative Agreement with Nicodemus Historical Society (2009)

Graham County Historical Society

Nicodemus West, Inc.

Midwest Archeological Center/Nicodemus archeological holdings; archeological investigations

Stabilization/rehabilitation work on all five historic structures

History and significance of annual Nicodemus Homecoming Emancipation Celebration

Historic American Buildings Survey in Nicodemus (1983)

Nicodemus Oral History Project 2009, NPS research grant to University of South Florida Heritage Research Lab (those oral history interviews will be utilized if the content is found to pertain to this Administrative History project).

Park dedication, July 1998.

Environmental Assessment/Value Analysis for a Visitor Center (2010)

Operations Evaluation Report (2010)

DOI Solicitor’s Opinion concerning NPS historic preservation funding at Nicodemus (2005)

General Condition Assessment (2008)

Elaborate on how Nicodemus National Historic Site (NHS) was authorized by Congress.

Describe early preservation efforts and support for federal legislation creating a unit of the National Park System. Describe any park opposition. Elaborate on Congressional testimony.

Describe the development of management alternatives considered in the General Management Plan (2003) and the reasoning that influenced the selection of the preferred alternative. Describe any shifts in emphases in management direction as noted in implementation documents and/or the Foundation Document (2016).

Rental of onsite administrative office space from U.S. Housing and Urban Development.

Cultural resources management. List of Classified Structures (LCS) and Cultural Landscape Inventory (CLI) initiatives and enrolled properties. Park collections and curatorial plans.

Archeological and ethnographic studies.

Exhibits for the visitor contact station at Township Hall and wayside exhibits.

Management of Nicodemus National Historic Site over time. Document policy development and changes in park management and operations. Describe staffing and reporting relationships to other park superintendents and the Midwest Regional Office.

Elaborate on park maintenance/facility management operations; visitor protection/law enforcement programs.

The study will examine the association with Fort Larned and Brown v. Board of Education national historic sites. Currently the Site Manager/Superintendent of Nicodemus NHS reports to the Superintendent of Brown v. Board of Education NHS in a mentoring supervisory relationship. Additionally, Brown v. Board of Education NHS provides some supporting administrative functions and shared some positions with Nicodemus NHS at times. Explain how the relationship worked in terms of park operations and management authority. Discuss how the Nicodemus NHS manager was regarded as a training position for new superintendents.

Describe the succession of managers/superintendents and their accomplishments. Document changes in position management over time (FTE, strategy, etc.). Examine the goals and accomplishments of each park manager and focuses for division chief/leads.

Attention will be paid to the annual budget and staff growth and all organization charts will be featured.

Describe all major park events. Document interpretation and education programs and how they evolved over time. Describe approach to inclusion of museum exhibits and collections over time. Describe other interpretive efforts, including social media outreach, web site introduction and development, and park interpretive films. Note the lack of a park store and cooperating association. Describe efforts to comply with the Americans with Disabilities Act. Document park visitation over time.

Describe formal and informal partnerships and how they have assisted in accomplishing the park mission.

The Administrative History must place Nicodemus NHS in context with the evolution of management policies, procedures, and practices of NPS over time. This would include discussion of relationships and services provided by but not limited to inter-agency offices such as the Washington Office, Midwest Regional Office, Denver Service Center, Midwest Archeological Center, and Harpers Ferry Center. Contractor will utilize the files, library, and archives of the Nicodemus NHS, and digitized documents available from other NPS sources.

A. The contractor will provide within six months of contract award a detailed outline of the Administrative History for NPS review and approval. It will contain or consider all of the topics listed above. Contractor will supply five (5) hard copies as well as an electronic WORD document for the review. Draft material will have page numbering and line-numbering in the left margin (started over on each page). NPS will provide comments within 30 days. The outline will serve as the basis of the Table of Contents.

B. Nine months after contract award, the contractor will supply two draft chapters (Introduction and Legislative History) for NPS for review and approval. It will contain or consider all pertinent topics listed above. Contractor will supply five (5) hard copies as well as an electronic WORD document for the review. Draft material will have page numbering and line-numbering in the left margin (started over on each page). NPS will provide comments within 30 days.

C. Within one year of contract award, contractor will provide transcriptions of all oral history interviews for NPS inspection and approval.

Oral history interviews will be conducted with key decision-making personnel. Because NPS documentation is not complete, oral history interviews will be especially useful in the Administrative History. Contractor shall also utilize existing oral history transcripts pertaining to Nicodemus.

