[Senate Report 105-404]
[From the U.S. Government Publishing Office]



                                                       Calendar No. 627
105th Congress                                                   Report
                                 SENATE

 2d Session                                                     105-404
_______________________________________________________________________


 
               ADAMS NATIONAL HISTORICAL PARK ACT OF 1998

                                _______
                                

 October 10 (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. 2240]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 2240) to establish the Adams National 
Historical Park in the Commonwealth of Massachusetts, and for 
other purposes, having considered the same, reports favorably 
thereon with amendments and recommends that the bill, as 
amended, do pass.
    The amendments are as follows:
    1. On page 4, strike lines 1 through 6 and insert the 
following:
          ``(1) Historical park.--The term `historical park' 
        means the Adams National Historic Park established in 
        section 4.''.
    2. On page 4 strike section 4 in its entirety and insert 
the following:

``SEC. 4. ADAMS NATIONAL HISTORICAL PARK.

    ``(a) Establishment.--In order to preserve for the benefit 
and inspiration of the people of the United States as a 
national historical park certain properties in Quincy, 
Massachusetts, associated with John Adams, secondPresident of 
the United States, his wife, Abigail Adams, John Quincy Adams, sixth 
President of the United States, and his wife, Louisa Adams, there is 
established the Adams National Historical Park as a unit of the 
National Park System.
    ``(b) Boundaries.--
          ``(1) The historical park shall be comprised of the 
        following:
                  ``(A) all property administered by the 
                National Park Service in the Adams National 
                Historic Site as of the date of enactment of 
                this Act, as well as all property previously 
                authorized to be acquired by the Secretary for 
                inclusion in the Adams National Historic Site, 
                as generally depicted on the map entitled 
                ``Adams National Historical Park'', numbered 
                NERO 386/80,000, and dated April 1998; and
                  ``(B) all property authorized to be acquired 
                for inclusion in the historical park by this 
                Act or other law enacted after the date of the 
                enactment of this Act.
    ``(c) Visitor and Administrative Sites.--To preserve the 
historical character and landscape of the main features of the 
historical park, the Secretary may acquire up to 10 acres for 
the development of visitor, administrative, museum, curatorial, 
and maintenance facilities adjacent to or in the general 
proximity of the property depicted on the map identified in 
subsection (b)(1)(A).
    ``(d) Map.--The map of the historical park shall be on file 
and available for public inspection in the appropriate offices 
of the National Park Service.''.
    3. On page 6 following subsection (c) insert the following 
new subsections:
    ``(d) Repeal of Superceded Administrative Authorities.--
          ``(1) Section 312 of the National Parks and 
        recreation Act of 1978 (Public Law 95-625; 92 Stat. 
        3479) is amended by striking `(a)' after `SEC. 312'; 
        and strike subsection (b) in its entirety.
          ``The first section of Public Law 96-435 (94 Stat. 
        1861) is amended by striking `(a)' after `That'; and 
        strike subsection (b) in its entirety.
    ``(e) References to the Historic Site.--Any reference in 
any law [other than this Act], regulation, document, record, 
map, or other paper of the United States to the Adams National 
Historic Site shall be considered to be a reference to the 
historical park.''.
    4. On page 6, strike lines 10 through 15, and insert in 
lieu thereof: ``There is authorized to be appropriated such 
sums as may be necessary to carry out this Act.''.

                         Purpose of the Measure

    The purpose of S. 2240 is to expand the boundaries of Adams 
National Historical Site in the Commonwealth of Massachusetts 
by approximately ten acres and to redesignate the Adams 
National Historical Site as the ``Adams National Historical 
Park''.

