29–010

Calendar No. 725

108TH CONGRESS REPORT " SENATE ! 2d Session 108–366

NEW JERSEY COASTAL HERITAGE TRAIL ROUTE ACT 

SEPTEMBER 28, 2004.—Ordered to be printed 

Mr. DOMENICI, from the Committee on Energy and Natural 

Resources, submitted the following 

R E P O R T 

[To accompany S. 2142] 

The Committee on Energy and Natural Resources, to which was 

referred the bill (S. 2142) to authorize appropriations for the New 

Jersey Coastal Heritage Trail Route, and for other purposes, having considered the same, reports favorably thereon without amendment and recommends that the bill do pass. 

PURPOSE OF THE MEASURE

The purpose of S. 2142 is to authorize appropriations for the New 

Jersey Coastal Heritage Trail for an additional five years and to increase the appropriation ceiling to $8,000,000. 

BACKGROUND AND NEED

In 1988 Congress passed legislation authorizing the New Jersey 

Coastal Heritage Trail Route (Public Law 100–515; 16 U.S.C. 1244 

note). This legislation authorized a route that links nationally significant natural and cultural sites and internationally significant 

habitats for migratory birds along the coastal areas of New Jersey. 

The New Jersey Coastal Heritage Trail Route (Route) runs south 

for 300 miles from Perth Amboy along the Atlantic Ocean to Cape 

May and then west along the Delaware Bay to the Delaware Memorial Bridge. The Route is currently operated as an affiliated area 

of the National Park System, with the National Park Service providing technical assistance to the State of New Jersey and various 

private and community-based organizations. Non-Federal funds 

provide at least fifty percent of the funding for the Route and no 

Federal funds are used for the operations, maintenance or repair 

of any road structure. 

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Three of the five theme routes proposed for the Route are currently open. They showcase aspects of New Jersey coastal life such 

as maritime history, wildlife migration and coastal wildlife habitats. The two remaining trails are based on the themes of historic 

settlements and inspiration and are under development. Overall, 

sixty destinations are linked under the five interpretive themes. 

Several other projects are also planned to enhance the coastal 

trail. These projects include: construction of a New Jersey State 

Park facility on the trail at Double Trouble State Park; continuing 

construction on the Welcome Center at Sandy Hook and construction of a Welcome Center in the Absecon region; and the development of interpretive media, including brochures, videos and exhibits. 

S. 2142 would increase the current authorization for appropriation from $4 million to $8 million. The bill would also extend the 

deadline for the completion of the project from May 2004 until May 

2009. Under S. 2142, the National Park Service would be required 

to complete a strategic plan for the long term maintenance of the 

coastal route. Finally the bill would increase the advisory role of 

the National Park Service to include the authority to award grants 

to the Route. 

LEGISLATIVE HISTORY

S. 2142 was introduced by Senators Lautenberg and Corzine on 

February 27, 2004. A companion bill, H.R. 3070, was introduced in 

the House of Representatives on September 10, 2003, by Representative LoBiondo. The Committee on Energy and Natural Resources’

Subcommittee on National Parks held a hearing on S. 2142 on July 

15, 2004. At the business meeting on September 15, 2004, the Committee on Energy and Natural Resources ordered S. 2142 favorably 

reported without amendment. 

COMMITTEE RECOMMENDATION

The Senate Committee on Energy and Natural Resources, in an 

open business session on September 15, 2004, by a unanimous 

voice vote of a quorum present, recommends that the Senate pass 

S. 2142. 

SECTION-BY-SECTION ANALYSIS

Section 1(a) amends section 6 of Public Law 100–515 (16 U.S.C. 

1244 note) by increasing the amount of authorized appropriations 

from $4,000,000 to $8,000,000, and by extending the deadline for 

project completion from 10 to 15 years. 

Subsection (b) amends section 6 of Public Law 100–515 (16 

U.S.C. 1244 note) by granting the Department of the Interior the 

authority to make grants, subject to the availability of appropriations, to assist with the development of interpretive materials and 

conservation methods for the Route. 

Subsection (c) requires that the Secretary of the Interior prepare 

a strategic plan for the Route. This section also details the contents 

and administrative requirements of the strategic plan. 

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COST AND BUDGETARY CONSIDERATIONS

The following estimate of the cost of this measure has been provided by the Congressional Budget Office.

