182 
imbursements for multiyear projects, except that 
this authority may not be used in a manner that cir-
cumvents requirements or limitations imposed on the 
use of any of the funds so transferred or reim-
bursed. 
(5) REPORT.—The Secretaries shall submit an 
annual report to the Committee on Natural Re-
sources of the House of Representatives and the 
Committee on Energy and Natural Resources of the 
Senate describing the activities undertaken as part 
of the Service First Initiative in the prior year. 
(c) PILOT PROGRAM FOR SPECIAL RECREATION PER-
MITS FOR MULTIJURISDICTIONAL TRIPS.— 
(1) IN GENERAL.—Not later than 2 years after 
the date of the enactment of this title, the Secre-
taries shall establish a pilot program to offer to a 
person seeking an authorization for a multijuris-
dictional trip a set of separate special recreation per-
mits or commercial use authorizations that author-
izes the use of each unit of Federal recreational 
lands and waters on which the multijurisdictional 
trip occurs, subject to the authorities that apply to 
the applicable unit of Federal recreational lands and 
waters.
183 
(2) MINIMUM NUMBER OF PERMITS.—Not later 
than 4 years after the date of the enactment of this 
title, the Secretaries shall issue not fewer than 10 
sets of separate special recreation permits described 
in paragraph (13)(A)(iv) of section 802 of the Fed-
eral Lands Recreation Enhancement Act (16 U.S.C. 
6801) (as amended by this title) or commercial use 
authorizations under the pilot program established 
under paragraph (1). 
(3) LEAD AGENCIES.—In carrying out the pilot 
program established under paragraph (1), the Secre-
taries shall— 
(A) designate a lead agency for issuing and 
administering a set of separate special recre-
ation permits or commercial use authorizations; 
and 
(B) select not fewer than 4 offices at which 
a person shall be able to apply for a set of sepa-
rate special recreation permits or commercial 
use authorizations, of which— 
(i) not fewer than 2 offices are man-
aged by the Secretary; and 
(ii) not fewer than 2 offices are man-
aged by the Secretary of Agriculture, act-
184 
ing through the Chief of the Forest Serv-
ice. 
(4) RETENTION OF AUTHORITY BY THE APPLI-
CABLE SECRETARY.—Each of the Secretaries shall 
retain the authority to enforce the terms, stipula-
tions, conditions, and agreements in a set of sepa-
rate special recreation permits or commercial use au-
thorizations issued under the pilot program estab-
lished under paragraph (1) that apply specifically to 
the use occurring on the Federal recreational lands 
and waters managed by the applicable Secretary, 
under the authorities that apply to the applicable 
Federal recreational lands and waters. 
(5) OPTION TO APPLY FOR SEPARATE SPECIAL 
RECREATION
PERMITS
OR
COMMERCIAL
USE
AU-
THORIZATIONS.—A person seeking the appropriate 
permits or authorizations for a multijurisdictional 
trip may apply for— 
(A) a separate special recreation permit or 
commercial use authorization for the use of 
each unit of Federal recreational lands and 
waters on which the multijurisdictional trip oc-
curs; or 
(B) a set of separate special recreational 
permits or commercial use authorizations made
185 
available under the pilot program established 
under paragraph (1). 
(6) EFFECT.—Nothing in this subsection ap-
plies to a concession contract issued by the National 
Park Service for the provision of accommodations, 
facilities, or services. 
SEC. 316. FOREST SERVICE AND BUREAU OF LAND MAN-
AGEMENT 
TEMPORARY 
SPECIAL 
RECRE-
ATION PERMITS FOR OUTFITTING AND GUID-
ING. 
(a) IN GENERAL.—Not later than 180 days after the 
date of enactment of this title, the Secretary concerned 
shall establish and implement a program to authorize the 
issuance of temporary special recreation permits for new 
or additional recreational uses of Federal recreational land 
and water managed by the Forest Service and the Bureau 
of Land Management. 
(b) TERM OF TEMPORARY PERMITS.—A temporary 
special recreation permit issued under paragraph (1) shall 
be issued for a period of not more than 2 years. 
(c) CONVERSION TO LONG-TERM PERMIT.—If the 
Secretary concerned determines that a permittee under 
paragraph (1) has completed 2 years of satisfactory oper-
ation under the permit proposed to be converted, the Sec-
retary may provide for the conversion of a temporary spe-
186 
cial recreation permit issued under paragraph (1) to a 
long-term special recreation permit. 
(d) EFFECT.—Nothing in this subsection alters or af-
fects the authority of the Secretary to issue a special 
recreation permit under subsection (h)(1) of section 803 
of the Federal Lands Recreation Enhancement Act (16 
U.S.C. 6802) (as amended by this title). 
