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[Senate Report 110-159]
[From the U.S. Government Publishing Office]

                                                       Calendar No. 357
110th Congress                                                   Report
                                 SENATE
 1st Session                                                    110-159

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   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.

           *       *       *       *       *       *       *

                                  
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