S. 2142—A bill to authorize appropriations for the New Jersey 

Coastal Heritage Trail Route, and for other purposes 

S. 2142 would increase the existing authorization of appropriations for developing the Coastal Heritage Trail Route in New Jersey from $4 million to $8 million and extend the authorization period for such activities for an additional five years. Assuming appropriation of the authorized amounts, CBO estimates that the federal government would spend $4 million over the 2005–2009 period 

to implement the bill. Enacting the bill would not affect direct 

spending or revenues. 

S. 2142 contains no intergovernmental or privates-sector mandates as defined in the Unfunded Mandates Reform Act and would 

impose no costs on state, local, or tribal governments. 

The CBO staff contact for this estimate is Lisa Cash Driskill. 

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. 2142. 

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. 2142. 

EXECUTIVE COMMUNICATIONS

On July 6, 2004, the Committee on Energy and Natural Resources requested legislative reports from the Department of the 

Interior and the Office of Management and Budget setting forth 

Executive agency recommendations on S. 2142. These reports had 

not been received when this report was filed. The testimony provided by the Department of the Interior at the Subcommittee hearing on S. 2142 follows:

STATEMENT OF A. DURAND JONES, DEPUTY DIRECTOR, 

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. 2142, a bill to authorize appropriations for the New Jersey Coastal Heritage Trail Route 

and for other purposes. The Department supports the bill 

if amended to strike the new grant making authority and 

if the Secretary prepares the strategic plan in partnership 

with the State. Funding for the trail for fiscal year 2005 

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is included within the President’s Budget, pending reauthorization of the trail. 

S. 2142 has four main objectives. First, it would extend 

the authority for National Park Service participation in 

the New Jersey Coastal Heritage Trail Route for five years 

from May 2004 to May 2009. Second, it would increase the 

appropriations authorized for the trail from $4 million to 

$8 million. Third, it would require a strategic plan to be 

completed within four years that both describes opportunities to increase participation by national and local private 

and public interests in the planning, development, and administration of the New Jersey Coastal Heritage Trail 

Route and that outlines organizational options for sustaining the trail. Finally, it authorizes the Secretary to 

provide grants, subject to the availability of appropriations, to partners managing designated trail designations. 

The Department is opposed to the grant making authority provision contained in S. 2142. We cannot support this 

new Federal funding commitment at a time when we are 

trying to focus our available resources on taking care of existing National Park Service responsibilities. In addition, 

projects within the region may qualify for current competitive grant programs such as the Land and Water Conservation Fund; Save America’s Treasures; Rivers, Trails 

and Conservation Assistance program; and the newly proposed Preserve America initiative. 

The strategic plan authorized in S. 2142 could be an important tool to help the trail develop a long-term management strategy that includes creating a self-sustaining 

funding mechanism that does not depend indefinitely on 

operational funding from the National Park Service. We 

would recommend that the bill be amended to require this 

strategic plan to be done in partnership with the State. 

Reauthorization of the trail would enable the National 

Park Service to complete implementation of the trail plan, 

as supported by the public and our partners in the Implementation Guide, a blueprint for overall trail development. 

Without additional time and funding, the New Jersey 

Coastal Heritage Trail Route will be left incomplete. Commitments to trail partners would go unfulfilled, and many 

additional natural and cultural resources would not receive the partnership assistance leveraged by the trail that 

supports public awareness and stewardship through this 

program. Implementation of the plan is also critical in 

building a base of sustainable partners and developing a 

strategy for the longterm management of the trail. 

The Act of October 20, 1988, as amended in 1994 and 

1999, authorized the Secretary to designate a vehicular 

tour route in coastal New Jersey and to prepare an inventory of sites along the route. An interpretive program was 

also mandated to provide for public appreciation, education, understanding and enjoyment of important fish and 

wildlife habitats, geologic and geographical landforms, cultural resources, and migration routes in coastal New Jersey. The Secretary was authorized to provide technical asVerDate Aug 04 2004 11:31 Sep 30, 2004 Jkt 029010 PO 00000 Frm 00004 Fmt 6659 Sfmt 6969 E:\HR\OC\SR366.XXX SR366
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sistance, prepare and distribute information, and erect 

signs along the route. The trail links national wildlife refuges, national parklands, National Historic Landmarks, 

and National Register sites with important historic communities, state parks, natural areas, and other resources 

to tell the story of New Jersey’s role in shaping U.S. history and in providing internationally important habitats 

for bird and other migrations. 