                          Background and Need

    The Adams National Historic Site (Historic Site) was 
established in 1946 and commemorates the Adams family's 
political contributions to the United States. The site consists 
of the birthplaces of John Adams and John Quincy Adams, the 
second and sixth U.S. Presidents, and the family's Old House 
that was occupied by four generations of the Adams family. The 
site contains over 30,000 artifacts, including original 
furnishings.
    The Adams National Historic Site General Management Plan 
(Plan) recommends that the park acquire property for a 
permanent visitor center in the city of Quincy, in order to 
provide visitor services for the Historic Site. The plan notes 
that there are no appropriate sites for development within the 
current boundary due to the integrity of the cultural and 
historic landscape, historic landmark status, and the adjacent 
floodplain. The National Park Service has missed several 
opportunities to accept lands or property by donation, or 
acquire buildings that have become available in the city of 
Quincy, due to legislative restrictions. This legislation would 
allow the Secretary of the Interior to acquire up to 10 acres 
in Quincy, Massachusetts to develop administrative facilities.
    Since the establishment of the Historic Site, several 
properties have been added including the Beale Estate, the 
Adam's Birthplaces, and the United First Parish Church 
containing the Adams Crypt. S. 2240 would re-designate the 
Historic Site as Adams National Historical Park to more 
accurately reflect the site's current configuration.

                          Legislative History

    S. 2240 was introduced on June 26, 1998 by Senator 
Murkowski at the request of the administration, and referred to 
the Committee on Energy and Natural Resources. The Subcommittee 
on National Parks, Historic Preservation, and Recreation held a 
hearing on S. 2240 on September 17, 1998.
    At its business meeting on September 24, 1998, the 
Committee on Energy and Natural Resources ordered S. 2240, 
favorably reported as amended.

            Committee Recommendation and Tabulation of Votes

    The Committee on Energy and Natural Resources, in open 
business session on September 24, 1998, by a unanimous voice 
vote of a quorum present, recommends that the Senate pass S. 
2240, if amended as described herein.

                          Committee Amendment

    During the consideration of S. 2240, the Committee adopted 
an amendment which made technical corrections needed to clarify 
the billincluding revised definitions, boundary descriptions 
and related reference maps.

                      Section-by-Section Analysis

    Section 1 designates the bill's short title as the ``Adams 
National Historical Park Act of 1998.''
    Section 2 lists the findings and purposes of the bill. In 
addition, the section states the purpose of the bill is to 
establish the Adams National Historical Park.
    Section 3 defines certain key terms in the Act comprising 
the Adams National Historical Site.
    Section 4 designates certain properties in Quincy, 
Massachusetts, the Adams National Historical Park as a unit of 
the National Park System. Section 4 states the historical park 
shall be comprised of all property currently owned by the 
National Park Service as well as all property previously 
authorized to be acquired, as generally depicted on the map 
entitled Adams National Historical Park, numbered NERO 386/
80,000 and dated April, 1998. Property authorized to be 
acquired by this act or other law enacted after this act will 
be included in the Historical Park.
    This section also authorizes the Secretary of the Interior 
(Secretary) to acquire up to 10 additional acres for the 
development of visitor, administrative, museum, curatorial, and 
maintenance facilities adjacent to or in the general proximity 
of the property depicted on the map identified in this section. 
The map will be on file with the National Park Service and 
available to the public.
    Section 5 states the park shall be administered by the 
Secretary in accordance with this section and the provisions of 
law generally applicable to units of the National Park System, 
including the Act entitled ``An Act to establish a National 
Park Service, and for other purposes'', approved August 25, 
1916 (39 Stat. 535; 16 U.S.C. 1, 2, 3, and 4) and the Act of 
August 21, 1935 (49 Stat. 666; 16 U.S.C. 461-467), as amended.
    Subsection (b) allows the Secretary to consult and enter 
into cooperative agreements with interested entities and 
individuals to provide for the preservation development, 
interpretation, and use of the park. Section 5 also provides 
that any payment made by the Secretary pursuant to a 
cooperative agreement be subject to an agreement that 
conversion, use, or disposal of the project for purposes 
contrary to the purposes of this Act shall result in a right of 
the United states to reimbursement of all funds made available 
to such a project or the proportion of the increased value of 
the project at the time of such conversion, use, or disposal, 
whichever is greater.
    Subsection (c) authorizes the Secretary to acquire property 
with appropriated or donated funds, by donation, or by 
exchange, within the boundaries of the park.
    Subsection (d) amends Public Law 95-625 and Public Law 96-
435 repealing administrative authority to manage the area as a 
historical site.
    Subsection (e) clarifies that reference in any written 
document to the Adams National Historic Site will considered to 
be a reference to the Adams National Historical Park.
    Section 6 authorizes appropriations necessary to carry out 
this Act.

