[Senate Report 110-159]
[From the U.S. Government Publishing Office]
Calendar No. 357
110th Congress Report
SENATE
1st Session 110-159
======================================================================
QUINEBAUG AND SHETUCKET RIVERS VALLEY NATIONAL HERITAGE CORRIDOR
AMENDMENTS ACT OF 2007
_______
September 17, 2007.--Ordered to be printed
_______
Mr. Bingaman, from the Committee on Energy and Natural Resources,
submitted the following
R E P O R T
[To accompany S. 1182]
The Committee on Energy and Natural Resources, to which was
referred the bill (S. 1182) to amend the Quinebaug and
Shetucket Rivers Valley National Heritage Corridor Act of 1994
to increase the authorization of appropriations and modify the
date on which the authority of the Secretary of the Interior
terminates under the Act, having considered the same, reports
favorably thereon with an amendment and recommends that the
bill, as amended, do pass.
The amendment is as follows:
Strike out all after the enacting clause and insert in lieu
thereof the following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Quinebaug and Shetucket Rivers Valley
National Heritage Corridor Amendments Act of 2007''.
SEC. 2. QUINEBAUG AND SHETUCKET RIVERS VALLEY NATIONAL HERITAGE
CORRIDOR.
(a) Termination of Authority.--Section 106(b) of the Quinebaug and
Shetucket Rivers Valley National Heritage Corridor Act of 1994 (16
U.S.C. 461 note; Public Law 103-449) is amended by striking ``September
30, 2009'' and inserting ``September 30, 2015''.
(b) Evaluation; Report.--Section 106 of the Quinebaug and Shetucket
Rivers Valley National Heritage Corridor Act of 1994 (16 U.S.C. 461
note; Public Law 103-449) is amended by adding at the end the
following:
``(c) Evaluation; Report.--
``(1) In general.--Not later than 3 years before the date on
which authority for Federal funding terminates for the
Corridor, the Secretary shall--
``(A) conduct an evaluation of the accomplishments of
the Corridor; and
``(B) prepare a report in accordance with paragraph
(3).
``(2) Evaluation.--An evaluation conducted under paragraph
(1)(A) shall--
``(A) assess the progress of the management entity
with respect to--
``(i) accomplishing the purposes of this
title for the Corridor; and
``(ii) achieving the goals and objectives of
the management plan for the Corridor;
``(B) analyze the Federal, State, local, and private
investments in the Corridor to determine the leverage
and impact of the investments; and
``(C) review the management structure, partnership
relationships, and funding of the Corridor for purposes
of identifying the critical components for
sustainability of the Corridor.
``(3) Report.--
``(A) In general.--Based on the evaluation conducted
under paragraph (1)(A), the Secretary shall prepare a
report that includes recommendations for the future
role of the National Park Service, if any, with respect
to the Corridor.
``(B) Required analysis.--If the report prepared
under subparagraph (A) recommends that Federal funding
for the Corridor be reauthorized, the report shall
include an analysis of--
``(i) ways in which Federal funding for the
Corridor may be reduced or eliminated; and
``(ii) the appropriate time period necessary
to achieve the recommended reduction or
elimination.
``(C) Submission to congress.--On completion of the
report, the Secretary shall submit the report to--
``(i) the Committee on Energy and Natural
Resources of the Senate; and
``(ii) the Committee on Natural Resources of
the House of Representatives.''.
(c) Authorization of Appropriations.--Section 109(a) of the Quinebaug
and Shetucket Rivers Valley National Heritage Corridor Act of 1994 (16
U.S.C. 461 note; Public Law 103-449) is amended by striking
``$10,000,000'' and inserting ``$15,000,000''.
Purpose
The purpose of S. 1182 is to amend the Quinebaug and
Shetucket Rivers Valley National Heritage Corridor Act of 1994
to increase the appropriation ceiling for the heritage corridor
and to extend the period in which the corridor is authorized to
receive Federal funding.
Background and Need
The Quinebaug and Shetucket Rivers Valley National Heritage
Corridor, located in northeastern Connecticut and
Massachusetts, was first authorized in 1994 (Public Law 103-
449), and was the first national heritage area to be managed by
a non-profit organization, the Quinebaug-Shetucket Heritage
Corridor, Inc.
The Quinebaug and Shetucket Rivers Valley has been called
``The Last Green Valley'' in the sprawling metropolitan Boston-
to-Washington corridor. At night the region appears
distinctively dark amid the urban and suburban glow when viewed
from satellites or aircraft. The green fields and forests
confirm the surprisingly rural character of the 1,085 square-
mile area defined by the Quinebaug and Shetucket Rivers systems
and the rugged hills that surround them. The area includes two
of the most scenic and productive river systems in New England,
more than 80 ponds and lakes with exceptional water qualities
and habitats, 7 state forests, including the largest in
Connecticut, 16 state wildlife management areas, and 5 state
parks. The area is more than ten times the size of Acadia, the
largest national park in the northeast. Forest and farmland
make up more than 70 percent of its 695,000 acres, yet it lies
only an hour from 3 of New England's 4 largest urban areas.
