I 
118TH CONGRESS 
1ST SESSION H. R. 1527 
To improve access for outdoor recreation through the use of special recreation 
permits on Federal recreational lands and waters, and for other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
MARCH 10, 2023 
Mr. CURTIS (for himself and Mr. NEGUSE) introduced the following bill; which 
was referred to the Committee on Natural Resources, and in addition to 
the Committee on Agriculture, for a period to be subsequently determined 
by the Speaker, in each case for consideration of such provisions as fall 
within the jurisdiction of the committee concerned 
A BILL 
To improve access for outdoor recreation through the use 
of special recreation permits on Federal recreational 
lands and waters, and for other purposes. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE; TABLE OF CONTENTS. 
(a) SHORT TITLE.—This Act may be cited as the 
‘‘Simplifying Outdoor Access for Recreation Act’’ or the 
‘‘SOAR Act’’. 
(b) TABLE OF CONTENTS.—The table of contents of 
this Act is as follows: 
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Sec. 1. Short title; table of contents. 
Sec. 2. Definitions. 
TITLE I—MODERNIZING RECREATION PERMITTING 
Sec. 101. Definitions. 
Sec. 102. Special recreation permit and fee. 
Sec. 103. Permitting process improvements. 
Sec. 104. Permit flexibility. 
Sec. 105. Permit administration. 
Sec. 106. Permits for multijurisdictional trips. 
Sec. 107. Forest Service permit use reviews. 
Sec. 108. Liability. 
Sec. 109. Cost recovery reform. 
Sec. 110. Extension of special recreation permits. 
Sec. 111. Availability of Federal and State recreation passes. 
Sec. 112. Online purchases of America the Beautiful—The National Parks and 
Federal Recreational Lands Pass. 
Sec. 113. Savings provision. 
TITLE II—MAKING RECREATION A PRIORITY 
Sec. 201. Extension of seasonal recreation opportunities. 
Sec. 202. Recreation performance metrics. 
TITLE III—MAINTENANCE OF PUBLIC LAND 
Sec. 301. Private-sector volunteer enhancement program. 
Sec. 302. Enhancing outdoor recreation through public lands service organiza-
tions. 
SEC. 2. DEFINITIONS. 
In this Act: 
(1) FEDERAL LAND MANAGEMENT AGENCY.— 
The term ‘‘Federal land management agency’’ has 
the meaning given the term in section 802 of the 
Federal Lands Recreation Enhancement Act (16 
U.S.C. 6801). 
(2) FEDERAL
RECREATIONAL
LANDS
AND 
WATERS.—The term ‘‘Federal recreational lands and 
waters’’ has the meaning given the term in section 
802 of the Federal Lands Recreation Enhancement 
Act (16 U.S.C. 6801). 
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(3) SECRETARIES.—Except as otherwise pro-
vided in this Act, the term ‘‘Secretaries’’ means— 
(A) the Secretary of the Interior; and 
(B) the Secretary of Agriculture. 
TITLE I—MODERNIZING 
RECREATION PERMITTING 
SEC. 101. DEFINITIONS. 
In this title: 
(1) ASSOCIATED AGENCY.—The term ‘‘associ-
ated agency’’ means the Federal land management 
agency, other than the lead agency, that manages a 
Federal land unit that is the subject of a single joint 
special recreation permit under section 106. 
(2) LEAD AGENCY.—With respect to a single 
joint special recreation permit application submitted 
under section 106(a), the term ‘‘lead agency’’ means 
the Federal land management agency designated to 
administer the single joint special recreation permit 
under section 106(a)(2). 
(3) LONG-TERM
SPECIAL
RECREATION
PER-
MIT.—The term ‘‘long-term special recreation per-
mit’’ means— 
(A) for a Federal land unit managed by 
the Forest Service, a priority use permit; and 
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(B) for a Federal land unit managed by 
the Bureau of Land Management, a multiyear 
special recreation permit. 
(4) MULTIJURISDICTIONAL
TRIP.—The term 
‘‘multijurisdictional trip’’ means a trip that— 
(A) uses 2 or more Federal land units; and 
(B) is under the jurisdiction of 2 or more 
Federal land management agencies. 
(5) FEDERAL LAND UNIT.—The term ‘‘Federal 
land unit’’ means— 
(A) a unit of the National Forest System; 
(B) a unit of the National Park System; 
(C) a unit of the National Wildlife Refuge 
System; 
(D) a district of the Bureau of Land Man-
agement; and 
(E) a project of the Bureau of Reclama-
tion. 
(6) SECRETARY CONCERNED.—The term ‘‘Sec-
retary concerned’’ means— 
(A) the Secretary of Agriculture, with re-
spect to a Federal land unit described in para-
graph (5)(A); and 
(B) the Secretary of the Interior, with re-
spect to a Federal land unit described in sub-
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paragraph (B), (C), (D), or (E) of paragraph 
(5). 
