[House Report 106-848]
[From the U.S. Government Publishing Office]
106th Congress Report
HOUSE OF REPRESENTATIVES
2d Session 106-848
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REHABILITATION OF THE GOING-TO-THE-SUN ROAD IN GLACIER NATIONAL PARK
_______
September 14, 2000.--Committed to the Committee of the Whole House on
the State of the Union and ordered to be printed
_______
Mr. Young of Alaska, from the Committee on Resources, submitted the
following
R E P O R T
[To accompany H.R. 4521]
[Including cost estimate of the Congressional Budget Office]
The Committee on Resources, to whom was referred the bill
(H.R. 4521) to direct the Secretary of the Interior to
authorize and provide funding for rehabilitation of the Going-
to-the-Sun Road in Glacier National Park, to authorize funds
for maintenance of utilities related to the Park, and for other
purposes, having considered the same, report favorably thereon
with an amendment and recommend that the bill as amended do
pass.
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. FINDINGS.
Congress makes the following findings:
(1) The historic significance of the 52-mile Going-to-the-Sun
Road is recognized by its listing on the National Register of
Historic Places in 1983, designation as a National Historic
Engineering Landmark by the American Society of Civil Engineers
in 1985, and designation as a National Historic Landmark in
1997.
(2) A contracted engineering study and Federal Highway
Administration recommendations in 1997 of the Going-to-the-Sun
Road verified significant structural damage to the road that
has occurred since it opened in 1932.
(3) Infrastructure at most of the developed areas is
inadequate for cold-season (fall, winter, and spring)
operation, and maintenance backlog needs exist for normal
summer operation.
(4) The Many Glacier Hotel and Lake McDonald Lodge are on the
National Register of Historic Places and are National Historic
Landmarks. Other accommodations operated by the concessioner
with possessory interest and listed on the National Register of
Historic Places are the Rising Sun Motor Inn and Swiftcurrent
Motel.
(5) The historic hotels in Glacier National Park, operated
under concession agreements with the National Park Service, are
essential for public use and enjoyment of the Park.
(6) Public consumers deserve safe hotels in Glacier National
Park that can meet their basic needs and expectations.
(7) The historic hotels in Glacier National Park are
significantly deteriorated and need substantial repair.
(8) Repairs of the hotels in Glacier National Park have been
deferred for so long that, absent any changes to Federal law
and the availability of historic tax credits, the remodeling
costs for the hotels may exceed the capacity of an investor to
finance them solely out of hotel revenues.
(9) The current season of operation for hotels is
approximately 4 months because the developed areas lack water,
sewer, and fire protection systems that can operate in freezing
conditions, lack building insulation, and lack heating systems.
(10) The National Park Service Concessions Management
Improvement Act of 1998 is based upon sound principles and is
achieving its basic purposes, but there appear to be selected
instances where the National Park Service may need additional
authority to conduct demonstration projects.
(11) A demonstration project is needed for the repair of the
historic hotels in Glacier National Park.
SEC. 2. DEFINITIONS.
In this Act:
(1) Advisory committee.--The term ``Advisory Committee''
means the Going-to-the-Sun Road Citizens Advisory Committee.
(2) Park.--The term ``Park'' means Glacier National Park.
(3) Secretary.--The term ``Secretary'' means the Secretary of
the Interior.
SEC. 3. GOING-TO-THE-SUN ROAD STUDY.
(a) Feasibility Study.--Not later than December 31, 2001, the
Secretary, in consultation with Advisory Committee, shall complete a
feasibility study for rehabilitation of Going-to-the-Sun Road located
in the Park. The study shall include--
(1) alternatives for rehabilitation of Going-to-the-Sun Road
and a ranking of the feasibility of each alternative;
(2) an estimate of the length of time necessary to complete
each alternative;
(3) a description of what mitigation efforts would be used to
preserve resources and minimize adverse economic effects of
each alternative;
(4) an analysis of the costs and benefits of each
alternative;
(5) an estimate of the cost of each alternative;
(6) an analysis of the economic impact of each alternative;
(7) an analysis of long-term maintenance needs, standards,
and schedules for the road, alternatives to accomplish the
rehabilitation, maintenance staff needs, and associated cost
estimates;
(8) a draft of the environmental impact statement required
under section 102(2)(C) of the National Environmental Policy
Act of 1969 (42 U.S.C. 4332(2)(C)); and
(9) an analysis of improvements to any transportation system
relating to the Park that are needed inside or outside the
Park.