Twenty (20) formal oral history interviews will be conducted in person according to professional standards with current and/or retired NPS employees pertinent to the park’s history and others as follows (grouped geographically, names and contact information to be provided following contract award):

Topeka, Kansas Area:

E.E., current Nicodemus Superintendent S.W., Nicodemus Supt 1/2003-4/2008; on GMP Team P.H., Nicodemus Park Ranger, c. 2007-2019 (retired) A.B., Nicodemus historian

Omaha, Nebraska Area:

S.W., MWRO-Planning & Legislation; GMP Team Leader (retired) Lincoln NE T.R., MWRO Chief of Interpretation; GMP Team C.W., MWRO-Regional Curator (retired) Ashland, NE D.B., MWRO-Chief of Land Resources C.W., MWR- Acting Deputy Regional Director

Larned, Kansas:

F.R., Fort Larned Chief of Interpretation; GMP Team (retired) W.C., Fort Larned Facility Manager (Acting Supt, NICO, 2016)

Colorado:

S.L., Fort Larned Superintendent; GMP Team; managed Nicodemus until Site Mgr hired/supervised Site Mgr (retired) – Westcliffe, CO S.C., Fort Larned Admin Officer – now at Great Sand Dunes, Mosca CO B.G., Intermountain Assistant RD; on GMP Team (retired) Denver CO area

New Mexico:

D.C., Nicodemus Site Manager ____-2002 (retired) – Santa Fe, NM

Michigan:

M.W., Nicodemus Superintendent (acting, then hired) 4/2008-9/2012 - (retired) – Lowell, MI

Wyoming:

A.W., Nicodemus Superintendent ____-9/2015; now at Fossil Butte NM, Kernmerer, WY

Gering, Nebraska:

D.S., MWRO-Architectural Historian, managed NHL Amendment contract

Manhattan, Kansas:

L.B.J.W., Kansas State University, researched Nicodemus extensively; produced design project

Cincinnati, Ohio:

R.M., Nicodemus Park Ranger

A list of alternate interviewees will be provided in case any of the above candidates are unwilling or unable for whatever reason to participate. The alternates may be interviewed via telephone and not in-person.

List of Alternates:

To be interviewed by telephone:

J.M., Ethnographer, produced "Everyday Life in Nicodemus" oral history report C.A., Nicodemus descendant E.S., Nicodemus descendant, attended some of the GMP meetings

Oral history interviews will be conducted in person, digitally recorded, transcripts produced, a digital photograph of each interviewee taken, and assignment of interview rights forms signed.

All interviewees will be given an opportunity to review and edit his/her interview transcript over a one-month period.

D. Bibliography of source materials, including all previous research, surveys, and reports dealing with Nicodemus NHS.

E. Appendices: Information including, but not limited to, all pertinent legislation, maps and/or drawings, listing of annual budgets, annual visitation, organization charts, and a comprehensive listing of past and present NPS personnel, will be included in the Administrative History's appendix. The study shall include appropriate maps and other figures within the narrative, including historic and contemporary photographs. The photographs shall have captions and identify their source.

F. Contractor shall also prepare two short articles (1 to 2 pages) on any topic related to this Administrative History to be uploaded to the park’s website or other internet site. The articles will be submitted for NPS review and comment at the same time as the draft Administrative History is submitted (20 months after contract award).

G. A draft of the completed Administrative History with all above specified elements will be prepared and provided to NPS for review and comment according to a planning schedule and matrix outlined between NPS and contractor at the start of the project. Contractor will then incorporate all comments and resubmit a final draft. Following approval of the Administrative History by NPS, an index (generated by the latest version of Microsoft Word; all left margin line-numbering removed) will be prepared which incorporates all significant names, places, objects, activities, and programs referenced in the document. Used in conjunction with the Table of Contents, the Index will assist readers find particular topics of interest with ease. The final draft will then be reviewed by the Contracting Officer’s Representative (COR) to ensure all NPS comments have been incorporated, and then submitted for approval signatures.

III. Additional Contract Requirements

A. General provisions

1. Prospective contractors should note that the research design submitted by the contractor becomes a binding element of the contract and is expected to be carried out. The research performed and reported must meet the minimum requirements.

2. Within 30 days of award of contract, the contractor shall attend a post-award scoping meeting at Brown v. Board of Education NHS in Topeka, Kansas, to discuss technical aspects of the contract and to confirm the planning schedule for the submission of the deliverables. It should be noted that by the fall of 2020, there will be an on-site National Park Service office with a Superintendent at Nicodemus National Historic Site. It is recommended the contractor include sufficient time at the park to investigate the library holdings there, including completed oral history interview transcripts.

