P04_SOW(revised).docx

3/21/2016

S C O P E O F W O R K

ADMINISTRATIVE HISTORY

LEWIS AND CLARK NATIONAL HISTORIC TRAIL

IOWA, IDAHO, ILLINOIS, KANSAS, MISSOURI, MONTANA, NORTH DAKOTA

NEBRASKA, OREGON, SOUTH DAKOTA, WASHINGTON

U.S. DEPARTMENT OF INTERIOR – NATIONAL PARK SERVICE

PMIS PROJECT NUMBER # 190996

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 Lewis and Clark National Historic Trail (NHT). The history will help complete basic historical documentation of the park’s story and resources related to the route of United States explorers Meriwether Lewis and William Clark. 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 is pertinent specifically to Lewis and Clark National Historic Trail. The study shall conform 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 22 current and former NPS employees, partners, and tribal members 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

Lewis and Clark National Historic Trail extends 3,700 miles from Wood River, Illinois, to the mouth of Oregon’s Columbia River. It commemorates the Lewis and Clark Expedition of 1804-1806 and is a component of the National Trails System administered by NPS. Sites along the trail are managed by an assortment of federal land managing agencies, state, local, private, and tribal organizations. It provides opportunities for hiking, boating, horseback riding, and other forms of recreation at sites along the trail. It is the second longest of 23 National Scenic and National Historic Trails in the United States. From Illinois, it passes through Missouri, Kansas, Iowa, Nebraska, South Dakota, North Dakota, Montana, Idaho, Oregon, and Washington.

Administrative headquarters is co-located in the Carl T. Curtis Building with the NPS Midwest Regional Office (MWRO), 601 Riverfront Drive, Omaha, Nebraska. A visitor center highlights the explorers and their multi-year trip across North America and provides information about sites along the Trail.

NPS first proposed a "Lewis and Clark Tourway" in 1948 which would stretch along the Missouri River from St. Louis to Three Forks, Montana. American conservationist and cartoonist Jay Norwood Darling advocated for development of a recreational trail along the Expedition’s route. In 1966, the Bureau of Outdoor Recreation issued a report mentioning a Lewis and Clark trail and it was included for study as a possible National Scenic Trail in the National Trails System Act of 1968. In 1978, the act was amended in the National Parks and Recreation Act which established the new category of National Historic Trails, and officially designated the Lewis and Clark National Historic Trail. From 2003 to 2006, Congress charged NPS with commemorating the Bicentennial of the Lewis and Clark Expedition with the Corps of Discovery II traveling exhibit.

Research Project – Develop and Complete the Administrative History for Lewis and Clark National Historic Trail

This project will provide for the first Administrative History of the Lewis and Clark National Historic Trail, documenting its conception, authorization, and the major issues that have shaped the past and current management philosophies. Today it is a fully staffed historic trail. This document will describe how the Trail was conceived and established, the NPS operational history of the Trail, and how it has been managed by NPS to the present day. It will highlight the trail as the prototype for all other historic trails in the National Trails System, its role in the Bicentennial commemoration of the Lewis and Clark Expedition known as Corps of Discovery II, and describe all partnerships that have been developed over time.

The Administrative History is an urgent necessity for current management as it will examine events while they are still in the recent past and while the individuals who participated in these events are able to provide primary source material from living memory. A historian(s) will be contracted to prepare the Administrative History. It will be based on an analysis of primary and secondary source material from park records, state and local archives, and regional, and NPS Washington Office files; primary sources include oral history interviews with former trail employees and many of the people who were involved in the Trail’s establishment and operation, including legislators and tribal members.

NPS is seeking to increase its understanding and document the history of its development and administration of Lewis and Clark NHT. To accomplish this, an Administrative History must be compiled. A park Administrative History is a history of a park unit as an institutional entity. Its purpose is to present the history of the NHT since the time it was first proposed through Congressional authorization and subsequent NPS management. It provides NPS managers a historic context for making decisions on issues relevant to NHT management. This research project will include a legislative history complete with a summary of testimony presented at hearings. It will also focus on all studies, plans, restoration/preservation activities, and management decisions regarding the operation, interpretation, and preservation of Lewis and Clark NHT.

This project will require primary and secondary research into the Administrative History of Lewis and Clark NHT. The completed study will include the following elements:

A. Introduction providing a brief overview of the Lewis and Clark Expedition known as the Corps of Discovery and narrative describing the Trail, its location, primary resources, values, purpose, and significance.

B. Previous celebration or commemoration of the Corps of Discovery in the United States, including any centennial observance.