The original heritage corridor only included land in
Connecticut. In 1999, the heritage corridor was expanded to
include additional communities in Connecticut and Massachusetts
(Public Law 106-149). The 1999 amendments also extended the
heritage corridor's original 7-year authorization through 2009,
and its authorization ceiling was increased to $10 million,
consistent with levels established for other national heritage
areas.
In 2006 the management entity for the heritage corridor
adopted a plan entitled The Trail to 2015, a Sustainability
Plan for the Last Green Valley. The plan proposes that the
Federal funding authorization be extended through 2015 to allow
the heritage corridor to ultimately become financially self-
sufficient.
Legislative History
S. 1182 was introduced by Senators Dodd, Lieberman, Kerry,
and Kennedy on April 20, 2007. The Subcommittee on National
Parks held a hearing on the bill on July 12, 2007.
At its business meeting on July 25, 2007, the Committee on
Energy and Natural Resources ordered S. 1182 favorably
reported, with an amendment in the nature of a substitute.
Committee Recommendation
The Committee on Energy and Natural Resources, in open
business session on July 25, 2007, by a voice vote of a quorum
present, recommends that the Senate pass S. 1182, if amended as
described herein.
Committee Amendment
During its consideration of S. 1182, the Committee adopted
an amendment in the nature of a substitute. The amendment
deletes the Congressional findings section and adds a
requirement that the Secretary of the Interior conduct an
evaluation of the heritage corridor not later than three years
before the Federal funding authority terminates. The purpose of
the evaluation is to assess whether the management entity for
the heritage corridor achieved the goals and objectives
identified in the management plan and accomplished the purposes
for which the heritage corridor was established. The Secretary
is required to submit the report to Congress. The amendment is
explained in detail in the section-by-section analysis, below.
Section-by-Section Analysis
Section 1 contains the short title, the ``Quinebaug and
Shetucket Rivers Valley National Heritage Corridor Amendments
Act of 2007''.
Section 2(a) extends the date on which Federal authority
for the heritage corridor terminates from 2009 until 2015.
Subsection (b) amends section 106 of the enabling
legislation (Public Law 103-449) to add a new subsection
requiring the Secretary of the Interior to conduct an
evaluation of the heritage corridor not later than September
30, 2012 (three years before the authority for Federal funding
terminates). The purpose of the evaluation is to assess whether
the management entity for the heritage corridor achieved the
goals and objectives identified in the management plan and
accomplished the purposes for which the heritage corridor was
established. The Secretary is required to submit the report to
the Congressional authorizing committees.
Subsection (c) increases the appropriation ceiling for the
heritage corridor from $10 million to $15 million.
Cost and Budgetary Considerations
The following estimate of costs of this measure has been
provided by the Congressional Budget Office:
August 3, 2007.
Hon. Jeff Bingaman,
Chairman, Committee on Energy and Natural Resources,
U.S. Senate, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for S. 1182, the Quinebaug
and Shetucket Rivers Valley National Heritage Corridor
Amendments Act of 2007.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Daniel
Hoople.
Sincerely,
Peter R. Orszag.
Enclosure.
S. 1182--Quinebaug and Shetucket Rivers Valley National Heritage
Corridor Amendments Act of 2007
S. 1182 would authorize the appropriation of an additional
$5 million to the National Park Service (NPS) to provide grants
and technical assistance to state and local governments for the
maintenance and enhancement of the Quinebaug and Shetucket
Rivers Valley National Heritage Corridor and extend the
authorization period through 2015. Assuming the appropriation
of the specified funds, CBO estimates that implementing S. 1182
would cost $3 million over the 2010-2012 period and $3 million
after 2012. Enacting the legislation would not affect direct
spending or revenues.
S. 1182 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act. State
and local governments could benefit from continued grants and
technical assistance under the bill.
In 1999, the Congress authorized the appropriation of up to
$1 million in each year through 2009 (up to $10 million total)
for the Quinebaug and Shetucket Rivers Valley National Heritage
Corridor (see Public Law 106-149). According to the NPS, the
Congress has appropriated about $6 million for the Corridor
through 2007. S. 1182 would increase the total amount
authorized to be appropriated for the Corridor to $15 million,
but would not change the $1 million maximum per year. As such,
CBO estimates that implementing S. 1182 would have no effect in
2008 and 2009 because current law already authorizes funding
for those years. This estimate assumes the appropriation of $1
million in each year (the maximum amount authorized under the
bill) from 2010 through 2015.