3. The production of the Administrative History shall be completed within 24 months of contract award.

B. Report standards/format and submission schedule The final report will be in the latest version of Microsoft Word and include the information required in the specifications listed in Section II, above. It must be typed on 8-1/2 by 11-inch white paper. All pages must be numbered. Copies of photographs (screened for reproduction clarity), maps, drawings, and text must be clean, clear, and legible. The format must comply with the latest edition of the Chicago Manual of Style. The document must be Section 508 compliant.

In addition, all reports must contain the following:

1. Title/Cover page listing the name of the Principal Investigator. If the report is also authored by Project Historians, the title page must identify the author(s) and bear the inscription, "Prepared under the supervision of (name), Principal Investigator." The title/cover page shall also include signature and date lines for four approving officials in the following order:

"Recommended/Associate Regional Director, Cultural Resources, Midwest Region/Date;

Concurred/Superintendent, Nicodemus National Historic Site/Date; Concurred/Superintendent, Brown v. Board of Education National Historic Site/Date; and Approved/Regional Director, Midwest Region/Date."

2. Five (5) hard copies of the chapter outline will be submitted six months following contract award for NPS review and approval. The outline shall include descriptions of each chapter containing sufficient detail to demonstrate the complete range of topics and themes to be discussed as well as chronological periods. NPS will provide review comments on the chapter outline to the PI within 30 days of receipt of the document. The PI shall make necessary revisions and submit the final chapter outline to NPS within 15 days of receipt by the contractor.

The outline will provide the basis for the “Table of Contents” for the Administrative History.

3. Five (5) hard copies of the draft report and two articles will be submitted twenty months following contract award to NPS for review. The draft will be typed, double-spaced, with numbered reference lines in the left margins on each page of text (numbering to start from “1” on each page) and will include all maps, graphics, footnotes, and appendices to be included in the final report. The draft will be reviewed by NPS for contract sufficiency and professional quality.

Within 45 days of receipt by NPS, the draft will be reviewed and the contractor will be notified when review comments will be transmitted. During the period of revision of the draft, the contractor will consult with NPS to ensure the satisfactory resolution of review comments and submission of a final draft in a timely manner.

4. A final draft report—and two articles (separate from the report)--addressing review comments transmitted to the contractor by NPS will be submitted to NPS prior to printing of the final document. The contractor will design appropriate cover art/graphics including the NPS Arrowhead for the camera-ready final document. Printing on the document's spine will include title, author, National Park Service, and year of publication. Within 60 days of NPS acceptance of the final draft (indicated by the four required signatures specified above) and before expiration of the twenty-four month contract period of performance, the contractor will furnish one (1) camera-ready unbound final document printed on archival paper, 100 dry ink digital printed and separately perfect-bound copies of the report, and a compact computer disk or disks containing the final document in the latest version of Microsoft Word.

5. All formal oral history interviews conducted will be digitally recorded and transcriptions prepared. All interview candidates must sign an interview rights release form (format to be supplied by NPS). Any additional interviews which take place on an informal basis (i.e., telephonically or other means like Skype, Zoom, or Microsoft TEAMS) must also produce transcripts. All recordings, transcripts, interview rights release forms, photographs, and the aforementioned alternate format recordings will be transmitted to NPS with the final document.

C. Disposition of data

At the conclusion of research and within 60 days of written acceptance of the final camera-ready report, all notes, records, maps, drawings, photographs, negatives, slides, digital images, tapes, digital recordings transcripts, and other data acquired during the course of this study will be professionally organized for archival purposes and submitted to the Contracting Officers Representative, to be deposited in the archives of Nicodemus NHS.

D. Progress reports

Quarterly progress reports during the performance of the research and writing phases of this contract are required. The initial due date will be 90 days after contract award. All quarterly reports will be submitted to Ron Cockrell, Contracting Officer Representative, National Park Service, Midwest Regional Office, 601 Riverfront Drive, Omaha, Nebraska 68102-4226.

Alternatively, reports may be delivered via email to ron_cockrell@nps.gov.

E. Payment

Partial payments may be made up to 80% of the contract award amount. Payments must be based on deliverables accepted by the government (see FAR 52.212-4(a), Contract Terms and Conditions – Commercial Items, Inspection/Acceptance & FAR 52.211-1, Time of Delivery).

Payment requests must be in accordance with the clause titled, Electronic Invoicing and Payment Requirements - Invoice Processing Platform (IPP).

F. Endorsement Proposals submitted for consideration must be accompanied by a signed cover letter. If the proposal is submitted by an organization it must bear the endorsement of both the Principal Investigator and a representative of the organization who is empowered to commit the organization to such an undertaking.

mailto:ron_cockrell@nps.gov