SEC. 317. REVIEWS FOR LONG-TERM PERMITS. 
(a) MONITORING.—The Secretary concerned shall 
monitor each recreation service provider issued a special 
recreation permit for compliance with the terms of the per-
mit— 
(1) not less than annually or as frequently as 
needed (as determined by the Secretary concerned), 
in the case of a temporary special recreation permit 
for outfitting and guiding issued under section 316; 
and 
(2) not less than once every 2 years or as fre-
quently as needed (as determined by the Secretary 
concerned), in the case of a special recreation permit 
described in paragraph (13)(A)(iv)(I) of section 802 
of the Federal Lands Recreation Enhancement Act 
(16 U.S.C. 6801) (as amended by this title) that is 
issued for a term of not more than 10 years. 
(b) USE-OF-ALLOCATION REVIEWS.—
187 
(1) IN
GENERAL.—If the Secretary of Agri-
culture, acting through the Chief of the Forest Serv-
ice, or the Secretary, as applicable, allocates visitor- 
use days among special recreation permits for outfit-
ting and guiding, the Secretary of Agriculture, act-
ing through the Chief of the Forest Service, shall, 
and the Secretary may, review the use by the recre-
ation service provider of the visitor-use days allo-
cated under a long-term special recreation permit 
described in paragraph (13)(A)(iv)(I) of section 802 
of the Federal Lands Recreation Enhancement Act 
(16 U.S.C. 6801) (as amended by this title), once 
every 5 years. 
(2) REQUIREMENTS OF THE REVIEW.—In con-
ducting a review under paragraph (1), the Secretary 
concerned shall determine— 
(A) the number of visitor-use days that the 
recreation service provider used each year under 
the special recreation permit, in accordance 
with paragraph (3); and 
(B) the year in which the recreation serv-
ice provider used the most visitor-use days 
under the special recreation permit. 
(3) CONSIDERATION
OF
SURRENDERED, UN-
USED VISITOR-USE DAYS.—For the purposes of de-
189 
(1) If the Secretary concerned determines that 
the performance of the recreation service provider 
was satisfactory during the most recent review con-
ducted under subsection (a) of section 317, the an-
nual number of visitor-use days allocated for each 
remaining year of the permit shall be equal to 125 
percent of the number of visitor-use days used, as 
determined under subsection (b)(2)(A) of that sec-
tion, during the year identified under subsection 
(b)(2)(B) of that section, not to exceed the level allo-
cated to the recreation service provider on the date 
on which the special recreation permit was issued. 
(2) If the Secretary concerned determines the 
performance of the recreation service provider is less 
than satisfactory during the most recent perform-
ance review conducted under subsection (a) of sec-
tion 317, the annual number of visitor-use days allo-
cated for each remaining year of the special recre-
ation permit shall be equal to not more than 100 
percent of the number of visitor-use days used, as 
determined under subsection (b)(2)(A) of that sec-
tion during the year identified under subsection 
(b)(2)(B) of that section. 
(b) TEMPORARY REASSIGNMENT OF UNUSED VIS-
ITOR-USE DAYS.—The Secretary concerned may tempo-
190 
rarily assign unused visitor-use days, made available under 
section 313(c)(1)(B), to— 
(1) any other existing or potential recreation 
service provider, notwithstanding the number of vis-
itor-use days allocated to the special recreation per-
mit holder under the special recreation permit held 
or to be held by the recreation service provider; or 
(2) any existing or potential holder of a special 
recreation permit described in clause (i) or (iii) of 
paragraph (13)(A) of section 802 of the Federal 
Lands Recreation Enhancement Act (16 U.S.C. 
6801) (as amended by this title), including the pub-
lic. 
(c) ADDITIONAL CAPACITY.—If unallocated visitor- 
use days are available, the Secretary concerned may, at 
any time, amend a special recreation permit to allocate 
additional visitor-use days to a qualified recreation service 
provider. 
SEC. 319. LIABILITY. 
(a) INSURANCE REQUIREMENTS.— 
(1) IN GENERAL.—Except as provided in para-
graph (2), as a condition of issuing a special recre-
ation permit under subsection (h)(1)(B) of section 
803 of the Federal Lands Recreation Enhancement 
Act (16 U.S.C. 6802) (as amended by this title) or
191 
a commercial use authorization, the Secretary con-
cerned may require the holder of the special recre-
ation permit or commercial use authorization to have 
a commercial general liability insurance policy 
that— 
(A) is commensurate with the level of risk 
of the activities to be conducted under the spe-
cial recreation permit or commercial use au-
thorization; and 
(B) includes the United States as an addi-
tional insured in an endorsement to the applica-
ble policy. 