(7) SPECIAL RECREATION PERMIT.—The term 
‘‘special recreation permit’’ has the meaning given 
the term in section 802 of the Federal Lands Recre-
ation Enhancement Act (16 U.S.C. 6801). 
SEC. 102. SPECIAL RECREATION PERMIT AND FEE. 
(a) DEFINITIONS.—Section 802 of the Federal Lands 
Recreation Enhancement Act (16 U.S.C. 6801) is amend-
ed— 
(1) in paragraph (1), by striking ‘‘section 3(f)’’ 
and inserting ‘‘ section 803(f)’’; 
(2) in paragraph (2), by striking ‘‘section 3(g)’’ 
and inserting ‘‘section 803(g)’’; 
(3) in paragraph (6), by striking ‘‘section 5’’ 
and inserting ‘‘section 805’’; 
(4) in paragraph (9), by striking ‘‘section 5’’ 
and inserting ‘‘section 805’’; 
(5) in paragraph (12), by striking ‘‘section 7’’ 
and inserting ‘‘section 807’’; 
(6) in paragraph (13), by striking ‘‘section 
3(h)’’ and inserting ‘‘section 803(h)’’; 
(7) by redesignating paragraphs (1), (3), (4), 
(5), (6), (7), (8), (9), (10), (11), and (13) as para-
graphs (15), (1), (3), (4), (5), (6), (7), (8), (11), 
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‘‘(D) for motorized recreational vehicle use 
in compliance with an applicable travel manage-
ment plan or other regulation; and 
‘‘(E) for a group activity or event.’’. 
(b) SPECIAL RECREATION PERMIT AND FEE.—Sec-
tion 803 of the Federal Lands Recreation Enhancement 
Act (16 U.S.C. 6802) is amended— 
(1) in subsection (b)(5), by striking ‘‘section 
4(d)’’ and inserting ‘‘section 804(d)’’; and 
(2) by striking subsection (h) and inserting the 
following: 
‘‘(h) SPECIAL RECREATION PERMIT AND FEE.— 
‘‘(1) SPECIAL RECREATION PERMIT.—The Sec-
retary may issue a special recreation permit for spe-
cialized individual or group uses of Federal rec-
reational lands and waters as defined in section 
802(13) of this Act (16 U.S.C. 6801). 
‘‘(2) SPECIAL RECREATION PERMIT FEE.— 
‘‘(A) IN
GENERAL.—The Secretary may 
charge a special recreation permit fee in con-
nection with the issuance of a special recreation 
permit under paragraph (1). 
‘‘(B) FEES FOR CERTAIN LANDS.— 
‘‘(i) IN GENERAL.—Subject to clauses 
(ii) and (iii), a special recreation permit fee 
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under subparagraph (A) for use of Federal 
recreational lands and waters managed by 
the Forest Service, the Bureau of Land 
Management, the Bureau of Reclamation, 
or the United States Fish and Wildlife 
Service shall not exceed the difference be-
tween— 
‘‘(I) the sum of— 
‘‘(aa) 3 percent of the an-
nual gross revenue of the recre-
ation service provider for all ac-
tivities authorized by the special 
recreation permit; and 
‘‘(bb) any applicable revenue 
addition; and 
‘‘(II) any applicable revenue ex-
clusion. 
‘‘(ii) EXCLUSION OF CERTAIN REVE-
NUES AND PAYMENTS.—In calculating the 
amount of a fee for a special recreation 
permit under clause (i), the Secretary con-
cerned shall exclude— 
‘‘(I) revenue from goods, services, 
souvenirs, merchandise, gear, food, 
and activities provided or sold by a 
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special recreation permit holder in a 
location other than the Federal rec-
reational lands and waters covered by 
the permit, including transportation 
costs, lodging, and any other service 
before or after a trip; and 
‘‘(II) revenue from any rec-
reational services provided by a spe-
cial recreation permit holder for ac-
tivities on Federal recreational lands 
and waters for which a separate per-
mit is issued. 
‘‘(iii) 
ALTERNATIVE
PER-PERSON 
FEE.— 
‘‘(I) IN GENERAL.—For Federal 
recreational lands and waters man-
aged by the Forest Service, the Bu-
reau of Land Management, the Bu-
reau of Reclamation, or the United 
States Fish and Wildlife Service, the 
Secretary may charge a per-person fee 
in connection with the issuance of a 
special recreation permit under para-
graph (1). 
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‘‘(II) AMOUNT
OF
FEE.—The 
total amount charged by the Secretary 
in connection with the issuance of a 
special recreation permit under para-
graph (1) using a per-person fee 
under subclause (I) shall not exceed 
the amount the Secretary may charge 
for a special recreation permit fee 
under subparagraph (A) and clauses 
(i) and (ii). 
