[Senate Report 105-399]
[From the U.S. Government Publishing Office]



                                                       Calendar No. 622
105th Congress                                                   Report
                                 SENATE

 2d Session                                                     105-399
_______________________________________________________________________


 
                             U.S. ROUTE 66

                                _______
                                

  October 9 (legislative day, October 2), 1998.--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. 2133]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 2133) to designate former United States 
Route 66 as ``America's Main Street'' and authorize the 
Secretary of the Interior to provide assistance, 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. DEFINITIONS.

    In this Act:
          (1) Route 66.--The term ``Route 66'' means--
                  (A) portions of the highway formerly designated as 
                United States Route 66 that remains in existence as of 
                the date of enactment of this Act; and
                  (B) public and private land in the vicinity of the 
                highway.
          (2) Cultural resource programs.--The term ``Cultural Resource 
        Programs'' means the programs established and administered by 
        the National Park Service for the benefit of and in support of 
        cultural resources related to Route 66, either directly or 
        indirectly.
          (3) Preservation of route 66.--The term ``preservation of 
        Route 66'' means the preservation or restoration of portions of 
        the highway, businesses and sites of interest and other 
        contributing resources along the highway commemorating Route 66 
        during its period of outstanding historic significance 
        (principally between 1933 and 1970), as defined by the July 
        1995 National Park Service ``Special Resource Study of Route 
        66.''
          (4) Secretary.--The term ``Secretary'' means the Secretary of 
        the Interior, acting through the Cultural Resource Programs at 
        the National Park Service.
          (5) State.--The term `State' means a State in which a portion 
        of Route 66 is located.

SEC. 2. DESIGNATION.

    Route 66 is designated as ``Route 66 National Historic Highway''.

SEC. 3. MANAGEMENT.

    (a) In General.--The Secretary, in collaboration with the entities 
described in subsection (c), shall facilitate the development of 
guidelines and a program of technical assistance and grants that will 
set priorities for the preservation of Route 66.
    (b) Designation of Officials.--The Secretary shall designate 
officials of the National Park Service stationed at locations 
convenient to the States to perform the functions of the Cultural 
Resource Programs under this Act.
    (c) General Functions.--The Secretary shall--
          (1) support efforts of State and local public and private 
        persons, nonprofit Route 66 preservation entities, Indian 
        Tribes, State Historic Preservation Offices, and entities in 
        the States to preserve Route 66 by providing technical 
        assistance, participating in cost-sharing programs, and making 
        grants;
          (2) act as a clearinghouse for communication among Federal, 
        State, and local agencies, nonprofit Route 66 preservation 
        entities, Indian Tribes, State Historic Preservation Offices, 
        and private persons and entities interested in the preservation 
        of Route 66; and
          (3) assist the States in determining the appropriate form of 
        and establishing and supporting a non-Federal entity or 
        entities to perform the functions of the Cultural Resource 
        Programs after those programs are terminated.
    (d) Authorities.--In carrying out this Act, the Secretary may--
          (1) collaborate with the Secretary of Transportation to:
                  (A) address transportation factors they may conflict 
                with preservation efforts in such a way as to ensure 
ongoing preservation, interpretation and management of route 66 
National Historic Highway; and
                  (B) take advantage, to the maximum extent possible, 
                of existing programs, such as the Scenic Byways program 
                under Section 162 of title 23, United States Code.
          (2) enter into cooperative agreements, including, but not 
        limited to study, planning, preservation, rehabilitation and 
        restoration;
          (3) accept donations:
          (4) provide cost-share grants and information;
          (5) provide technical assistance in historic preservation; 
        and
          (6) conduct research.
    (e) Road Signs.--The Secretary may sponsor a road sign program on 
route 66 to be implemented on a cost-sharing basis with State and local 
organizations.
    (f) Preservation Assistance.--
          (1) In general--The Secretary shall provide assistance in the 
        preservation of Route 66 in a manner that is compatible with 
        the idiosyncratic nature of the highway.
          (2) Planning--The Secretary shall not prepare or require 
        preparation of an overall management plan for Route 66, but 
        shall cooperate with the States and local public and private 
        persons and entities, State Historic Preservation Offices, 
        nonprofit Route 66 preservation entities, and Indian Tribes in 
        developing local preservation plans to guide efforts to protect 
        the most important or representative resources of Route 66.