(2) EXCEPTION.—The Secretary concerned 
shall not require a holder of a special recreation per-
mit or commercial use authorization for low-risk ac-
tivities, as determined by the Secretary concerned, 
including commemorative ceremonies and participa-
tion by the public in a recreation activity or recre-
ation use of a specific area of Federal recreational 
lands and waters in which use by the public is allo-
cated, to comply with the requirements of paragraph 
(1). 
(b) INDEMNIFICATION
BY GOVERNMENTAL ENTI-
TIES.—The Secretary concerned shall not require a State, 
State agency, State institution, or political subdivision of
192 
a State to indemnify the United States for tort liability 
as a condition for issuing a special recreation permit or 
commercial use authorization to the extent the State, 
State agency, State institution, or political subdivision of 
a State is precluded by State law from providing indem-
nification to the United States for tort liability, if the 
State, State agency, State institution, or political subdivi-
sion of the State maintains the minimum amount of liabil-
ity insurance coverage required by the Federal land man-
agement agency for the activities conducted under the spe-
cial recreation permit or commercial use authorization in 
the form of— 
(1) a commercial general liability insurance pol-
icy, which includes the United States as an addi-
tional insured in an endorsement to the policy, if the 
State is authorized to obtain commercial general li-
ability insurance by State law; 
(2) self-insurance, which covers the United 
States as an additional insured, if authorized by 
State law; or 
(3) a combination of the coverage described in 
paragraphs (1) and (2). 
(c) EXCULPATORY AGREEMENTS.— 
(1) IN GENERAL.—Except as provided in para-
graph (2), a Federal land management agency shall
193 
not implement, administer, or enforce any regula-
tion, guidance, or policy prohibiting the use of an ex-
culpatory agreement between a recreation service 
provider or a holder of a commercial use authoriza-
tion and a customer relating to services provided 
under a special recreation permit or a commercial 
use authorization. 
(2) REQUIREMENTS.—Any exculpatory agree-
ment used by a recreation service provider or holder 
of a commercial use authorization for an activity au-
thorized under a special recreation permit or com-
mercial use authorization— 
(A) shall shield the United States from any 
liability, if otherwise allowable under Federal 
law; and 
(B) shall not waive any liability of the 
recreation service provider or holder of the com-
mercial use authorization that may not be 
waived under the laws (including common law) 
of the applicable State or for gross negligence, 
recklessness, or willful misconduct. 
(3) CONSISTENCY.—Not later than 2 years 
after the date of the enactment of this title, the Sec-
retaries shall—
194 
(A) review the policies of the Secretaries 
pertaining to the use of exculpatory agreements 
by recreation service providers and holders of 
commercial use authorizations; and 
(B) revise any policy described in subpara-
graph (A) as necessary to make the policies of 
the Secretaries pertaining to the use of excul-
patory agreements by recreation service pro-
viders and holders of commercial use authoriza-
tions consistent with this subsection and across 
all Federal recreational lands and waters. 
(d) EFFECT.—Nothing in this section applies to a 
concession contract issued by the National Park Service 
for the provision of accommodations, facilities, or services. 
SEC. 320. COST RECOVERY REFORM. 
(a) COST RECOVERY
FOR SPECIAL RECREATION 
PERMITS.—In addition to a fee collected under section 
803 of the Federal Lands Recreation Enhancement Act 
(16 U.S.C. 6802) or any other authorized fee collected by 
the Secretary concerned, the Secretary concerned may as-
sess and collect a reasonable fee from an applicant for, 
or holder of, a special recreation permit to recover admin-
istrative costs incurred by the Secretary concerned for— 
(1) processing a proposal or application for the 
special recreation permit;
195 
(2) issuing the special recreation permit; and 
(3) monitoring the special recreation permit to 
ensure compliance with the terms and conditions of 
the special recreation permit. 
(b) DE MINIMIS EXEMPTION FROM COST RECOV-
ERY.—If the administrative costs described in subsection 
(a) are assessed on an hourly basis, the Secretary con-
cerned shall— 
(1) establish an hourly de minimis threshold 
that exempts a specified number of hours from the 
assessment and collection of administrative costs de-
scribed in subsection (a); and 
(2) charge an applicant only for any hours that 
exceed the de minimis threshold. 
(c) MULTIPLE APPLICATIONS.—If the Secretary con-
cerned collectively processes multiple applications for spe-
cial recreation permits for the same or similar services in 
the same unit of Federal recreational lands and waters, 
the Secretary concerned shall, to the extent practicable— 
(1) assess from the applicants the fee described 
in subsection (a) on a prorated basis; and 
(2) apply the exemption described in subsection 
(b) to each applicant on an individual basis.
196 
(d) LIMITATION.—The Secretary concerned shall not 
assess or collect administrative costs under this section for 
a programmatic environmental review. 