The CBO staff contact for this estimate is Daniel Hoople.
This estimate was approved by Peter H. Fontaine, Deputy
Assistant Director for Budget Analysis.
Regulatory Impact Evaluation
In compliance with paragraph 11(b) of rule XXVI of the
Standing Rules of the Senate, the Committee makes the following
evaluation of the regulatory impact which would be incurred in
carrying out S. 1182. The bill is not a regulatory measure in
the sense of imposing Government-established standards or
significant economic responsibilities on private individuals
and businesses.
No personal information would be collected in administering
the program. Therefore, there would be no impact on personal
privacy.
Little, if any, additional paperwork would result from the
enactment of S. 1182, as ordered reported.
Executive Communications
The testimony provided by the Department of the Interior at
the July 12, 2007 Subcommittee hearing follows:
Statement of Katherine H. Stevenson, Assistant Director, Business
Services, National Park Service, Department of the Interior
Mr. Chairman, thank you for the opportunity to appear
before your committee to present the views of the Department of
the Interior on S. 1182, a bill to amend the Quinebaug and
Shetucket Rivers Valley National Heritage Corridor Act of 1994.
S. 1182 would increase the ceiling on appropriations to the
heritage area from $10,000,000 to $15,000,000 and extend the
termination date of the Secretary of the Interior's financial
commitment from September 30, 2009 to September 30, 2015.
The Department believes it is premature to consider S. 1182
based on the fact that the Quinebaug and Shetucket Rivers
Valley National Heritage Corridor has two years remaining on
its authorization and the Department also would like time to
review and make recommendations on the evaluation recently
completed by the Corridor that details its accomplishments and
provides a plan for its future. Therefore, the Department
opposes S. 1182 at this time.
Less than a year ago, there were 27 heritage areas. Today,
there are 37. Our understanding is that national heritage areas
are locally driven grassroots efforts to preserve resources
that were intended to operate independent of Federal funding at
the end of the authorization period. While the National Park
Service would continue to support the heritage areas through
technical assistance, the heritage areas were to be largely
self-sufficient after an initial period of financial assistance
from NPS. This was the understanding, particularly for those
heritage areas created or reauthorized since 1996.
The Quinebaug and Shetucket Rivers Valley National Heritage
Corridor, also known as The Last Green Valley, was authorized
in 1994 and comprised 25 communities in northeastern
Connecticut. It began receiving federal funding in 1996 with
appropriations through 2007 totaling $6,303,750. It became the
first national heritage area to be managed by a non-profit
organization, the Quinebaug-Shetucket Heritage Corridor, Inc.
Its first plan, Vision to Reality: A Management Plan, was
completed in 1997.
In 1999, the Quinebaug and Shetucket Rivers Valley National
Heritage Corridor (QSHC) was expanded to include 10 additional
communities in its watershed in Connecticut and Massachusetts,
making it the second bi-state national heritage area in the
country. At the same time, its original seven-year
authorization was extended through 2009 and a new ceiling of
$10,000,000 was authorized with an annual amount not to exceed
$1,000,000, in keeping with other similar national heritage
areas. At that time, Vision 2010: A Plan for the Next Ten Years
was completed, along with the Interpretive Initiative for the
Quinebaug and Shetucket Rivers Valley National Heritage
Corridor. With the additional federal investment and larger
regional focus, many successful programs were initiated.
The National Park System Advisory Board in its report
entitled Charting a Future for National Heritage Areas
recognized the important role of national heritage areas in
expanding conservation stewardship and in identifying and
preserving significant historic resources. The report also
recognized that national heritage areas need a legislative
foundation that establishes a clear process for designation,
administration, and evaluation to become self-sufficient.
The Administration's proposal for national heritage area
program legislation, which was transmitted to Congress in July
2006, would provide such a framework. Bills were introduced in
the 109th Congress (S. 243, H.R. 760 and H.R. 6287) that
incorporated the majority of the provisions of the
Administration's proposal, and S. 243 passed the Senate. During
the 110th Congress, a similar heritage area program bill, S.
278, has been introduced.
The proposed legislative framework recommended that, three
years prior to the cessation of Federal funding, the Secretary
conduct an evaluation and prepare a report on the
accomplishments, sustainability, and recommendations, if any,
for the future of a designated national heritage area. This
evaluation would examine the accomplishments of the heritage
area in meeting the goals of the management plan; analyze the
leveraging and impact of investments to the heritage area;
identify the critical components of the management structure
and sustainability of the heritage area; and recommend what
future role, if any, the NPS should have with respect to the
heritage area.
Under its existing authorization, the QSHC will continue to
receive annual federal funding for two more years. During last
year's hearing on another reauthorization bill for the area,
the Department recommended that the area begin to evaluate how
it will sustain its efforts to protect resources when federal
funding ends in 2009. To this end, the QSHC has recently
completed an evaluation on the heritage area that included
extensive public input during the process, but the NPS has not
had a chance to officially review the study.