SEC. 4. RESOURCE TREATMENT.

    (a) Technical Assistance Program.--
          (1) In general--The Secretary shall develop a program of 
        technical assistance in the preservation of Route 66.
          (2) Guidelines for preservation needs--
                  (A) In general--As part of the program under 
                paragraph (1), the Secretary shall establish guidelines 
                for setting priorities for preservation needs.
                  (B) Basis--The guidelines under subparagraph (A) may 
                be based on national register standards, modified as 
                appropriate to meet the needs of Route 66 so as to 
                allow for the preservation of Route 66.
    (b) Program for Coordination of Activities.--
          (1) In general--The Secretary shall coordinate a program of 
        historic research, curation, preservation strategies, and the 
        collection of oral and video histories of Route 66.
          (2) Design--The program under paragraph (1) shall be designed 
        for continuing use and implementation by other organizations 
        after the Cultural Resource Programs are terminated.
          (c) Grants--The Secretary shall--
          (1) make cost-share grants for preservation of Route 66 
        available for resources that meet the guidelines under 
        subsection (a); and
          (2) provide information about existing cost-share 
        opportunities.

SEC. 5. AUTHORIZATION OF APPROPRIATIONS.

    There are authorized to be appropriated 10,000,000 for the period 
of fiscal years 2000 through 2009 to carry out the purposes of this 
Act.

                         Purpose of the Measure

    The purpose of S. 2133, as ordered reported, is to 
designate former United States Route 66 as ``Route 66 National 
Historic Highway''; to authorize the Secretary of the Interior 
to establish a cultural resource program in support of cultural 
resources related to Route 66; provide technical assistance to 
State, local and private persons; participate in cost sharing 
programs; and administer a grant program.

                          Background and Need

    U.S. Highway 66, popularly known as ``Route 66,'' is 
significant as the nation's first highway linking Chicago with 
Los Angeles. In its day, Route 66 symbolized freedom and 
mobility for every citizen who could afford to own and operate 
a car.
    Beginning at the corner of Jackson Boulevard and Michigan 
Avenue in Chicago, Route 66 wound 2,400 miles to Santa Monica, 
California. Route 66 linked the rural West to the densely 
populated urban Midwest and Northeast. Gas stations, motels, 
restaurants, and grocery stores were built along the route to 
service an increasingly mobile public. Route 66's period of 
greatest historical significance was between 1933 and 1970.
    Congress authorized a Special Resource Study (Public Law 
102-400), for Route 66 in 1990. The study was completed in July 
1995. The study found that Route 66 is nationally significant 
and that representative structures, features, and artifacts 
remain along the historic route, although remnants of the road 
are quickly disappearing.
    The study identified five alternatives. This legislation 
closely depicts alternative five. Under this alternative, Route 
66 will be designated as a national historic highway. 
Partnerships between the Federal Government and local 
organizations will be established to preserve historic 
resources along Route 66. The National Park Service will 
provide technical assistance, participate in cost sharing 
programs, and administer a grant program.

                          Legislative History

    S. 2133 was introduced on June 4, 1998 by Senator Domenici 
and Senator Bingaman and referred to the Committee on Energy 
and Natural Resources. The Subcommittee on National Parks, 
Historic Preservation, and Recreation held a hearing on S. 2133 
on September 17, 1998.
    At its business meeting on September 24, 1998, the 
Committee on Energy and Natural Resources ordered S. 2133, 
favorably reported, as amended.