(e) COST REDUCTION.—To the maximum extent 
practicable, the agency processing an application for a spe-
cial recreation permit shall use existing studies and anal-
ysis to reduce the quantity of work and costs necessary 
to process the application. 
SEC. 321. AVAILABILITY OF FEDERAL, STATE, AND LOCAL 
RECREATION PASSES. 
(a) IN GENERAL.—The Federal Lands Recreation 
Enhancement Act is amended by inserting after section 
805 (16 U.S.C. 6804) the following: 
‘‘SEC. 805A. AVAILABILITY OF FEDERAL, STATE, AND LOCAL 
RECREATION PASSES. 
‘‘(a) ESTABLISHMENT OF PROGRAM.— 
‘‘(1) IN GENERAL.—To improve the availability 
of Federal, State, and local outdoor recreation 
passes, the Secretaries are encouraged to coordinate 
with States and counties regarding the availability of 
Federal, State, and local recreation passes to allow 
a purchaser to buy a Federal recreation pass, State 
recreation pass, and local recreation pass in a single 
transaction.
197 
‘‘(2) INCLUDED
PASSES.—Passes covered by 
the program established under paragraph (1) in-
clude— 
‘‘(A) an America the Beautiful—the Na-
tional Parks and Federal Recreational Lands 
Pass under section 805; and 
‘‘(B) any pass covering any fees charged 
by participating States and counties for en-
trance and recreational use of parks and public 
land in the participating States. 
‘‘(b) AGREEMENTS WITH STATES AND COUNTIES.— 
‘‘(1) IN GENERAL.—The Secretaries, after con-
sultation with the States and counties, may enter 
into agreements with States and counties to coordi-
nate the availability of passes as described in sub-
section (a). 
‘‘(2) REVENUE
FROM
PASS
SALES.—Agree-
ments between the Secretaries, States, and counties 
entered into pursuant to this section shall ensure 
that— 
‘‘(A) funds from the sale of State or local 
passes are transferred to the appropriate State 
agency or county government;
198 
‘‘(B) funds from the sale of Federal passes 
are transferred to the appropriate Federal 
agency; and 
‘‘(C) fund transfers are completed by the 
end of a fiscal year for all pass sales occurring 
during the fiscal year.’’. 
(b) CLERICAL AMENDMENT.—The table of contents 
for the Federal Lands Recreation Enhancement Act is 
amended by inserting after the item relating to section 
805 the following: 
‘‘Sec. 805A. Availability of Federal, State, and local recreation passes.’’. 
SEC. 322. ONLINE PURCHASES AND ESTABLISHMENT OF A 
DIGITAL VERSION OF AMERICA THE BEAU-
TIFUL—THE NATIONAL PARKS AND FEDERAL 
RECREATIONAL LANDS PASSES. 
(a) ONLINE PURCHASES OF AMERICA THE BEAU-
TIFUL–THE
NATIONAL
PARKS
AND
FEDERAL
REC-
REATIONAL LANDS PASS.—Section 805(a)(6) of the Fed-
eral Lands Recreation Enhancement Act (16 U.S.C. 
6804(a)(6)) is amended by striking subparagraph (A) and 
inserting the following: 
‘‘(A) IN GENERAL.—The Secretaries shall 
sell or otherwise make available the National 
Parks and Federal Recreational Lands Pass— 
‘‘(i) at all Federal recreational lands 
and waters at which—
199 
‘‘(I) an entrance fee or a stand-
ard amenity recreation fee is charged; 
and 
‘‘(II) such sales or distribution of 
the Pass is feasible; 
‘‘(ii) at such other locations as the 
Secretaries consider appropriate and fea-
sible; and 
‘‘(iii) through a prominent link to a 
centralized pass sale system on the website 
of each of the Federal land management 
agencies and the websites of the relevant 
units and subunits of those agencies, which 
shall include information about where and 
when a National Parks and Federal Rec-
reational Lands Pass may be used.’’. 
(b) DIGITAL VERSION OF THE AMERICA THE BEAU-
TIFUL—THE NATIONAL PARKS AND FEDERAL RECRE-
ATION LANDS PASS.—Section 805(a) of the Federal 
Lands Recreation Enhancement Act (16 U.S.C. 6804(a)) 
is amended by adding at the end the following: 
‘‘(10) 
DIGITAL
RECREATION
PASSES.—Not 
later than January 1, 2026, the Secretaries shall— 
‘‘(A) establish a digital version of the Na-
tional Parks and Federal Recreational Lands
200 
Pass that is able to be stored on a mobile de-
vice, including with respect to free and dis-
counted passes; and 
‘‘(B) upon completion of a transaction for 
a National Parks and Federal Recreational 
Lands Pass, make immediately available to the 
passholder a digital version of the National 
Parks and Federal Recreational Lands Pass es-
tablished under subparagraph (A).’’. 