‘‘(iv) EFFECT.—Nothing in this sub-
paragraph affects any fee for a commercial 
use authorization for use of Federal rec-
reational lands and waters managed by the 
National Park Service. 
‘‘(C) DISCLOSURE
OF
FEES.—A special 
recreation permit holder may inform customers 
of any fee charged by the Secretary under this 
section. 
‘‘(3) REPORTS.— 
‘‘(A) IN
GENERAL.—The Secretary shall 
make available to holders of special recreation 
permits under paragraph (1) and the public an 
annual report describing the use of fees col-
lected by the Secretary under paragraph (2). 
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‘‘(B) REQUIREMENTS.—The report under 
subparagraph (A) shall include a description of 
how the fees are used in each Federal land unit 
(as defined in section 2 of the SOAR Act) ad-
ministered by the Secretary, including an iden-
tification of the amounts used for specific ac-
tivities within the Federal land unit.’’. 
(c) USE
OF SPECIAL RECREATION PERMIT REV-
ENUE.—Section 808 of the Federal Lands Recreation En-
hancement Act (16 U.S.C. 6807) is amended— 
(1) in subsection (a)(3)(F), by striking ‘‘section 
6(a)’’ and inserting ‘‘section 806(a)’’; 
(2) in subsection (d), by striking ‘‘section 5’’ 
each place it appears and inserting ‘‘section 805’’; 
(3) by redesignating subsections (b) through (d) 
as subsections (c) through (e), respectively; and 
(4) by inserting after subsection (a) the fol-
lowing: 
‘‘(b) USE OF SPECIAL RECREATION PERMIT FEE 
REVENUE.—Revenue from a special recreation permit fee 
may be used for— 
‘‘(1) the purposes described in subsection (a); 
and 
‘‘(2) expenses— 
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‘‘(A) associated with issuing and admin-
istering special recreation permits; and 
‘‘(B) incurred in the improvement of the 
operation of the special recreation permit sys-
tem.’’. 
(d) PERMANENT AUTHORIZATION.—Section 810 of 
the Federal Lands Recreation Enhancement Act (16 
U.S.C. 6809) is amended— 
(1) by striking ‘‘The authority’’ and inserting 
the following: 
‘‘(a) IN GENERAL.—Except as provided in subsection 
(b), the authority’’; and 
(2) by adding at the end the following: 
‘‘(b) APPLICABILITY.—Subsection (a) shall not apply 
to— 
‘‘(1) section 802; 
‘‘(2) subsection (d)(2) or (h) of section 803; or 
‘‘(3) subsection (a), (b) or (c) of section 808.’’. 
SEC. 103. PERMITTING PROCESS IMPROVEMENTS. 
(a) IN GENERAL.—To simplify the process of the 
issuance and renewal of special recreation permits and re-
duce the cost of administering special recreation permits, 
the Secretary concerned shall— 
(1) not later than 180 days after the date of 
the enactment of this Act— 
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(A) evaluate the special recreation permit-
ting process; and 
(B) identify opportunities— 
(i) to eliminate duplicative processes; 
(ii) to reduce costs; and 
(iii) to decrease processing times; and 
(2) not later than 1 year after the date on 
which the Secretary concerned completes the evalua-
tion and identification processes under paragraph 
(1), revise, as necessary, relevant agency regulations 
and policy statements to implement the improve-
ments identified under paragraph (1)(B). 
(b) CATEGORICAL EXCLUSIONS.— 
(1) IN GENERAL.—Not later than 1 year after 
the date of the enactment of this Act, the Secretary 
concerned shall— 
(A) evaluate whether 1 or more additional 
categorical exclusions developed in compliance 
with the National Environmental Policy Act of 
1969 (42 U.S.C. 4321 et seq.) would reduce 
processing times or costs for the issuance or re-
newal of special recreation permits without sig-
nificantly affecting the human environment; 
and 
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(B) if the Secretary concerned determines 
under subparagraph (A) that 1 or more addi-
tional categorical exclusions would reduce proc-
essing times or costs for the issuance or re-
newal of special recreation permits without sig-
nificantly affecting the human environment— 
(i) establish those categorical exclu-
sions in compliance with the National En-
vironmental Policy Act of 1969 (42 U.S.C. 
4321 et seq.); 
(ii) fully document that a category of 
actions will not individually or cumulatively 
have a significant effect on the human en-
vironment; and 
(iii) revise relevant agency regulations 
and policy statements to implement those 
categorical exclusions. 