                   Cost and Budgetary Considerations

    The Congressional Budget Office estimates of the costs 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 advice 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. 2240. 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. 2240, as ordered reported.

                        Executive Communications

    S. 2240 was introduced at the request of the 
Administration. On February 23, 1998, the Department of the 
Interior transmitted a letter to the Energy and Natural 
Resources Committee requesting that the bill be introduced and 
passed. A copy of the letter and the testimony of the National 
Park Service follows:

                        Department of the Interior,
                                   Office of the Secretary,
                                 Washington, DC, February 23, 1998.
Hon. Albert Gore, Jr.,
President of the Senate,
Washington, DC.
    Dear Mr. President: Enclosed is a draft bill ``To establish 
the Adams National Historical Park in the Commonwealth of 
Massachusetts and for other purposes.''
    We recommend the bill be introduced, referred to the 
appropriate committee,and enacted.
    The legislation would establish the Adams National 
Historical Park in Quincy, Massachusetts. Currently the 
proposed Adams National Historical Park is designated as a 
National Historic Site. It was established by Secretarial Order 
in 1935 based on the Historic Sites Act. It was expanded in 
1952 again by Secretarial Order. In 1972, 1978 and 1980, 
Congress added more acreage to the site and authorized the 
addition of two separate properties to the historic site. The 
continued expansion of the historic site with the addition of 
separate properties all focused on the life and history of John 
Adams, Abigail Adams, John Quincy Adams, and their descendants, 
qualifies the existing National Park System unit for 
designation as a national historical park.
    The legislation would authorized the acquisition of ten 
additional acres for development of visitor and administrative 
facilities to protect the historical setting and integrity of 
the historical park. The legislation directs that the 
historical park be managed in accord with the laws applicable 
to units of the National Park System, in particular the 
National Park Service Organic Act of 1916 and the Historic 
Sites Act of 1935. The legislation also provides specific 
cooperative agreement authority to the historical park to work 
with outside entities and individuals on the preservation, 
development, interpretation, and use of the site.
    The redesignation of Adams National Historic Site to Adams 
National Historical Park is the important recognition that the 
collection of sites in Quincy, Massachusetts, related to the 
lives of John Adams, 2nd President of the United States, his 
wife Abigail and their descendants, including their son, John 
Quincy Adams, 6th President of the United States, properly 
deserves. The authorities for land acquisition and cooperative 
agreements are critical for the successful protection, 
development, interpretation and use of the Adams National 
Historical Park.
    The Office of Management and Budget has advised that there 
is no objection to the enactment of the enclosed draft 
legislation from the standpoint of the Administration's 
program.
            Sincerely,
                                      Donald Barry,
                             Acting Assistant Secretary for
                                       Fish and Wildlife and Parks.
                                ------                                