(c) ENTRANCE PASS AND AMENITY FEES.—Section 
803 of the Federal Lands Recreation Enhancement Act 
(16 U.S.C. 6802) (as amended by this title) is amended 
by adding at the end the following: 
‘‘(j) ONLINE PAYMENTS.— 
‘‘(1) IN
GENERAL.—In addition to providing 
onsite payment methods, the Secretaries may collect 
payment online for— 
‘‘(A) entrance fees under subsection (e); 
‘‘(B) standard amenity recreation fees 
under subsection (f); 
‘‘(C) expanded amenity recreation fees 
under subsection (g); and 
‘‘(D) special recreation permit fees. 
‘‘(2) DISTRIBUTION OF ONLINE PAYMENTS.— 
An online payment collected under paragraph (1)
201 
that is associated with a specific unit or area of a 
Federal land management agency shall be distrib-
uted in accordance with section 805(c).’’. 
SEC. 323. SAVINGS PROVISION. 
Nothing in this subtitle, or in any amendment made 
by this subtitle, shall be construed as affecting the author-
ity or responsibility of the Secretary of the Interior to 
award concessions contracts for the provision of accom-
modations, facilities, and services, or commercial use au-
thorizations to provide services, to visitors to U.S. Fish 
and Wildlife Service refuges or units of the National Park 
System pursuant to subchapter II of chapter 1019 of title 
54, United States Code (formerly known as the ‘‘National 
Park Service Concessions Management Improvement Act 
of 1998’’), except that sections 314(a), 315, 319(a), 
319(b), and 319(c) of this subtitle shall also apply to com-
mercial use authorizations under that Act. 
Subtitle B—Making Recreation a 
Priority 
SEC. 331. EXTENSION OF SEASONAL RECREATION OPPOR-
TUNITIES. 
(a) DEFINITION OF SEASONAL CLOSURE.—In this 
section, the term ‘‘seasonal closure’’ means any period 
during which—
202 
(1) a unit, or portion of a unit, of Federal rec-
reational lands and waters is closed to the public for 
a continuous period of 30 days or more, excluding 
temporary closures relating to wildlife conservation 
or public safety; and 
(2) permitted or allowable recreational activi-
ties, which provide an economic benefit, including 
off-season or winter-season tourism, do not take 
place at the unit, or portion of a unit, of Federal 
recreational lands and waters. 
(b) COORDINATION.— 
(1) IN GENERAL.—The Secretaries shall consult 
and coordinate with outdoor recreation-related busi-
nesses operating on, or adjacent to, a unit of Fed-
eral recreational lands and waters, State offices of 
outdoor recreation, local destination marketing orga-
nizations, applicable trade organizations, nonprofit 
organizations, Indian Tribes, local governments, and 
institutions of higher education— 
(A) to better understand— 
(i) trends with respect to visitors to 
the unit of Federal recreational lands and 
waters; 
(ii) the effect of seasonal closures on 
areas of, or infrastructure on, units of
203 
Federal recreational lands and waters on 
outdoor recreation opportunities, adjacent 
businesses, and local tax revenue; and 
(iii) opportunities to extend the period 
of time during which areas of, or infra-
structure on, units of Federal recreational 
lands and waters are open to the public to 
increase outdoor recreation opportunities 
and associated revenues for businesses and 
local governments; and 
(B) to solicit input from, and provide in-
formation for, outdoor recreation marketing 
campaigns. 
(2) LOCAL COORDINATION.—As part of the con-
sultation and coordination required under subpara-
graph (1), the Secretaries shall encourage relevant 
unit managers of Federal recreational lands and 
waters managed by the Forest Service, the Bureau 
of Land Management, and the National Park Serv-
ice to consult and coordinate with local governments, 
Indian Tribes, outdoor recreation-related businesses, 
and other local stakeholders operating on or adja-
cent to the relevant unit of Federal recreational 
lands and waters. 
(d) EXTENSIONS BEYOND SEASONAL CLOSURES.—
204 
(1) EXTENSION OF RECREATIONAL SEASON.— 
In the case of a unit of Federal recreational lands 
and waters managed by the Forest Service, the Bu-
reau of Land Management, or the National Park 
Service in which recreational use is highly seasonal, 
the Secretary concerned, acting through the relevant 
unit manager, may— 
(A) as appropriate, extend the recreation 
season or increase recreation use in a sustain-
able manner during the offseason; and 
(B) make information about extended sea-
son schedules and related recreational opportu-
nities available to the public and local commu-
nities. 