C. Comprehensive legislative history for Trail authorization and subsequent movement and study for its enlargement, to include: 1) critical statements or endorsements by congressional members that influenced authorization; 2) public testimony, (e.g. individual or group) statements and/or endorsements that contributed to the eventual designation and enlargement of the Trail; and 3) a chronology of legislative benchmark events leading to designation. Nine months after contract award, the contractor will supply draft chapters for A., B., and C. to NPS for review and approval.

D. The primary emphasis of the study will provide a description and analysis of the development and administration of the Trail as a unit of the National Park System. 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.

The study will focus on such areas as:

As one of the first designated historic trails, the report will evaluate how Lewis and Clark NHT set precedents for other historic trails.

Planning for the Trail began as early as 1961. As part of President Lyndon B. Johnson’s “Natural Beauty Message” delivered on February 8, 1965, Johnson called for development and protection of a balanced system of trails across the US.

In 1965, the Lewis and Clark Trail Commission was established by Congress to advance public awareness of the Lewis and Clark Expedition and to promote outdoor recreation resources along the route.

The same year, The Lewis and Clark Trail—A Proposal for Development by the Bureau of Outdoor Recreation recommended “a hiking and horseback trail should be constructed to follow as closely as possible the expedition’s water and overland route.” The study identified 512 existing historic and recreational sites development for public use along the route and proposed 384 more to be connected by foot or riding trails.

A follow-up Bureau of Outdoor Recreation study in 1966 called Trails for America: Report on the Nationwide Trail Study named the Lewis and Clark Trail as having high potential as a National Scenic Trail, along with the Oregon, Santa Fe, North Country, and Natchez trials.

National Trails System Act of 1968 (Public Law 90-543) established national scenic, historic, and recreation trails as components of the National Trails System. In 1978 came the National Parks and Recreation Act which designated five new trails, including Lewis and Clark National Historic Trail. Since 1968, Congress has designated five National Scenic Trails and 12 National Historic Trails. The acts spell out specific authorities given to the secretaries of Interior and Agriculture in managing trail units.

Since its initial designation, the Trail has evolved from a small staff of NPS managers, through the complex planning and logistics of the Bicentennial, up to the present day. The Trail has had five Superintendents and was co-located with the Midwest Regional Office in the 1990s during the build-up to the Bicentennial.

The Bicentennial was a major initiative across the 11 states of the Trail and unique experience in commemorative practices in the United States. In the 1990s commitment of human and fiscal resources to the Bicentennial of the Lewis and Clark Expedition (Corps II) grew exponentially. Corps II personnel traveled thousands of miles stopping at hundreds of communities across America, reaching an audience of 500,000 people building partnerships unique to the trail system. The Bicentennial provided for the expression of tribal perspectives and was a milestone for American Indian communities who assisted in budgeting, planning and coordination of the Bicentennial as well as in sharing their cultures. The unprecedented tribal participation, including the Circle of Tribal Advisors, helped to increase public knowledge of tribal histories and cultures.

At the conclusion of the Bicentennial in September 2006, Trail administration shifted its focus to efforts and activities necessary to address the major areas of trail administration such as cultural and natural resources preservation and protection, interpretation and education, and outdoor recreation.

The study will discuss the many operational, interpretive, and partnership decisions and the lessons learned, some that were successful and some that were not so successful, throughout the Trail’s development.

The Trail has limited federal ownership, unmarked boundaries, and a mission to administer and interpret resources related to the Corps of Discovery’s journey to find a navigable route to the Pacific Ocean. It works with formal and informal partners to fulfill its mandate to administer the Trail and provide technical and financial assistance to partners. Trail partners include other governmental agencies, private individuals, American Indian tribes, and universities—all have been fundamental in carrying out the Trail’s mission. All cooperative agreements will be fully discussed.

The study will provide a clear understanding of the historical impacts of numerous issues facing administration of the Trail and continue to affect the resources of the Trail such as ongoing interpretation and protection of the historic route, the threats to visual resources, developing and maintain partnerships, opportunities for recreation and the relationships between governments including tribal governments. Examination of this history will help sustain current partnerships, provide a model for creating new ones, and serve as a useful guide for other trail and park managers throughout the NPS and the historic preservation community.

Currently the Trail stretches across three NPS regions and includes assorted NPS units. There are 15 National Historic Landmarks along the route related to the story of the Expedition; this includes many U.S. Army forts that were constructed following the return of the Expedition. There are seven National Park sites, two National Monuments, and four National Natural Landmarks along the route all related to the experience of the Trail. Documenting the Trail’s efforts to administer and interpret cultural and natural resources will enhance public understanding of what these resources are, increase appreciation for their importance, and highlight the challenges and successes of Trail administration.

Contents of all Trail-related reports and plans are to be summarized and management decisions explained.