(b) Continuation Maintenance.--Nothing in this section shall affect
the duty of the Secretary to continue the program in effect on the day
before the date of the enactment of this Act to preserve, maintain, and
address safety concerns related to Going-to-the-Sun Road.
(c) Implementation of Plan.--As soon as practicable after completing
the study required by subsection (a), the Secretary shall--
(1) consider the recommendations of the Advisory Committee;
(2) choose an alternative for rehabilitation of the Going-to-
the-Sun Road from the alternatives included in the study based
upon the final environmental impact statement required under
section 102(2)(C) of the National Environmental Policy Act of
1969 (42 U.S.C. 4332(2)(C)); and
(3) begin implementation of a plan based on that choice.
Implementation actions that are authorized include rehabilitation of
Going-to-the-Sun Road and expenditure of funds inside or outside the
Park for transportation system improvements related to the Park and
impact mitigation if recommended by the study and the Advisory
Committee. The Secretary shall also seek funding for the long-term
maintenance needs that the study identifies.
(d) Report.--Not later than 30 days after completion of the study
required under subsection (a), the Secretary shall submit a copy of the
study to--
(1) the Committee on Resources and the Committee on
Appropriations of the House of Representatives; and
(2) the Committee on Energy and Natural Resources and the
Committee on Appropriations of the Senate.
(e) Authorization of Appropriations.--There are authorized to be
appropriated $200,000,000 to the Secretary to carry out this section,
including--
(1) implementation of the plan under subsection (c); and
(2) the cost of any necessary environmental or cultural
documentation and monitoring, including the draft environmental
impact statement required under subsection (a)(8).
SEC. 4. MAINTENANCE AND UPGRADE OF UTILITY SYSTEMS.
(a) In General.--As soon as practicable after funds are made
available under this section, the Secretary shall begin the upgrade and
continue the maintenance of utility systems which service the Park and
facilities related to the Park.
(b) Authorization of Appropriations.--There are authorized to be
appropriated to the Secretary to carry out this section, $20,000,000.
SEC. 5. VISITOR FACILITIES PLAN.
(a) Plan for Visitor Facilities.--Not later than December 31, 2001,
the Secretary shall complete a comprehensive plan for visitor
facilities in the Park. The comprehensive plan shall include the
following:
(1) A completed commercial services plan, as called for in
the Park General Management Plan.
(2) A plan for private financing of rehabilitation of lodging
facilities and associated property that are listed on the
National Register of Historic Places or are part of a district
listed on the National Register of Historic Places, which may
include historic tax credits, hotel revenue, and other
financing alternatives as deemed appropriate by the Secretary,
and which may include options such as extending the Park's
visitor season, additional visitor facilities, and other
options as deemed appropriate by the Secretary in order to
recover the rehabilitation costs.
(3) A financial analysis of the plan under paragraph (2).
(4) A plan by the Secretary to provide necessary assistance
to appropriate interested entities for the restoration or
comparable replacement of tour buses for use in the Park.
(5) A plan for a new visitors center at the west side of the
Park, including an appropriate location and design for the
center and suitable housing and display facilities for museum
objects of the Park as set forth in the Park General Management
Plan, including any studies required to be carried out under
the National Environmental Policy Act of 1969 (42 U.S.C. 4321
et seq.) and other applicable laws.
(6) A parkwide natural and cultural resources assessment, in
accordance with sections 203 and 204 of the National Parks
Omnibus Management Act of 1998 (Public Law 105-391; 112 Stat.
3497), including a comprehensive inventory of resources of the
Park.
(7) A description of any additional authority requested by
the Secretary to implement the comprehensive plan.
(b) Submission of Plan.--The Secretary shall submit copies of the
comprehensive plan to the Committee on Resources of the House of
Representatives and the Committee on Energy and Natural Resources of
the Senate.
(c) Implementation of Plan.--As soon as practicable after completion
of the comprehensive plan, the Secretary shall implement the
comprehensive plan, including construct the visitors center pursuant to
the plan required by subsection (a)(5).
