[Senate Report 117-84]
[From the U.S. Government Publishing Office]


                                                      Calendar No. 285
117th Congress       }                            {           Report
                                 SENATE
 2d Session          }                            {           117-84

======================================================================



 
                    CHILKOOT NATIONAL HISTORIC TRAIL

                                _______
                                

               February 28, 2022.--Ordered to be printed

                                _______
                                

         Mr. Manchin, from the Committee on Energy and Natural 
                   Resources, submitted the following

                              R E P O R T

                         [To accompany S. 1354]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 1354), to amend the National Trails 
System Act to designate the Chilkoot National Historic Trail 
and to provide for a study of the Alaska Long Trail, and for 
other purposes, having considered the same, reports favorably 
thereon with amendments and recommends that the bill, as 
amended, do pass.

                               Amendments

    The amendments are as follows:
    On page 2, lines 3 through 5, strike
``a traditional gold rush route of approximately 16.5 miles 
within the Klondike Gold Rush National Historical Park'' and 
insert ``an approximately 16.5-mile route within the Klondike 
Gold Rush National Historical Park that was traditionally used 
as a trading route by the Tlingit Indian Tribe and Tagish First 
Nation and as a gold rush route''.
    On page 4, line 9, insert
``, including evaluating the potential impacts of the trail on 
rights-of-way, existing rights, or other recreational uses of 
the land proposed to be used for the trail'' after 
``subparagraph (A)''.

                                Purpose

    The purpose of S. 1354 is to amend the National Trails 
System Act to designate the Chilkoot National Historic Trail in 
Alaska and to provide for a study of the Alaska Long Trail.

                          Background and Need

    National Historic Trails recognize original trails or 
routes of travel of national historic significance, including 
past routes of exploration, migration, and military action. 
National Historic Trails and National Scenic Trails are 
authorized pursuant to the National Trails System Act of 1968 
(16 U.S.C. 1241 et seq.).
    The Chilkoot Trail is a 33-mile recreational trail 
connecting Dyea, Alaska, to Bennett, British Columbia. This 
trail once served as a Tlingit trading route and a gold rush 
route from 1897 to 1898 during the Klondike Gold Rush. S. 1354 
would designate the Alaska section as a National Historic 
Trail.
    The Alaska Long Trail is a proposed 500-mile route 
connecting Seward to Fairbanks. Many sections of the proposed 
trail already exist or are currently planned, and the route is 
almost entirely on public land. S. 1354 would amend the 
National Trails System Act (16 U.S.C. 1244(c)) to authorize the 
Secretary of the Interior, acting through the Director of the 
Bureau of Land Management, to conduct a study of the 
feasibility of designating the Alaska Long Trail as a National 
Scenic Trail. National Scenic Trails are continuous, extended 
routes of outdoor recreation within protected corridors.

                          Legislative History

    Senator Murkowski introduced S. 1354 on April 22, 2021. The 
Subcommittee on National Parks held a hearing on the bill on 
June 23, 2021.

                        Committee Recommendation

    The Senate Committee on Energy and Natural Resources, in 
open business session on November 18, 2021, by a majority voice 
vote of a quorum present, recommends that the Senate pass S. 
1354, if amended as described herein.

                          Committee Amendments

    During its consideration of S. 1354, the Committee adopted 
two clarifying amendments to the bill. The first amendment 
changes the description of the Chilkoot National Historic Trail 
in subparagraph (A) to include the fact that it was used as a 
trading route by the Tlingit Indian Tribe and Tagish First 
Nation in addition to being a gold rush route. The second 
amendment requires the Secretary to consider impacts on rights-
of-way, existing rights, or other recreational uses of the land 
when conducting the feasibility study for the Alaska Long 
Trail.

                      Section-by-Section Analysis


Section 1. Short title

    This section provides the short title of the bill, the 
``Alaska Trails Act''.

Sec. 2. Designation of the Chilkoot National Historical Trail

    Section 2 amends section 5(a) of the National Trails System 
Act (16 U.S.C. 1244(a)) by adding a new paragraph designating 
the Chilkoot National Historic Trail, a route of approximately 
16.5 miles within the Klondike Gold Rush National Historical 
Park that was used as a trading route by the Tlingit Tribe and 
Tagish First Nation in addition to being a traditional gold 
rush route, to be administered by the Secretary of the 
Interior.
    The section provides that the national historic trail 
designation will not affect any authorities under Public Law 
94-323 (16 U.S.C. 410bb et seq.), which established the 
Klondike Gold Rush National Historical Park.
    The section permits the Secretary of the Interior to 
coordinate with public and non-governmental organizations and 
universities in the U.S. and Canada, Alaska Native 
Corporations, and with the Canadian government to exchange 
information and research relating to the Chilkoot National 
Historic Trail, support preservation and educational programs, 
provide technical assistance, and work to establish an 
international historic trail that provides complementary 
preservation and education programs in the U.S. and Canada.