(2) ADMINISTRATION.— 
(A) IN GENERAL.—In administering a cat-
egorical exclusion established under paragraph 
(1)(B), the Secretary concerned shall comply 
with the National Environmental Policy Act of 
1969 (42 U.S.C. 4321 et seq.) (including regu-
lations promulgated pursuant to that Act). 
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(B) EXTRAORDINARY
CIRCUMSTANCES.— 
In determining whether to use a categorical ex-
clusion established under paragraph (1)(B), the 
Secretary concerned shall apply, as applicable, 
the extraordinary circumstances procedures de-
scribed in— 
(i) section 220.6 of title 36, Code of 
Federal Regulations (or a successor regula-
tion); and 
(ii) section 46.215 of title 43, Code of 
Federal Regulations (or a successor regula-
tion). 
(c) NEEDS
ASSESSMENTS.—Except as required 
under subsection (c) or (d) of section 4 of the Wilderness 
Act (16 U.S.C. 1133), the Secretary concerned shall not 
conduct a needs assessment as a condition of issuing a 
special recreation permit for a Federal land unit under 
this Act. 
(d) ONLINE APPLICATIONS.—The Secretary con-
cerned shall make applications for special recreation per-
mits available to be completed and submitted online unless 
the Secretary concerned determines that making applica-
tions for special recreation permits available to be com-
pleted and submitted online would not improve the effi-
ciency or accessibility of the permitting process. 
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SEC. 104. PERMIT FLEXIBILITY. 
(a) SIMILAR ACTIVITIES.—The Secretary concerned 
shall establish a permit administration protocol that au-
thorizes, to the maximum extent practicable, a permittee 
issued a special recreation permit for a Federal land unit 
under section 803(h) of the Federal Lands Recreation En-
hancement Act (16 U.S.C. 6802(h)) to engage in a rec-
reational activity that is substantially similar to the spe-
cific activity authorized under the special recreation per-
mit, if the substantially similar recreational activity— 
(1) is comparable in type, nature, scope, and 
ecological setting to the specific activity authorized 
under the special recreation permit; 
(2) does not result in a greater impact on nat-
ural and cultural resources than the authorized ac-
tivity; 
(3) does not adversely affect any other per-
mittee issued a special recreation permit for a Fed-
eral land unit under that subsection; 
(4) does not involve the use of a motor for a 
previously non-motorized use; and 
(5) is consistent with any laws and regulations 
(including land use or management plans) applying 
to a Federal land unit. 
(b) VOLUNTARY RETURN
OF SURPLUS SERVICE 
DAYS.—The Secretary concerned shall establish a pro-
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gram to allow a permittee issued a special recreation per-
mit for a Federal land unit to voluntarily and temporarily 
return to the Secretary concerned 1 or more surplus serv-
ice days, to be made available to any other existing or po-
tential permittee. 
(c) FOREST SERVICE AND BUREAU OF LAND MAN-
AGEMENT
TEMPORARY
SPECIAL
RECREATION
PER-
MITS.— 
(1) IN
GENERAL.—Not later than 180 days 
after the date of the enactment of this Act, the Sec-
retary concerned shall establish and implement a 
program to authorize the issuance of temporary spe-
cial recreation permits for new or additional rec-
reational uses of Federal recreational land and water 
managed by the Forest Service and the Bureau of 
Land Management. 
(2) TERM OF TEMPORARY PERMITS.—A tem-
porary special recreation permit issued under para-
graph (1) shall be issued for a period of not more 
than 2 years. 
(3) CONVERSION TO LONG-TERM PERMIT.—If 
the Secretary concerned determines that a permittee 
under paragraph (1) has completed 2 years of satis-
factory operation under the permit proposed to be 
converted, the Secretary may provide for the conver-
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sion of a temporary special recreation permit issued 
under paragraph (1) to a long-term special recre-
ation permit. 
(4) EFFECT.—Nothing in this subsection alters 
or affects the authority of the Secretary to issue a 
special recreation permit under subsection (h)(1) of 
section 803 of the Federal Lands Recreation En-
hancement Act (16 U.S.C. 6802(h)(1)). 
SEC. 105. PERMIT ADMINISTRATION. 
(a) PERMIT AVAILABILITY.— 
(1) NOTIFICATION OF PERMIT AVAILABILITY.— 
(A) IN GENERAL.—Except as provided in 
subparagraphs (B) and (C), if the Secretary 
concerned has determined that the Department 
of Agriculture or the Department of the Inte-
rior, as applicable, is able to issue new special 
recreation permits to recreation service pro-
viders seeking to use a Federal land unit, the 
Secretary concerned shall publish that informa-
tion on the website of the agency that admin-
isters the relevant Federal land unit. 
(B) EXCEPTION FOR CERTAIN PERMITS.— 
With respect to a Federal land unit managed by 
the Forest Service or the Bureau of Land Man-
agement, subparagraph (A) shall apply only to 
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