The study will elaborate on goals and accomplishments of each Trail superintendent and division chief. It will document how and why the administrative operations of the Trail changed over time. Attention will be paid to the annual budget and staff growth.

Interpretive programs, special exhibits, volunteers, use of social media, law enforcement, maintenance, oral history program, archeological inventory work, Eastern National bookstore and gift shop, visitor center and associated interpretive centers, and proposed Trail expansion plans will be discussed.

The contractor will provide within six months of contract award a detailed outline of the Administrative History for NPS review and approval.

The Administrative History must place Lewis and Clark NHT in context with the evolution of management policies, procedures, and practices of NPS over time, with a special emphasis on the National Trail System. 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 Lewis and Clark NHT. Records of the NPS MWRO in Omaha, Nebraska, will also be utilized. Trail-related correspondence generated in years prior to the establishment of an actual headquarters and NPS staff by the MWRO is in the archival records of NPS MWRO which are physically located at National Archives and Records Administration-Federal Records Center (NARA-FRC) in Kansas City, Missouri. (Please note, these records are only at FRC, not in the Archives branch.)

E. Oral history interviews with key decision-making personnel. Because NPS documentation is not complete, oral history interviews will be especially useful in the Administrative History. Twenty-three (22) formal oral history interviews will be conducted in person according to professional standards with current and/or retired NPS employees, tribal members, and partners pertinent to the park’s history as follows (grouped geographically, names and contact information to be provided following contract award):

Madison, Wisconsin T.G., former Lewis and Clark NHT superintendent

Omaha, Nebraska D.W., former Lewis and Clark NHT manager F.C., former Midwest Region Associate Regional Director, Cultural Resources M.W., Lewis and Clark NHT Superintendent C.M., former Corps II Chief of Logistics/Lewis and Clark NHT Chief of Interpretation D.W., Lewis and Clark NHT Chief, Resources Stewardship

Topeka, Kansas C.H., Circle of Tribal Advisors Leadership, Pawnee Tribe, former board member, Lewis and Clark Heritage Foundation/Lewis and Clark Trust

Fort Scott, Kansas B.B., former Lewis and Clark NHT Deputy Superintendent

Oro Valley/Tucson, Arizona S.A., former Lewis and Clark NHT Superintendent

Tempe, Arizona R.M., Circle of Tribal Advisors Board Member, Shawnee Tribe

Santa Fe/Espanola, New Mexico O,H., former Lewis and Clark NHT American Indian Liaison

Miles City, Montana G.B. former Lewis and Clark NHT Superintendent

Missoula, Montana M.G., former President, Lewis and Clark Heritage Foundation/USFS Lewis and Clark lead during Bicentennial

Lapwai, Idaho A.P., Circle of Tribal Advisors Board Member, Nez Perce Tribe

Astoria, Oregon D.B., American Indian Liaison, Lewis and Clark NHT

Pendleton, Oregon B.C., Circle of Tribal Advisors Leadership, Umatilla Tribe

Gunnison, Colorado S.M., Circle of Tribal Advisors Program Manager

Golden, Colorado M.R., former Lewis and Clark NHT Challenge Cost Share grants specialist

Washington, D.C.

E.H., BIA Transportation/Tourism Specialist

Philadelphia, Pennsylvania P.J., former Corps II Chief of Interpretation

St. Louis, Missouri K.G., former Executive Director, National Council of Lewis and Clark Bicentennial

Lexington, Kentucky J.M., former President, Lewis and Clark Heritage Foundation/President, Lewis and Clark Trust

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.

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

F. Bibliography of source materials, including all previous research, surveys, and reports dealing with the history of Lewis and Clark NHT.

G. Appendices: Information including, but not limited to, all pertinent legislation, maps and/or drawings, listing of annual budgets, 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.

H. 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) 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. General Proposal Outlines

The prospective contractor must formulate a study proposal and itemized cost proposal in response to this Scope of Work. The proposal must describe in detail the investigator's research strategy and qualifications of personnel responsible for completion of the study. Minimally, the study must individually address each topic (A-H) outlined in Section II, above.

IV. 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 Lewis and Clark NHT headquarters in Omaha, Nebraska, to discuss technical aspects of the contract and to confirm the planning schedule for the submission of the deliverables.

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. 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 three approving officials in the following order: "Recommended/Associate Regional Director, Cultural Resources, Midwest Region/Date; Concurred Superintendent, Lewis and Clark National Historic Trail/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 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 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 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 three 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) must be comprehensively documented in a memorandum of telephone call. All recordings, transcripts, interview rights release forms, photographs, and memoranda of telephone calls 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 the Lewis and Clark NHT.

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.