 Statement of Destry Jarvis, Assistant Director for 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 present the Department 
of the Interior's views on S. 2240, a bill to establish Adams 
National Historical Park in the Commonwealth of Massachusetts. 
The Department of the Interior strongly supports this bill.
    Senator Murkowski introduced S. 2240 at the request of the 
Administration. If enacted, S. 2240 would rename the Adams 
National Historic Site, more accurately reflecting its multi-
unit status, and would authorize acquisition of ten additional 
acres to improve visitor services, curatorial and maintenance 
facilities. The bill would also authorize appropriations for 
annual operations and maintenance of the historical park and 
reaffirm its cooperative agreement authorities.
    The expansion of park programs has resulted in a great need 
for additional administrative, interpretive and maintenance 
workspace to adequately manage programs. Authorizing this land 
acquisition increase will afford the park the opportunity to 
remove inappropriate uses from historic structures, as well as 
to correct unsafe working conditions, by removing 
administrative and maintenance functions from the 1873 Adams 
Carriage House, located at the Old House Unit of the historic 
site.
    Adams National Historic Site was established in 1946, to 
preserve and protect the cultural landscape, home and 
possessions of four generations of the Adams family including 
Presidents John Adams and John Quincy Adams, and to educate the 
general public about their significance to future generations. 
A deed of gift transferred the ``Old House'' (Adams Mansion) 
from the Adams family to the National Park Service. Originally 
designated Adams Mansion National Historic Site, the boundary 
was expanded legislatively in 1952 and the site renamed as 
Adams National Historic Site. Subsequent legislation (in 1972, 
1978, and 1980) further expanded the site such that it now 
comprises three separate units within a 1.5-mile radius of the 
Old House, all within the city of Quincy, Massachusetts.
    The park provides national and international visitors, 
researchers, and students a unique opportunity to explore the 
presidency and the Adams family from the cradle (their two 
birthplaces and summer White House) to the grave (the final 
resting place of two presidents and their wives in the Adams' 
crypt). The homes reflect the residency of one of America's 
most distinguished families; two Presidents of the United 
States (the only father and son presidents in this country), 
diplomats, legislators, literary figures, and economic leaders.
    The Old House, a fine wooden structure purchased by John 
and Abigail Adams in 1787 contains some 78,000 artifacts once 
owned by the Adams family during their occupancy, which 
extended from 1788 to 1927. The collections of furniture, 
paintings, books, and documents help to tell the story of the 
Adams family and their important roles in our national history 
from the colonial period through the industrial age.
    The Stone Library (the first presidential library), 
adjacent to the Old House, contains some 14,000 volumes 
including original documents relating to our country's history 
including George Washington's Farewell Address, and the Mendi 
Bible, given to President John Quincy Adams while he served in 
Congress and defended the Mendi captives on board the Amistad.
    Through previous acquisition of the adjacent Beale Estate, 
the historic property has been protected against encroachment. 
Including a 1792 Georgian structure surrounded by five 
landscaped acres, the Beale Estate protects the park boundary 
from inappropriate development and insures that the cultural 
landscape remains open, as it was when John Adams lived at the 
Old House.
    The birthplace homes of John Adams and John Quincy Adams, 
18th century wooden frame structures, were transferred to the 
National Park Service from the City of Quincy in 1979. The 
United First Parish Church, a National Historic Landmark, is 
the burial place of Presidents John Adams and John Quincy Adams 
and their first ladies, Abigail and Louisa Catherine. The 
church is authorized for conveyance to the National Park 
Service. This active parish is accessible to the public, and 
forms an integral part of the park's interpretive programs 
through a memorandum of understanding.
    An interim visitor center is located in Quincy Center in a 
rented portion of an office building. It serves a critical role 
as the place where visitors are oriented to the park, and as 
the hub of the trolley bus system that connects the three 
sites. Current authorizing legislation does not permit fee 
acquisition of this space, making the National Park Service 
subject to the whims of the marketplace and private owners who 
may or may not share the mission of the NPS. This bill would 
allow the NPS to secure permanent space in a suitable location 
near the three sites and guarantee that investments made would 
have a longer useful life. Several suitable locations were 
identified during preparation of the park's recently adopted 
General Management Plan, and this bill would allow the managers 
to work with the City of Quincy to act quickly should one of 
the appropriate properties become available. Land acquisition 
or construction projects would be subject to the availability 
of funding for NPS priorities.
    In addition, the park is in great need of curatorial work 
and storage space. It seeks to meet this need by developing 
space in conjunction with the Museum Services Center, an NPS 
technical office about to be displaced from another location in 
the Boston metropolitan area. A small increase in land 
acquisition authority would enable the park to accept in 
donation or to purchase a suitable building for this purpose, 
possibly in the same structure as a permanent visitor center. 
The Museum Services Center serves the Northeast Region whose 
National Park sites contain collections, as wide-ranging as 
FDR's wheelchair and George Washington's campaign tent. These 
priceless objects preserve the nation's heritage and the 
Northeast Museum Services Center helps the parks to fulfill 
their cultural resource management, conservation and 
preservation responsibilities.
    Cooperative agreement authority will reaffirm the park's 
ability to work in partnership with its community in areas of 
mutual concern such as education and tourism. This in turn will 
help the park with its facility expansions, transportation 
system, and operational needs.
    All of the proposed authorities contained in this bill are 
consistent with the park's approved 1996 General Management 
Plan, and are supported by the Adams Memorial Society, 
consisting of members of the Adams family.
    Subsequent to transmittal of the Administration's proposal, 
we determined that there were technical corrections needed to 
clarify the bill. These amendments include clearer definitions, 
issues concerning the boundary descriptions and related 
reference maps, and technical amendments conforming this bill 
language to existing laws. The proposed text of these 
amendments is attached to this testimony.
    Mr. Chairman, that concludes my prepared remarks. I would 
be happy to answer any questions you may have.