Section 3. Alaska Long National Scenic Trail Study

    Section 3 amends section 5(c) of the National Trails System 
Act (16 U.S.C. 1244(c)) by adding a new paragraph authorizing a 
study of the ``Alaska Long Trail,'' a route of approximately 
500 miles from Seward, Alaska to Fairbanks, Alaska.
    The Secretary is required to study the feasibility of 
designating the trail and evaluate the potential impacts of the 
trail on rights-of-way, existing rights, or other recreational 
uses of the land proposed to be used for the trail.
    The section requires the Secretary to conduct the study in 
consultation with the Forest Service, the State of Alaska and 
units of local governments, the Alaska Native Corporations, and 
representatives of the private sector, including an entity that 
holds a permit issued by the Federal Energy Regulatory 
Commission.

                   Cost and Budgetary Considerations

    The Congressional Budget Office has not estimated the costs 
of S. 1354 as passed by the Senate. The Committee has 
requested, but has not yet received, the Congressional Budget 
Office's estimate of the cost of S. 1354 as ordered reported. 
When the Congressional Budget Office completes its cost 
estimate, it will be posted on the Internet at www.cbo.gov.

                      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. 1354. 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. 1354, as ordered reported.

                   Congressionally Directed Spending

    S. 1354, as ordered reported, does not contain any 
congressionally directed spending items, limited tax benefits, 
or limited tariff benefits as defined in rule XLIV of the 
Standing Rules of the Senate.

                        Executive Communications

    The testimony provided by the Department of the Interior at 
the June 16, 2021, hearing on S. 1354 follows:

    Statement of Michael Caldwell, Acting Associate Director, Park 
Planning, Facilities and Lands, National Park Service, U.S. Department 
                            of the Interior

    Chairman King, Ranking Member Daines, and members of the 
Subcommittee, thank you for the opportunity to provide the 
Department of the Interior's views on S. 1354, a bill to amend 
the National Trails System Act to designate the Chilkoot 
National Historic Trail and to provide for a study of the 
Alaska Long Trail, and for other purposes.
    The Department supports the designation of the Chilkoot 
National Historic Trail, as provided for by Section 2 of S. 
1354. The Department supports with an amendment the 
authorization of a feasibility study for designating the Alaska 
Long Trail as a national scenic trail, as provided for by 
Section 3 of the bill.
    Section 2 would amend the National Trails System Act (16 
USC 1244(a)) to designate the Chilkoot Trail within Klondike 
Gold Rush National Historical Park as a National Historic 
Trail. The trail would be administered by the Secretary of the 
Interior and a provision in the bill ensures that the 
designation of the trail would not affect any authorities 
provided under Public Law 94-323 (16 USC 410bb et seq), the act 
that established Klondike Gold Rush National Historical Park. 
S. 1354 also authorizes the Secretary of the Interior to 
coordinate with organizations and institutions of higher 
education in the US and Canada, Alaska Native Corporations, 
and, in consultation with the Secretary of State, the 
Government of Canada for the purposes of exchanging 
information, supporting the trail, providing technical 
assistance, and working to establish an international historic 
trail.
    National Historic Trails, part of the National Trails 
System, identify and protect travel routes of national historic 
significance for public use and enjoyment. The designation of 
the Chilkoot Trail as a National Historic Trail is appropriate 
not only because of the physical artifacts remaining in place 
on the trail, but also the universal story of struggle, 
perseverance, and hope that the trail embodies. The historic 
and economic impacts of the gold rush are far reaching, and the 
Klondike legacy is still relevant today. The trail was 
traditionally used as a trading route by Tlingit (Alaska 
Native) and Tagish (Canadian First Nation) tribes and continues 
to beckon a variety of hikers from local Alaskans exploring 
their ``backyard'' to international visitors who are looking to 
experience a world-class hiking destination. Already co-managed 
with Parks Canada, a National Historic Trail designation would 
highlight both the national and international role that this 
trail played and continues to play today. The trail receives 
3,500 through-hikers and 12,000 day-hikers originating from 
Skagway.
    Section 3 would amend the National Trails System Act (16 
USC 1244 (c)) to authorize the Secretary of the Interior, 
acting through the Director of the Bureau of Land Management, 
to conduct a study of the feasibility of designating the Alaska 
Long Trail as a National Scenic Trail. The proposed Alaska Long 
Trail would extend approximately 500 miles from Seward, Alaska 
to Fairbanks, Alaska. S. 1354 directs the Secretary to conduct 
the study in consultation with the Secretary of Agriculture, 
the State of Alaska, local governments in Alaska, Alaska Native 
Corporations, and representatives of the private sector, 
including those that hold Federal Energy Regulatory Commission 
permits.
    National Scenic Trails, another type of trail within the 
National Trails System, display significant characteristics of 
the nation's physiographic regions. They provide for outdoor 
recreation and for the conservation and enjoyment of scenic, 
historic, natural or cultural qualities. While the Department 
supports authorizing this feasibility study, we would like to 
give further consideration to the question of which Federal 
land management agency is most appropriate to conduct the 
study, as it would likely involve lands managed by the U.S. 
Forest Service, the National Park Service, and the Bureau of 
Land Management. We would like to work with the bill sponsor 
and the Committee on an amendment for that purpose. Regardless 
of which agency conducts the study, that agency will be 
required to consult with all other affected land management 
agencies, as provided for in the National Trails System Act (16 
USC 1244(b)).
    Chairman King, that concludes my statement. I would be 
happy to answer any questions you or other members of the 
Subcommittee may 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 
the bill S. 1354, 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 90-543