(d) Authorization of Appropriations.--There is authorized to be
appropriated to the Secretary $1,000,000 to complete the comprehensive
plan.
PURPOSE OF THE BILL
The purpose of H.R. 4521 is to direct the Secretary of the
Interior to authorize and provide funding for the
rehabilitation of the Going-to-the-Sun Road in Glacier National
Park, to authorize funds for maintenance of utilities related
to the Park, and for other purposes.
BACKGROUND AND NEED FOR LEGISLATION
Going-to-the-Sun Road has been used by tourists to reach
the interior of Glacier National Park since 1932. This 52-mile
stretch of road contains many of the famous and cherished
hotels that visitors use when they visit the Park.
Unfortunately, significant damage has occurred to many of these
buildings since they were opened, and the facilities, along
with the road, are not equipped for cold-season operation, and
maintenance backlogs for normal summer operations continue.
Currently, the historic hotels in Glacier National Park,
which are operated under concession agreements with the
National Park Service, are in desperate need of repair. Due to
the federal law governing concessioners as well as the
availability of historic tax credits, the remodeling costs of
the hotels are greater than the concessioners' revenue. Such
remodeling repairs include the upgrading of fire, water, and
sewer systems that can operate in freezing conditions, and the
installation of building insulation or heating systems. The
concessioners would need to finance the cost of those repairs
by borrowing the remodeling expenses, and then repaying them.
Because the projected costs of remodeling are so high, and the
requirement that concession agreements cannot exceed 20 years,
the concessioners are fiscally unable to remodel the hotels in
the Park.
H.R. 4521 authorizes the Secretary to conduct a study of
the Going-to-the-Sun Road, to determine a plan which best suits
the needs of the Park. The bill then authorizes the Secretary
to implement the plan which best addresses the rehabilitation
needs of Going-to-the-Sun Road, and the utility systems which
service Glacier National Park. Finally, H.R. 4521 will also
allow the Secretary to enter into competitive leases of
property found in the Park, under which the lessee will be
authorized to provide visitor services to the area. The
Secretary may then determine criteria if visitor services are
necessary and appropriate, and may allow the rates to be set
high enough to allow investment in capital improvements.
COMMITTEE ACTION
H.R. 4521 was introduced by Congressman Rick Hill (R-MT) on
May 23, 2000. The bill was referred to the Committee on
Resources, and within the Committee to the Subcommittee on
National Parks and Public Lands. On June 27, 2000, the
Subcommittee held a hearing on the bill. On July 26, 2000, the
Resources Committee met to consider the bill. The Subcommittee
was discharged from further consideration of the bill by
unanimous consent. An amendment in the nature of a substitute
was offered by Mr. Hill. The amendment authorized a study of
relaxing concessioner rules, so that repairs may be made to the
many historic hotels and lodges within the Park. The amendment
was adopted by voice vote. No further amendments were offered
and the bill, as amended, was ordered favorably reported to the
House of Representatives by voice vote.
COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS
Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of
rule XIII of the Rules of the House of Representatives, the
Committee on Resources' oversight findings and recommendations
are reflected in the body of this report.
CONSTITUTIONAL AUTHORITY STATEMENT
Article I, section 8 and article IV, section 3 of the
Constitution of the United States grant Congress the authority
to enact this bill.
COMPLIANCE WITH HOUSE RULE XIII
1. Cost of Legislation. Clause 3(d)(2) of rule XIII of the
Rules of the House of Representatives requires an estimate and
a comparison by the Committee of the costs which would be
incurred in carrying out this bill. However, clause 3(d)(3)(B)
of that rule provides that this requirement does not apply when
the Committee has included in its report a timely submitted
cost estimate of the bill prepared by the Director of the
Congressional Budget Office under section 402 of the
Congressional Budget Act of 1974.
2. Congressional Budget Act. As required by clause 3(c)(2)
of rule XIII of the Rules of the House of Representatives and
section 308(a) of the Congressional Budget Act of 1974, this
bill does not contain any new budget authority, spending
authority, credit authority, or an increase or decrease in
revenues or tax expenditures.
3. Government Reform Oversight Findings. Under clause
3(c)(4) of rule XIII of the Rules of the House of
Representatives, the Committee has received no report of
oversight findings and recommendations from the Committee on
Government Reform on this bill.