                        Committee Recommendation

    The Committee on Energy and Natural Resource, in open 
business session on September 24, 1998, by a unanimous voice 
vote of a quortum present, recommends that the Senate pass S. 
2133, if amended as described herein.

                          Committee Amendment

    During the consideration of S. 2133, the Committee adopted 
an amendment in the nature of a substitute. The amendment 
designates former United States Route 66 as ``Route 66 National 
Historic Highway''.
    In addition, the amendment provides that the Secretary 
shall establish cultural resource programs to support efforts 
by State, local, public and private persons, Indian Tribes, and 
State Historic Preservation Offices to preserve Route 66. The 
Secretary, in collaboration with other entities, is to 
establish guidelines for setting priority preservation needs, 
provide technical assistance, participate in cost sharing 
programs, make grants, and act as a clearinghouse for 
communication between parties interested in the preservation of 
Route 66.
    Officials of the National Park Service stationed at 
locations convenient to the States are to perform the functions 
of the cultural resource programs until a non-Federal entity is 
established to perform those duties.
    The Secretary is directed to coordinate with the Secretary 
of Transportation to address transportation factors that may 
conflict with the preservation of Route 66 and take advantage 
of existing programs such as the Scenic Byways program. In 
addition, the Secretary will sponsor a road sign program on 
Route 66 to be implemented on a cost-sharing basis with State, 
local, and private organizations.

                      Section-by-Section Analysis

    Section 1 defines certain key terms in the Act.
    Section 2 designates the bill's short title as ``Route 66 
National Historic Highway''.
    Section 3 directs the Secretary, in collaboration with 
other entities, to facilitate the development of guidelines and 
a program of technical assistance andgrants that will set 
priorities for the Preservation of Route 66. The Secretary will 
identify individuals of the National Park Service to perform the 
functions of the Cultural Resource Programs.
    Section 3 states that the Secretary will support efforts by 
State, local, public and private persons, Indian Tribes, and 
State Historic Preservation Offices to preserve Route 66 by 
providing technical assistance, participating in cost sharing 
programs, making grants, and act as a clearinghouse for 
communication among Federal, State, and local agencies, and 
private persons interested in preservation of Route 66. The 
Secretary will assist the States in establishing a non-Federal 
entity to perform the functions of the Cultural Resource 
Program after Federal involvement is terminated.
    This section states that the Secretary may coordinate with 
the Secretary of Transportation to address transportation 
factors that may conflict with the preservation of Route 66 and 
take advantage of existing programs such as the Scenic Byways 
program. This section also provides that the Secretary may 
enter into cooperative agreements, accept donations, provide 
cost-share grants, provide technical assistance in historic 
preservation, and conduct research.
    In addition, this section states that the Secretary shall 
sponsor a road sign program along Route 66 to be implemented on 
a cost-sharing basis with State and local organizations. The 
Secretary is required to provide assistance in the preservation 
of Route 66 in a manner that is compatible with the 
characteristic nature of the highway. This section directs the 
Secretary to coordinate with the States, local and private 
persons and entities, and Indian Tribes in developing local 
preservation plans to protect the resources of Route 66.
    Section 4 states that the Secretary shall develop a 
technical assistance program for the preservation of Route 66. 
Guidelines will be established to set priority preservation 
needs that may be based on national register standards, 
modified to meet the needs of Route 66 preservation. Under this 
section, the Secretary will coordinate a program of research, 
curation, and the collection of oral and video histories of 
Route 66, and administer cost-share grants for resources that 
meet the guidelines established under this act.
    Section 5 authorizes the appropriation of $10,000,000 for 
the years 2000 through 2009 to carry out this Act.

                   cost and budgetary considerations

    The Congressional Budget Office estimate of the cost of 
this measure has been requested but was not received at the 
time the report was filed. When the report is available, the 
Chairman will request it to be printed in the Congressional 
Record for the advise of the Senate.