(2) DETERMINATION.—In determining whether 
to extend the recreation season under this sub-
section, the Secretary concerned, acting through the 
relevant unit manager, shall consider the benefits of 
extending the recreation season— 
(A) for the duration of income to gateway 
communities; and 
(B) to provide more opportunities to visit 
resources on units of Federal recreational lands 
and waters to reduce crowding during peak visi-
tation.
205 
(3) CLARIFICATION.—Nothing in this sub-
section precludes the Secretary concerned, acting 
through the relevant unit manager, from providing 
for additional recreational opportunities and uses at 
times other than those described in this subsection. 
(4) INCLUSIONS.—An extension of a recreation 
season or an increase in recreation use during the 
offseason under paragraph (1) may include— 
(A) the addition of facilities that would in-
crease recreation use during the offseason; and 
(B) improvement of access to the relevant 
unit to extend the recreation season. 
(5) REQUIREMENT.—An extension of a recre-
ation season or increase in recreation use during the 
offseason under paragraph (1) shall be done in com-
pliance with all applicable Federal laws, regulations, 
and policies, including land use plans. 
(6) AGREEMENTS.— 
(A) IN
GENERAL.—The Secretary con-
cerned may enter into agreements with busi-
nesses, local governments, or other entities to 
share the cost of additional expenses necessary 
to extend the period of time during which an 
area of, or infrastructure on, a unit of Federal
206 
recreational lands and waters is made open to 
the public. 
(B) IN-KIND
CONTRIBUTIONS.—The Sec-
retary concerned may accept in-kind contribu-
tions of goods and services provided by busi-
nesses, local governments, or other entities for 
purposes of paragraph (1). 
Subtitle C—Maintenance of Public 
Land 
SEC. 341. VOLUNTEERS IN THE NATIONAL FORESTS AND 
PUBLIC LANDS ACT. 
The Volunteers in the National Forests Act of 1972 
(16 U.S.C. 558a et seq.) is amended to read as follows: 
‘‘SECTION 1. SHORT TITLE. 
‘‘This Act may be cited as the ‘Volunteers in the Na-
tional Forests and Public Lands Act’. 
‘‘SEC. 2. PURPOSE. 
‘‘The purpose of this Act is to leverage volunteer en-
gagement to supplement projects that are carried out by 
the Secretaries to fulfill the missions of the Forest Service 
and the Bureau of Land Management and are accom-
plished with appropriated funds. 
‘‘SEC. 3. DEFINITION OF SECRETARIES. 
‘‘In this Act, the term ‘Secretaries’ means each of—
207 
‘‘(1) the Secretary of Agriculture, acting 
through the Chief of the Forest Service; and 
‘‘(2) the Secretary of the Interior, acting 
through the Director of the Bureau of Land Man-
agement. 
‘‘SEC. 4. AUTHORIZATION. 
‘‘The Secretaries are authorized to recruit, train, and 
accept without regard to the civil service and classification 
laws, rules, or regulations the services of individuals with-
out compensation as volunteers for or in aid of recreation 
access, trail construction or maintenance, facility con-
struction or maintenance, educational uses (including out-
door classroom construction or maintenance), interpretive 
functions, visitor services, conservation measures and de-
velopment, or other activities in and related to areas ad-
ministered by the Secretaries. In carrying out this section, 
the Secretaries shall consider referrals of prospective vol-
unteers made by the Corporation for National and Com-
munity Service. 
‘‘SEC. 5. INCIDENTAL EXPENSES. 
‘‘The Secretaries are authorized to provide for inci-
dental expenses, such as transportation, uniforms, lodg-
ing, training, equipment, and subsistence.
208 
‘‘SEC. 6. CONSIDERATION AS FEDERAL EMPLOYEE. 
‘‘(a) Except as otherwise provided in this section, a 
volunteer shall not be deemed a Federal employee and 
shall not be subject to the provisions of law relating to 
Federal employment, including those relating to hours of 
work, rates of compensation, leave, unemployment com-
pensation, and Federal employee benefits. 
‘‘(b) For the purpose of the tort claim provisions of 
title 28, United States Code, a volunteer under this Act 
shall be considered a Federal employee. 
‘‘(c) For the purposes of subchapter I of chapter 81 
of title 5, United States Code, relating to compensation 
to Federal employees for work injuries, volunteers under 
this Act shall be deemed civil employees of the United 
States within the meaning of the term ‘employee’ as de-
fined in section 8101 of title 5, United States Code, and 
the provisions of that subchapter shall apply. 
‘‘(d) For the purposes of claims relating to damage 
to, or loss of, personal property of a volunteer incident 
to volunteer service, a volunteer under this Act shall be 
considered a Federal employee, and the provisions of sec-
tion 3721 of title 31, United States Code, shall apply. 
