[Senate Report 104-40]
[From the U.S. Government Publishing Office]



                                                        Calendar No. 63
104th Congress                                                   Report
                                 SENATE

 1st Session                                                     104-40
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         IDAHO NATIONAL MONUMENT BOUNDARY REVISION ACT OF 1995

                                _______


    April 7 (legislative day, April 5), 1995.--Ordered to be printed

_______________________________________________________________________


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

                              R E P O R T

                         [To accompany S. 551]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 551) to revise the boundaries of the 
Hagerman Fossil Beds National Monument and the Craters of the 
Moon National Monument, 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. 551 is to revise the boundary of Craters 
of the Moon National Monument in Idaho by adding approximately 
210 acres and deleting 315 acres, and to authorize the 
Secretary of the Interior to acquire by donation, exchange, or 
purchase, from willing sellers only, not more than 65 acres 
outside the current boundary of Hagerman Fossil Beds National 
Monument for the development and operation of research, 
information, interpretive and administrative facilities.

                          Background and Need

    The existing boundary of Hagerman Fossil Beds National 
Monument does not provide a location for a visitor center/
research facility that would not adversely impact the resources 
for which the monument was established. Two suitable parcels of 
land have been identified as part of the development planning 
process undertaken by the Department of the Interior. Both 
parcels are outside the present monument boundary. Either would 
provide a suitable location for a visitor center/research 
facility, and both are currently owned by willing sellers.
    The existing boundary of Craters of the Moon National 
Monument follows public land subdivision lines that do not 
corresponds to the hydrologic or topographic features of the 
area. The current boundary does not adequately protect the 
watershed that feeds the monument's potable water supply, and 
the boundary creates livestock management problems both inside 
and outside the monument. The effect of the exchange would be 
to add 210 acres (of which 37.2 acres are privately owned with 
the remaining acreage administered by the Bureau of Land 
Management (BLM)), and to delete 315 acres of monument land. 
The removal from the monument will be transferred to BLM 
management, and the BLM land added to the monument will be 
administered by the Park Service.

                          Legislative History

    S. 551 was introduced by Senator Craig on March 14, 1995.
    In the 103rd Congress, similar legislation was included in 
H.R. 1305, which passed the House of Representatives on July 
19, 1993, and was favorably reported by the Committee on April 
5, 1994. The Senate passed H.R. 1305 on May 3, 1994, but the 
House and Senate were unable to reconcile the differences 
between the two versions prior to the sine die adjournment of 
the Congress.
    At the business meeting on March 29, 1995, the Committee on 
Energy and Natural Resources ordered S. 551 favorably reported, 
without amendment.

           Committee Recommendations and Tabulation of Votes

    The Committee on Energy and Natural Resources, in open 
business session on March 29, 1995, by a unanimous vote of a 
quorum present, recommends that the Senate pass S. 551, without 
amendment.
    The rollcall vote on reporting the measure was 20 yeas, 0 
nays, as follows:
        YEAS                          NAYS
Mr. Murkowski
Mr. Hatfield \1\
Mr. Domenici
Mr. Nickles \1\
Mr. Craig
Mr. Campbell \1\
Mr. Thomas \1\
Mr. Kyl \1\
Mr. Grams
Mr. Jeffords \1\
Mr. Burns \1\
Mr. Johnston
Mr. Bumpers
Mr. Ford
Mr. Bradley
Mr. Bingaman
Mr. Akaka
Mr. Wellstone \1\
Mr. Heflin \1\
Mr. Dorgan

    \1\ Indicates voted by proxy.

                      Section-by-Section Analysis

    Section 1 entitles the bill the ``Idaho National Monument 
Boundary Revision Act of 1995''.
    Section 2 amends section 302(a) of the Arizona-Idaho 
Conservation Act of 1988 (102 Stat. 4576) adding a new 
paragraph at the end of the section. The amendment authorizes 
the Secretary of the Interior to acquire from willing sellers, 
by donation, exchange, or purchase with donated or appropriated 
funds, not more than 65 acres outside the boundary depicted on 
the map referred to in section 301(b) for the purpose of 
developing the acquired lands and operating research, 
information, interpretive, and administrative facilities. The 
section further states that such lands and facilities developed 
on them shall be administered by the Secretary as part of the 
monument. The boundary of the monument shall be modified to 
include the lands added as a noncontiguous parcel.
    Section 3(a) revises the boundaries of Craters of the Moon 
National Monument, Idaho, to add approximately 210 acres and to 
delete approximately 315 acres as generally depicted on a 
referenced map.
    Subsection (b) authorizes the Secretary of the Interior to 
acquire from willing sellers, by donation, exchange, or 
purchase with donated or appropriated funds, land and interest 
in lands within the boundary described in subsection (a).
    Subsection (c) states that lands and interests in land that 
were inside the boundary of Craters of the Moon National 
Monument prior to the boundary revisions made by this section 
and that are not inside the boundary after the revisions, shall 
be administered by the Secretary of the Interior through the 
Bureau of Land Management in accordance with the Federal Land 
Policy and Management Act of 1976 (43 U.S.C. 1701 et seq.).
    Subsection (d) authorizes such appropriations as are 
necessary to carry out this section.