                      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. 2133. The bill is not a regulatory measure in 
the sense of imposing Government-established standards of 
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 
enactment of S. 2133, as ordered reported.

                        executive communications

    On September 3, 1998, the Committee on Energy and Natural 
Resources requested legislative reports from the Department of 
the Interior and the Office of Management and Budget setting 
forth Executive agency recommendations on S. 2133. These 
reports had not been received at the time the report on S. 2133 
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. The testimony of the Department 
of the Interior at the Subcommittee hearing follows:

   Statement of Destry Jarvis, Assistant Director, External Affairs, 
           National Park Service, Department of the Interior

    Mr. Chairman and members of the subcommittee, thank you for 
the opportunity to appear before you to address S. 2133, a bill 
to designate U.S. Route 66 as ``America's Mainstreet'' and to 
authorize the Secretary of the Interior to provide assistance 
in preservation and other activities. We support the intention 
of this legislation to recognize Route 66 and thank Senator 
Domenici and Senator Bingaman for sponsoring it. We recommend, 
however, that the Committee defer action on this bill until we 
have been able to address our concerns outlined below and 
consider other alternatives that may be more appropriate.
    The bill is based upon one of the conceptual alternative 
strategies (Alternative 5) identified in the July 1995 National 
Park Service Special Resources Study of Route 66. The Route 66 
Study Act (Public Law 102-400) directed the Secretary of the 
Interior, to coordinate with the respective states, the state 
historic preservation offices, representatives of groups 
interested in the preservation of Route 66 and its features, 
and other knowledgeable persons in preparation of the study. 
The study was to determine the significance of Route 66 in 
American history and to provide options for preservation and 
use of remaining segments of Route 66. The study also 
identified options for preservation and interpretation of 
significant features related to the highway, and considered 
private sector preservation alternatives. The study, however, 
did not propose using limited National Park Service (NPS) funds 
to provide grants for non-federal activities outside of park 
boundaries.
    S. 2133 would establish an ``Office for the Preservation of 
America's Mainstreet'' by the Secretary of the Interior. The 
office and its activities would terminate 10 years after the 
bill's enactment. The office would provide technical 
assistance; make grants and loans; and would serve as a 
clearinghouse for communication between agencies, 
organizations, and individuals with interest in Route 66 
preservation. The bill would permit the office to enter into 
cooperative agreements, to accept donations, to provide 
technical assistance in historic preservation and fundraising, 
to conduct research, and to sponsor a road sign program on a 
cost-share basis with state and local organizations. The bill 
would direct the preservation office to provide assistance 
compatible with the idiosyncratic nature of the highway and to 
cooperate with others to develop local preservation plans.
    S. 2133 would direct the preservation office to establish 
guidelines for setting preservation priorities, which might be 
based on the National Register of Historic Places standards, 
modified to preserve the spirit of Route 66. Lastly, the bill 
would direct the preservation office to coordinate a program of 
historic research, curation, preservation strategies, and the 
collection of oral and video histories of Route 66.
    The National Park Service believes that S. 2133 captures in 
broad terms many of the special resource study's findings and 
focuses on the cooperative partnership aspects of Alternative 
5. The study has documented that Route 66 is nationally 
significant with respect to twentieth century history.
    The spread of population west is one of the primary themes 
in the history of this nation. The first great migration 
trails, Oregon, California and Santa Fe, allowed American 
citizens to move west with the promise of free land and 
economic opportunity. A century later, those rut-filled 
corridors yielded to the smooth and fast highways we now enjoy. 
Foremost among those early highways was U.S. Highway 66.
    It first captured the imagination and became a symbol for 
many changes in twentieth century America, beginning with the 
Dust Bowl migration to California. Immortalized in song, book 
and film, Route 66 helped Americans recover from the 
Depression, moved war supplies, opened up the Southwestern 
landscape to tourism and post-war migration of families to the 
dynamic job market of California.
    A trip down Route 66 was an adventure through mainstream 