The trail, an affiliated area of the National Park System, 

is a partnership among the National Park Service; the 

State of New Jersey through its Department of Environmental Protection, Commerce and Economic Growth Commission, and Pinelands Commission; and many local government and private non-profit partners. Through interpretation of five themes (Maritime History, Coastal Habitats, Wildlife Migration, Relaxation & Inspiration, and 

Historic Settlements), the trail brings attention to important natural and cultural resources along coastal New Jersey. The trail demonstrates the potential of new public/private partnerships that allow the National Park Service to 

meet its core mission of natural and cultural resource 

preservation along with interpretation and public education in a cost-efficient manner through technical assistance while reducing operational responsibilities. No Federal funds are used for operations, maintenance, or repair 

of any road or related structure. 

The trail has been authorized an appropriation of not 

more than $4,000,000 to carry out its purposes during the 

ten years between 1994 and May 2004. The $3.9 million in 

Federal support between 1994 and 2004 included $1.2 million in development funding and $2.3 million in National 

Park Service operational support. The trail has received 

$1.9 million in cash grants and $3.6 million in selected inkind contributions and partnership support, well exceeding 

the one-to-one matching requirement established by the 

1994 amendments. Since the authorization ceiling has almost been met, the Department supports increasing the 

ceiling by an additional $4 million. 

The New Jersey Coastal Heritage Trail Route has special value to the National Park Service. With over 10 years 

of experience behind it, it serves as a model for successful 

partnerships among the Federal government, state and 

local governments, and partner organizations. Instead of 

traditional Federal ownership, the Trail uses technical assistance through interpretation as the protection strategy 

for the resources along the 300 miles of New Jersey coastline where people continue to live and work. Land ownership and day-to-day operations remain with the partner organizations and agencies. It is an example of an integrated 

system of local, state, and Federal partnership cooperation 

with people working on a state-wide level to promote preservation and stewardship of resources as well as economic 

development strategies. It is an excellent example of the 

‘‘seamless network of parks’’ strategy encouraged by the 

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Department. The costs are very modest when compared to 

the management expense of national park units. 

For example, the Delsea Region Welcome Center for the 

trail is located at Fort Mott State Park. The State contributed workspace, rehabilitated the building, assisted with 

exhibit development, and has operated and staffed the facility since it opened in 1993. The National Park Service 

assisted by developing exhibits for both the park and for 

the trail, and by preparing an audio-visual orientation program. Attendance at Fort Mott has nearly quadrupled 

since becoming a trail destination and Welcome Center. 

The trail produces brochures and a web page that provide national visibility to destinations and resources that 

might otherwise be overlooked. Over sixty destinations are 

linked under the five interpretive themes. All trail destinations provide their own management, staffing, and public 

programs. The trail supports ecotourism and heritage tourism initiatives in New Jersey where tourism is the second 

largest employer, creating over 400,000 jobs in 2003 and 

bringing in $26 billion in tourism-related expenditures. 

Last year over 50 million visits were made to the New Jersey shore regions—a huge audience for the awareness, 

preservation, and stewardship message of the trail. Millions of visitors go to the New Jersey Shore to enjoy the 

beaches in the summer. The trail not only provides rainy 

day alternatives for tourists, but it also extends the summer season and provides additional year-round opportunities for both residents and visitors who visit the Jersey 

Shore on an annual basis. 

The trail has also supported cutting edge environmental 

and migratory habitat research through two National Park 

Foundation grant projects in partnership with New Jersey 

Audubon using Doppler radar and acoustic sound recordings to track nighttime songbird migration through New 

Jersey. This is critical as New Jersey lies along the migratory Atlantic Flyway, and the Delaware Bayshore region of 

New Jersey is designated as a Ramsar Treaty Wetland of 

International Importance component of the Western Hemisphere Shorebird Reserve Network, and a site in the Nature Conservancy’s Last Great Places Program. 

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. 2142, 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): 

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Public Law 101–515

AN ACT To provide for the establishment of the Coastal Heritage Trail Route in 

the State of New Jersey, and for other purposes 

Be it enacted by the Senate and House of Representatives of the 

United States of America in Congress assembled, 

SECTION 1. DESIGNATION OF NEW JERSEY COASTAL HERITAGE TRAIL 

ROUTE. 