                   Cost and Budgetary Considerations

    The following estimate of costs of this measure has been 
provided by the Congressional Budget Office:

                                     U.S. Congress,
                               Congressional Budget Office,
                                     Washington, DC, April 6, 1995.
Hon. Frank H. Murkowski,
Chairman, Committee on Energy and Natural Resources, U.S. Senate, 
        Washington, DC.
    Dear Mr. Chairman: The Congressional Budget Office has 
reviewed S. 551, the Idaho National Monument Boundary Revision 
Act of 1995, as ordered reported by the Senate Committee on 
Energy and Natural Resources on March 29, 1995.
    Assuming appropriation of the necessary sums, CBO estimates 
that implementing S. 551 would cost the federal government 
about $16 million over the next five years. After this period, 
costs to manage newly acquired lands and facilities would be 
between $0.5 million and $1 million per year. Enacting S. 551 
would not affect direct spending or receipts; therefore, pay-
as-you-go procedures would not apply.
    S. 551 would provide for boundary adjustments at two 
national monuments in Idaho. Section 2 of the bill would 
authorize the National Park Service (NPS) to acquire by 
purchase, donation, or exchange up to 65 acres outside the 
boundary of the Hagerman Fossil Beds National Monument. The NPS 
would use the additional acreage, which would be added to the 
monument as a noncontiguous parcel, to build a new research and 
interpretive facility. Section 3 would revise the boundaries of 
the Craters of the Moon National Monument to add about 210 
acres and delete about 315 acres. The NPS would be authorized 
to acquire added lands by purchase, donation, or exchange. 
Jurisdiction for deleted acreage would transfer to the Bureau 
of Land Management.
    Assuming appropriation of the necessary amounts, CBO 
estimates that the NPS would spend slightly less than $1 
million in fiscal year 1996 to acquire lands added to the park 
system by this bill, including incidental expenses associated 
with property donations and exchanges.
    Over the following four or five years, the agency would 
spend about $15 million to construct the new research and 
interpretive facility at Hagerman, including upfront planning 
and design expenses as well as interim administrative costs. 
Subsequent costs to operate this facility would be between $0.5 
million and $1 million annually.
    For purposes of this estimate, CBO assumed that the entire 
amounts estimated for one-time costs would be appropriated as 
needed over the next five years. The recurring costs would 
begin after this period. Actual costs would depend on the 
outcome of formal property appraisals and the NPS planning 
process. All estimates are based on information provided by the 
NPS.
    Enactment of this legislation would have no impact on the 
budgets of state or local governments.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact is Deborah Reis.
            Sincerely,
                                              James L. Blum
                                   (For June E. O'Neill, Director).

                      Regulatory Impact Evaluation

    In compliance with paragraph 11(b) of rule XXVI of the 
Standing Rule of the Senate, the Committee makes the following 
evaluation of the regulatory impact which would be incurred in 
carrying out S.551. 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. 551, as ordered reported.

                        Executive Communications

    On March 24, 1995, the Committee on Energy and Natural 
Resources has requested legislative reports from the Department 
of the Interior and the Office of Management and Budget setting 
forth Executive agency recommendations on S. 551. These reports 
had not been received at the time the report on S. 551 was 
filed. When these reports become available, the Chairman will 
request that they be printed in the Congressional Record for 
the advice of the Senate.

                        Changes in Existing Law

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, changes in existing law made by 
the bill S. 551, 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):

       Section 302 of the Arizona-Idaho Conservation Act of 1988

                          acquisition of lands

    Sec. 302. (a) * * *
          * * * * * * *
    (d) To further the purposes of the monument, the Secretary 
is also authorized to acquire from willing sellers only, by 
donation, purchase with donated or appropriated funds, or 
exchange not to exceed 65 acres outside the boundary depicted 
on the map referred to in section 301 and develop and cooperate 
thereon research, information, interpretive, and administrative 
facilities. Lands acquired and facilities developed pursuant to 
this subsection shall be administered by the Secretary as part 
of the monument. The boundary of the monument shall be modified 
to include the lands added under this subsection as a 
noncontiguous parcel.
          * * * * * * *