America. Its route was colorfully accentuated by locally owned 
mom and pop motels and restaurants, garish souvenir shops and 
novel roadside entertainment activities, all competing for 
business with distinctive advertising and architectural motifs 
designed to capture interest.
    Ironically Route 66's demise was due to its success. 
Americans became increasingly mobile in the ``baby boom era.'' 
This two-lane roadway simply could not handle the ever-growing 
volume of truck and vehicle traffic. The interstate highway 
system became the new and improved way to travel across the 
nation. By 1985, the route was so fragmented and confusing that 
it lost its official U.S. Highway 66 designation. Today, 
portions of it are incorporated in state and local highway 
systems. Despite its official demise, it has remained part of 
the landscape and in the minds of many Americans who traveled 
on its path.
    The Administration has a number of concerns about the 
proposed bill and several technical recommendations to clarify 
and enhance the bill's intents. These center on:
          the long-term national stature and protection 
        afforded by the designation of Route 66 as ``America's 
        Mainstreet,''
          the unlimited availability of NPS funds to provide 
        grants for non-federal activities outside park 
        boundaries,
          the lack of a specific identifed role by the State 
        Historic Preservation Offices in the planning and 
        preservation efforts,
          the inappropriate authority to make loans,
          the need to identify a defined historic period to 
        focus preservation efforts,
          the need to provide for coordination with the 
        Secretary of Transportation and state transportation 
        agencies to ensure that transportation programs are 
        effectively used and safety for users is addressed,
          the establishment of a separate National Park Service 
        office, instead of using existing resources, and
          the need to clarify functional purposes.
    To promote public awareness, appreciation, incentives for 
preservation and to avoid confusion with other programs and 
roads we believe that Route 66 should have a more prestigious 
title that reflects its true historic significance and would 
distinguish this from other programs. It should be recognized 
that there are ongoing efforts to coordinate between the 
National Scenic Byways Program under the Department of 
Transportation, land management agencies, and state agencies to 
effectively address Route 66, especially in New Mexico and 
Arizona. We believe, therefore, the planning emphasis would be 
more effective if the state historic preservation offices and 
the state transportation offices jointly led the development of 
state-wide Route 66 preservation plans, building in local plans 
as appropriate so that all plans meet the criteria set by the 
Secretary of the Interior.
    We also believe that the bill should set parameters on the 
historic period so that only the most important and relevant 
historic resources are eligible for preservation assistance. 
For the long-term safety of users of Route 66 as well as 
continued preservation efforts, the Secretaries of Interior and 
Transportation should be directed to work together to develop 
practical methods for preserving and managing the highway. 
Coordination with the Department of Transportation should also 
address opportunities for building on existing transportation 
programs.
    And finally there are other functions that the federal 
preservation office should perform, including interpretive 
planning assistance to grassroots organizations. The 
Administration, however, opposes giving loan authority to an 
organization without lending experience or need and without 
reference to Credit Reform Act requirements. The Administration 
also has concerns with the unlimited authority to allocate NPS 
funds for grants for non-federal activities outside of park 
boundaries. Given funding limitations and existing park needs, 
NPS contributions should be limited to technical and 
preservation assistance.
    Route 66 was not America's first or longest highway. 
Nevertheless, this road appeared on the American scene at the 
very moment economic disaster and complete global conflict 
influenced the most comprehensive westward migration in the 
nation's history. Like the early trails of the 19th century. 
Route 66 helped to spirit a second and perhaps more permanent 
mass relocation of Americans.
    We appreciate the committee's interest in the legislation, 
and look forward to working with you on our proposed 
recommendations. That concludes my remarks Mr. Chairman and 
members of the committee. I would be happy to respond to any 
questions that you may have.

                        changes in existing law

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, the Committee notes that no 
changes in existing law are made by the S. 2133, as ordered 
reported.