‘‘(e) For the purposes of subsections (b), (c), and (d), 
the term ‘volunteer’ includes a person providing volunteer 
services to either of the Secretaries who—
209 
‘‘(1) is recruited, trained, and supported by a 
cooperator under a mutual benefit agreement or co-
operative agreement with either of the Secretaries; 
and 
‘‘(2) performs such volunteer services under the 
supervision of the cooperator as directed by either of 
the Secretaries in the mutual benefit agreement or 
cooperative agreement in the mutual benefit agree-
ment, including direction that specifies— 
‘‘(A) the volunteer services, including the 
geographic boundaries of the work to be per-
formed by the volunteers, and the supervision 
to be provided by the cooperator; 
‘‘(B) the applicable project safety stand-
ards and protocols to be adhered to by the vol-
unteers and enforced by the cooperator; 
‘‘(C) the on-site visits to be made by either 
of the Secretaries, if feasible and only if nec-
essary to verify that volunteers are performing 
the volunteer services and the cooperator is pro-
viding the supervision agreed upon; 
‘‘(D) the equipment the volunteers are au-
thorized to use; 
‘‘(E) the training the volunteers are re-
quired to complete;
210 
‘‘(F) the actions the volunteers are author-
ized to take; and 
‘‘(G) any other terms and conditions that 
are determined to be necessary by the applica-
ble Secretary. 
‘‘SEC. 7. PROMOTION OF VOLUNTEER OPPORTUNITIES. 
‘‘The Secretaries shall promote volunteer opportuni-
ties in areas administered by the Secretaries. 
‘‘SEC. 8. LIABILITY INSURANCE. 
‘‘The Secretaries shall not require a cooperator or 
volunteer (as those terms are used in section 6) to have 
liability insurance to provide the volunteer services author-
ized under this Act.’’. 
SEC. 342. REFERENCE. 
Any reference to the Volunteers in the National For-
ests Act of 1972 in any law, regulation, map, document, 
record, or other paper of the United States shall be 
deemed to be a reference to the Volunteers in the National 
Forests and Public Land Act. 
Subtitle D—Recreation Not Red 
Tape 
SEC. 351. GOOD NEIGHBOR AUTHORITY FOR RECREATION. 
(a) DEFINITIONS.—In this section: 
(1) AUTHORIZED RECREATION SERVICES.—The 
term ‘‘authorized recreation services’’ means similar
211 
and complementary recreation enhancement or im-
provement services carried out— 
(A) on Federal land, non-Federal land, or 
land owned by an Indian Tribe; and 
(B) by either the Secretary or a Governor, 
Indian Tribe, or county, as applicable, pursuant 
to a good neighbor agreement. 
(2) COUNTY.—The term ‘‘county’’ means— 
(A) the appropriate executive official of an 
affected county; or 
(B) in any case in which multiple counties 
are affected, the appropriate executive official 
of a compact of the affected counties. 
(3) FEDERAL LAND.—The term ‘‘Federal land’’ 
means land that is— 
(A) owned and administered by the United 
States as a part of— 
(i) the National Forest System; or 
(ii) the National Park System; or 
(B) public lands (as defined in section 103 
of the Federal Land Policy and Management 
Act of 1976 (43 U.S.C. 1702)). 
(4) RECREATION ENHANCEMENT OR IMPROVE-
MENT
SERVICES.—The term ‘‘recreation enhance-
ment or improvement services’’ means—
212 
(A) establishing, repairing, restoring, im-
proving, relocating, constructing, or recon-
structing new or existing— 
(i) trails or trailheads; 
(ii) campgrounds and camping areas; 
(iii) cabins; 
(iv) picnic areas or other day use 
areas; 
(v) shooting ranges; 
(vi) restroom or shower facilities; 
(vii) paved or permanent roads or 
parking areas that serve existing recreation 
facilities or areas; 
(viii) fishing piers, wildlife viewing 
platforms, docks, or other constructed fea-
tures at a recreation site; 
(ix) boat landings; 
(x) hunting or fishing sites; 
(xi) infrastructure within ski areas; or 
(xii) visitor centers or other interpre-
tative sites; and 
(B) activities that create, improve, or re-
store access to existing recreation facilities or 
areas.
213 
(5) GOOD NEIGHBOR AGREEMENT.—The term 
‘‘good neighbor agreement’’ means a cooperative 
agreement or contract (including a sole source con-
tract) entered into between the Secretary and a Gov-
ernor, Indian Tribe, or county, as applicable, to 
carry out authorized recreation services under this 
title. 
(6) GOVERNOR.—The term ‘‘Governor’’ means 
the Governor or any other appropriate executive offi-
cial of an affected State or the Commonwealth of 
Puerto Rico. 