 AN ACT To establish a national trails system, and for other purposes.

    Be it enacted by the Senate and House of Representatives of 
the United States of America in Congress assembled,

                              SHORT TITLE

    Section 1. This Act may be cited as the ``National Trails 
System Act''.

           *       *       *       *       *       *       *


             NATIONAL SCENIC AND NATIONAL HISTORICAL TRAILS

    Sec. 5. (a) National scenic and national historic trails 
shall be authorized and designated only by Act of Congress. 
There are hereby established the following National Scenic and 
National Historic Trails:

           *       *       *       *       *       *       *

          (31) Chilkoot National Historic Trail.--
                  (A) In general.--The Chilkoot National 
                Historic Trail, a traditional gold rush route 
                of approximately 16.5 miles within the Klondike 
                Gold Rush National Historical Park, as 
                generally depicted on the map entitled 
                ``Proposed Chilkoot National Historic Trail'', 
                numbered KLGO-461-173787, and dated October 
                2020.
                  (B) Availability of map.--The map described 
                in subparagraph (A) shall be on file and 
                available for public inspection in the 
                appropriate offices of the National Park 
                Service.
                  (C) Administration.--The Chilkoot National 
                Historic Trail shall be administered by the 
                Secretary of the Interior.
                  (D) Effect.--The designation of the Chilkoot 
                National Historic Trail shall not affect any 
                authorities under Public Law 94-323 (16 U.S.C. 
                410bb et seq.).
                  (E) Coordination of activities.--The 
                Secretary of the Interior may coordinate with 
                public and nongovernmental organizations and 
                institutions of higher education in the United 
                States and Canada, Alaska Native Corporations, 
                and, in consultation with the Secretary of 
                State, the Government of Canada and any 
                political subdivisions of the Government of 
                Canada for the purposes of--
                          (i) exchanging information and 
                        research relating to the Chilkoot 
                        National Historic Trail;
                          (ii) supporting the preservation of, 
                        and educational programs relating to, 
                        the Chilkoot National Historic Trail;
                          (iii) providing technical assistance 
                        with respect to the Chilkoot National 
                        Historic Trail; and
                          (iv) working to establish an 
                        international historic trail 
                        incorporating the Chilkoot National 
                        Historic Trail that provides for 
                        complementary preservation and 
                        education programs in the United States 
                        and Canada.

           *       *       *       *       *       *       *

    (c) The following routes shall be studied in accordance 
with the objectives outlined in subsection (b) of this section:

           *       *       *       *       *       *       *

          (48) Alaska Long Trail.--
                  (A) In general.--The Alaska Long Trail, 
                extending approximately 500 miles from Seward, 
                Alaska, to Fairbanks, Alaska.
                  (B) Requirement.--The Secretary of the 
                Interior, acting through the Director of the 
                Bureau of Land Management (referred to in this 
                paragraph as the ``Secretary''), shall study 
                the feasibility of designating the trail 
                described in subparagraph (A).
                  (C) Consultation.--The Secretary shall 
                conduct the study under this paragraph in 
                consultation with--
                          (i) the Secretary of Agriculture, 
                        acting through the Chief of the Forest 
                        Service;
                          (ii) the State of Alaska;
                          (iii) units of local government in 
                        the State of Alaska;
                          (iv) Alaska Native Corporations; and
                          (v) representatives of the private 
                        sector, including any entity that holds 
                        a permit issued by the Federal Energy 
                        Regulatory Commission.

           *       *       *       *       *       *       *


                                  [all]