In order to provide for public appreciation, education, understanding, and enjoyment, through a coordinated interpretive program of certain nationally significant natural and cultural sites associated with the coastal area of the State of New Jersey that are 

accessible generally by public road, the Secretary of the Interior 

(hereinafter referred to as the ‘‘Secretary’’), acting through the Director of the National Park Service, with the concurrence of the 

agency having jurisdiction over such roads, is authorized to designate, by publication of a map or other description thereof in the 

Federal Register, a vehicular tour route along existing public roads 

linking such natural and cultural sites in New Jersey. Such route 

shall be known as the New Jersey Coastal Heritage Trail Route 

(hereinafter referred to as the ‘‘route’’). 

* * * * * * *

SEC. 4. PUBLIC APPRECIATION. 

With respect to sites linked by segments of the route which are 

administered by other Federal, State, local nonprofit or private entities, the Secretary is authorized, pursuant to cooperative agreements with such entities, to provide technical assistance in and, 

subject to the availability of appropriations, grants for, the development of interpretive devices and materials and conservation methods regarding the resources enumerated in section 3 in order to 

contribute to public appreciation, understanding and conservation 

of the natural and cultural resources of the sites along the route. 

The Secretary, in cooperation with State and local governments, 

and other public and private entities, shall prepare and distribute 

informational material for the public appreciation of sites along the 

route. 

* * * * * * *

SEC. 6. AUTHORIZATION OF APPROPRIATIONS. 

(a) There are authorized to be appropriated to the Secretary not 

more than $250,000 to carry out the purposes of this Act. No funds 

made available under this Act shall be used for the operation, 

maintenance, or repair of any road or related structure. 

(b)(1) Notwithstanding the provisions of subsection (a), there are 

hereby authorized to be appropriated to the Secretary to carry out 

the purposes of this Act ø$4,000,000¿, $8,000,000 which is in addition to any sums appropriated for such purposes for use during fiscal years ending on or before September 30, 1993. 

(2) Funds appropriated pursuant to this subsection to carry out 

the purposes of this Act shall be used solely for øtechnical assistance¿ and grants and the design and fabrication of interpretive 

materials, devices and signs. In addition to the limitation on funds 

contained in subsection (a), no funds made available under this 

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subsection shall be used for operation, maintenance, repair or construction except for construction of interpretive exhibits. 

(3) The Federal share of any project carried out with funds appropriated pursuant to this subsection may not exceed 50 percent 

of the total cost for that project and shall be provided on a matching basis. The non-Federal share of such cost may be in the form 

of cash, materials or in-kind services fairly valued by the Secretary. 

(c) The authorities provided to the Secretary under this Act shall 

terminate ø10¿ 15 years after the date of enactment of this subsection. 

* * * * * * *

SEC. 7. REVITALIZATION OF OFFICERS ROW, SANDY HOOK, NEW JERSEY: 

(a) AGREEMENT WITH STATE.—To further the revitalization, rehabilitation, and utilization of the area known as ‘‘Officers Row’’ located within the Sandy Hook Unit of the Gateway National Recreation Area, the Secretary of the Interior, or his designee, shall 

enter into an agreement to permit the State of New Jersey to use 

and occupy the property depicted on the map numbered 646/80,003, 

entitled ‘‘Marine Science Laboratory Land Assignment’’, dated September 1988, for the express purpose of constructing, developing, 

and operating, without cost to the National Park Service, a marine 

sciences laboratory to be known as the ‘‘James J. Howard Marine 

Sciences Laboratory’’. The design of the new facility, the rehabilitation of Building 74, the design and location of landscaping modifications thereto, shall be reviewed by, and subject to the approval 

of, the Director of the National Park Service or his designee using 

the standards for rehabilitation and National Park Service guidelines and policies approved by the Secretary of the Interior. 

(b) REVERSION.—If the improvements described in subsection (a) 

are not used as a marine sciences laboratory by the State of New 

Jersey, all use of the property and the improvements thereon shall 

revert, without consideration, to the National Park Service.

SEC. 8. STRATEGIC PLAN. 

(a) IN GENERAL.—Not later than 4 years after the date of the enactment of this section, the Secretary shall prepare a strategic plan 

for the route. 

(b) CONTENTS.—The strategic plan prepared under subsection (a) 

shall describe—

(1) opportunities to increase participation by national and 

local private and public interests in the planning, development, 

and administration of the route; and 

(2) organizational options for sustaining the route.

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