4. Congressional Budget Office Cost Estimate. Under clause
3(c)(3) of rule XIII of the Rules of the House of
Representatives and section 403 of the Congressional Budget Act
of 1974, the Committee has received the following cost estimate
for this bill from the Director of the Congressional Budget
Office.
U.S. Congress,
Congressional Budget Office,
Washington, DC, September 7, 2000.
Hon. Don Young,
Chairman, Committee on Resources,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 4521, a bill to
direct the Secretary of the Interior to authorize and provide
funding for rehabilitation of the Going-to-the-Sun Road in
Glacier National Park and to authorize funding for maintenance
of utilities related to the park, and for other purposes.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Deborah Reis.
Sincerely,
Barry B. Anderson
(For Dan L. Crippen, Director).
Enclosure.
H.R. 4521--A bill to direct the Secretary of the Interior to authorize
and provide funding for rehabilitation of the Going-to-the-Sun
Road in Glacier National Park and to authorize funding for
maintenance of utilities related to the park, and for other
purposes
Summary: Assuming appropriation of the necessary amounts,
CBO estimates that implementing H.R. 4521 would cost the
federal government $241 million over the next six years. The
bill would not affect direct spending or receipts; therefore,
pay-as-you-go procedures would not apply. The bill contains no
intergovernmental or private-sector mandates as defined in the
Unfunded Mandates Reform Act (UMRA) and would not affect the
budgets of state, local, or tribal governments.
H.R. 4521 would direct the Secretary of the Interior to
improve the infrastructure of Glacier National Park in Montana.
Specifically, the bill would require the National Park Service
(NPS) to (1) rehabilitate the Going-to-the-Sun Road, which
provides access to the interior of the park; (2) upgrade the
park's utilities, and (3) plan and develop visitor facilities,
including a new visitor center at the west side. For these
purposes, the bill would authorize the appropriation of $200
million for road rehabilitation (including the cost of
providing alternative transportation and assistance to local
residents affected by this project), $20 million for utility
upgrades, and $1 million for a comprehensive plan of visitor
facilities.
Estimated cost to the Federal Government: The estimated
budgetary impact of H.R. 4521 is shown in the following table.
The costs of this legislation fall within budget function 300
(natural resources and environment).
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By fiscal year, in millions of dollars--
--------------------------------------------
2001 2002 2003 2004 2005
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CHANGES IN SPENDING SUBJECT TO APPROPRIATION
Estimated authorization level...................................... 11 30 70 80 50
Estimated outlays.................................................. 8 24 58 77 59
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Basis of estimate: While the cost of implementing H.R. 4521
would depend on the alternatives chosen by the NPS after it
completes the various studies and plans required by the bill.
CBO estimates that the agency would spend the $221 million
authorized by the bill, plus an additional $20 million to
construct new visitor facilities. The timing of these
expenditures also would depend greatly on the alternatives
chosen, particularly for road rehabilitation. This project,
which would cost about $200 million, could be completed in four
years (if the road is closed during construction) but could
take as many as 12. For this estimate, we estimate that the NPS
would choose a plan that would allow most of the work on the
road, the utilities, and a new visitor center to be done over
the next five years.
Because all of these projects could be funded under
existing authority (and are already being planned), some or all
of these funds could be spent even in the absence of this
legislation. This estimate is based on information provided by
the NPS and assumes the appropriation of the necessary amounts.
Pay-as-you-go considerations: None.
Intergovernmental and private-sector impact: H.R. 4521
contains no intergovernmental or private-sector mandates as
defined in UMRA and would not affect the budgets of state,
local, or tribal governments.
Estimate prepared by: Federal costs: Deborah Reis; impact
on State, local, and tribal governments: Marjorie Miller;
impact on the private sector: Lauren Marks.
Estimate approved by: Peter H. Fontaine, Deputy Assistant
Director for Budget Analysis.
COMPLIANCE WITH PUBLIC LAW 104-4
This bill contains no unfunded mandates.
PREEMPTION OF STATE, LOCAL, OR TRIBAL LAW
This bill is not intended to preempt State, local, or
tribal law.
CHANGES IN EXISTING LAW
If enacted, this bill would make no changes in existing
law.