                        Changes in Existing Law

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, changes in existing law made by 
the bill S. 2240, as ordered reported, are shown as follows 
(existing law proposed to be omitted is enclosed in black 
brackets, new matter is printed in italic, existing law in 
which no change is proposed is shown in roman):

                 (Public Law 95-625, November 10, 1978)

    Sec. 312. [(a)] In order to preserve for the benefit, 
education, and inspiration of present and future generations 
the birthplace of John Adams and John Quincy Adams, the 
Secretary is authorized to accept the conveyance, without 
monetary consideration, of the property known as the John Adams 
Birthplace at 133 Franklin Street, and the property known as 
the John Quincy Adams Birthplace at 141 Franklin Street, in 
Quincy, Massachusetts, together with such adjacent real 
property as may be desirable, for administration as part of the 
Adams National Historic Site in Quincy, Massachusetts. Together 
with, or following such conveyance, the Secretary is authorized 
to accept the conveyance, without monetary consideration of 
furnishings and personal property relating to such birthplaces, 
after consultation with appropriate officials of the city of 
Quincy and with the owner or owners of such furnishings and 
personal property.
    [(b) The Secretary shall administer the properties acquired 
pursuant to subsection (a) of this section as part of the Adams 
National Historic Site in accordance with this section and the 
provisions of law generally applicable to national historic 
sites, including the Act of August 25, 1916 (39 Stat. 535) and 
the Act of August 21, 1935 (49 Stat. 666).]

           *       *       *       *       *       *       *


                 (Public Law 96-435, October 10, 1980)

    Be it enacted by the Senate and House of Representatives of 
the United States of America in Congress assembled, That [(a)] 
in order to preserve for the benefit, education, and 
inspiration of present and future generations the church in 
which John Adams, John Quincy Adams, and Abigail Adams are 
buried, the Secretary of the Interior (hereinafter in this Act 
referred to as the ``Secretary'') is authorized to accept the 
conveyance, without monetary consideration, of the following 
for administration as part of the Adams National Historic Site 
in Quincy, Massachusetts:
          (1) The property known as the United First Parish 
        Church, at 1306 Hancock Street, Quincy, Massachusetts, 
        together with such adjacent real property as the 
        Secretary considers desirable.
          (2) The furnishings and personal property located in 
        the United First Parish Church, after consultation with 
        the chairman of the board of the United First Parish 
        Church and with the owners of such furnishings and 
        personal property.
    [(b) The Secretary shall administer the property acquired 
pursuant to subsection (a) of this section as part of the Adams 
National Historic Site in accordance with this section and the 
provisions of law generally applicable to national sites, 
including the Act of August 25, 1916 (16 U.S.C. 1 et seq.) and 
the Act of August 21, 1935 (16 U.S.C. 461 note).]

                                
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