The nearly 1,100-square miles of The Last Green Valley
provide a challenge to cohesive and engaging regional
interpretation of natural and historical resources. Over the
past several years, QSHC has developed a number of interpretive
strategies to educate residents and visitors alike, while
providing an entertaining base from which to generate tourism.
For example, Last Green Valley Ventures is a program that (1)
circulates people and information throughout the region; (2)
provides adequate visitor services, orientation to The Last
Green Valley and interpretation of the many regional themes;
(3) assures quality, consistency and hospitality; and (4)
collects important statistical data to inform future marketing
and programming. The program combines current assets of The
Last Green Valley, the compendium of existing research and
support brochures, the complimenting businesses offering unique
experiences, and partners from public and private sectors into
one cohesive product.
Last Green Valley Ventures also dovetails with an on-line
educational resources guide, Valley Quest, used by regional
educators, parents and youth group leaders to educate and
inspire the future stewards of the QSHC.
Mr. Chairman, thank you for the opportunity to comment.
This concludes my prepared remarks and I will be happy to
answer any questions you or other committee members might have.
Changes in Existing Law
In compliance with paragraph 12 of rule XXVI of the
Standing Rules of the Senate, changes in existing law made by
S. 1182, as ordered reported, are shown as follows (existing
law proposed to be omitted is enclosed in black brackets, new
matter is printed in italic, existing law in which no change is
proposed is shown in roman):
Public Law 103-449--Nov. 2, 1994; 16 U.S.C. 461 Note
AN ACT To establish the Quinebaug and Shetucket Rivers Valley National
Heritage Corridor in the State of Connecticut and the Commonwealth of
Massachusetts, and for other purposes
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled,
TITLE I--QUINEBAUG AND SHETUCKET RIVERS VALLEY NATIONAL HERITAGE
CORRIDOR
SECTION 101. SHORT TITLE.
This title may be cited as the ``Quinebaug and Shetucket
Rivers Valley National Heritage Corridor Act of 1994.''
* * * * * * *
SEC. 106. DUTIES OF THE SECRETARY.
(a) Assistance.--The Secretary and the heads of other
Federal agencies shall, upon request of the management entity
assist the management entity in the implementation of the plan.
Such assistance shall include providing funds authorized under
section 109 and technical assistance necessary to carry out
this Act.
(b) Termination of Authority.--The Secretary may not make
any grants or provide any assistance under this act after
[September 30, 2009] September 30, 2015.
(c) Evaluation; Report.--
(1) In general.--Not later than 3 years before the
date on which authority for Federal funding terminates
for the Corridor, the Secretary shall--
(A) conduct an evaluation of the
accomplishments of the Corridor; and
(B) prepare a report in accordance with
paragraph (3).
(2) Evaluation.--An evaluation conducted under
paragraph (1)(A) shall--
(A) assess the progress of the management
entity with respect to--
(i) accomplishing the purposes of
this title for the Corridor; and
(ii) achieving the goals and
objectives of the management plan for
the Corridor.
(B) analyze the Federal, State, local, and
private investments in the Corridor to
determine the leverage and impacts of the
investments; and
(C) review the management structure,
partnership relationships, and funding of the
Corridor for purposes of identifying the
critical components for sustainability of the
Corridor.
(3) Report.--
(A) In general.--Based on the evaluation
conducted under paragraph (1)(A), the Secretary
shall prepare a report that includes
recommendations for the future role of the
National Park Service, if any, with respect to
the Corridor.
(B) Required analysis.--If the report
prepared under subsection (A) recommends that
Federal funding for the Corridor be
reauthorized, the report shall include an
analysis of--
(i) ways in which Federal funding for
the Corridor may be reduced or
eliminated; and
(ii) the appropriate time period
necessary to achieve the recommended
reduction or elimination.
(C) Submission to congress.--On completion of
the report, the Secretary shall submit the
report to----
(i) the Committee on Energy and
Natural Resources of the Senate; and
(ii) the Committee on Natural
Resources of the House of
Representatives.
* * * * * * *
SEC. 109. AUTHORIZATION OF APPROPRIATIONS.
(a) In General.--There is authorized to be appropriated
under this title not more than $1,000,000 for any fiscal year.
Not more than a total of [$10,000,000] $15,000,000 may be
appropriated for the Corridor under this title after the date
of enactment of the Quinebaug and Shetucket Rivers Valley
National Heritage Corridor Reauthorization Act of 1999.
(b) Fifty Percent Match.--Federal funding provided under
this title may not exceed 50 percent of the total cost of any
assistance or grant provided or authorized under this title.
* * * * * * *