(7) SECRETARY CONCERNED.—The term ‘‘Sec-
retary concerned’’ means— 
(A) the Secretary of Agriculture, with re-
spect to National Forest System land; and 
(B) the Secretary of the Interior, with re-
spect to National Park System land and public 
lands. 
(b) GOOD NEIGHBOR AGREEMENTS
FOR RECRE-
ATION.— 
(1) IN
GENERAL.—The Secretary concerned 
may enter into a good neighbor agreement with a 
Governor, Indian Tribe, or county to carry out au-
thorized recreation services in accordance with this 
title.
214 
(2) PUBLIC AVAILABILITY.—The Secretary con-
cerned shall make each good neighbor agreement 
available to the public. 
(3) FINANCIAL AND TECHNICAL ASSISTANCE.— 
(A) IN
GENERAL.—The Secretary con-
cerned may provide financial or technical assist-
ance to a Governor, Indian Tribe, or county 
carrying out authorized recreation services. 
(B) ADDITIONAL
TREATMENTS
OF
REV-
ENUE.—Section 8206(b)(2)(C) of the Agricul-
tural Act of 2014 (16 U.S.C. 2113a(b)(2)(C)) 
is amended to read as follows: 
‘‘(C) TREATMENT OF REVENUE.— 
‘‘(i) IN
GENERAL.—Funds received 
from the sale of timber by a Governor, In-
dian Tribe, or county under a good neigh-
bor agreement shall be retained and used 
by the Governor, Indian Tribe, or county, 
as applicable— 
‘‘(I) to carry out authorized res-
toration services on under the good 
neighbor agreement; and 
‘‘(II) if there are funds remain-
ing after carrying out clause (i), to 
carry out—
216 
(b) COVERED PERSON DEFINED.—In this section, 
the term ‘‘covered person’’ means a person (including an 
educational group) that provides outfitting and guiding 
services to fewer than 40 customers per year at a picnic 
area described in subsection (a). 
SEC. 353. INTERAGENCY REPORT ON SPECIAL RECREATION 
PERMITS FOR UNDERSERVED COMMUNITIES. 
(a) COVERED COMMUNITY DEFINED.—In this sec-
tion, the term ‘‘covered community’’ means a rural or 
urban community, including an Indian Tribe, that is— 
(1) low-income or underserved; and 
(2) has been underrepresented in outdoor recre-
ation opportunities on Federal recreational lands 
and waters. 
(b) REPORT.—Not later than 3 years after the date 
of the enactment of this title, the Secretaries, acting joint-
ly, shall submit to the Committee on Energy and Natural 
Resources of the Senate and the Committee on Natural 
Resources of the House of Representatives a report that 
describes— 
(1) the estimated use of special recreation per-
mits serving covered communities; 
(2) examples of special recreation permits, part-
nerships, cooperative agreements, or other arrange-
217 
ments providing access to Federal recreational lands 
and waters for covered communities; 
(3) other ways covered communities are engag-
ing on Federal recreational lands and waters, includ-
ing through stewardship and conservation projects 
or activities; 
(4) any barriers for existing or prospective 
recreation service providers and holders of commer-
cial use authorizations operating within or serving a 
covered community; and 
(5) any recommendations to facilitate and in-
crease permitted access to Federal recreational lands 
and waters for covered communities. 
SEC. 354. MODERNIZING ACCESS TO OUR PUBLIC LAND ACT 
AMENDMENTS. 
The Modernizing Access to Our Public Land Act (16 
U.S.C. 6851 et seq.) is amended— 
(1) in section 3(1) (16 U.S.C. 6852(1)), by 
striking ‘‘public outdoor recreational use’’ and in-
serting ‘‘recreation sites’’; 
(2) in section 5(a)(4) (16 U.S.C. 6854(a)(4)), 
by striking ‘‘permanently restricted or prohibited’’ 
and inserting ‘‘regulated or closed’’; and 
(3) in section 6(b) (16 U.S.C. 6855(b))—
218 
(A) by striking ‘‘may’’ and inserting 
‘‘shall’’; and 
(B) by striking ‘‘the Secretary of the Inte-
rior’’ and inserting ‘‘the Secretaries’’. 
SEC. 355. SAVINGS PROVISION. 
No additional Federal funds are authorized to carry 
out the requirements of this Act and the activities author-
ized by this Act are subject to the availability of appropria-
tions made in advance for such purposes. 
Passed the House of Representatives April 9, 2024. 
Attest: 
Clerk.
118TH CONGRESS 
2D SESSION 
H. R. 6492 
AN ACT 
To improve recreation opportunities on, and facili-
tate greater access to, Federal public land, and 
for other purposes.