[Senate Report 106-187]
[From the U.S. Government Publishing Office]
Calendar No. 321
106th Congress Report
SENATE
1st Session 106-187
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GETTYSBURG NATIONAL MILITARY PARK
_______
October 14, 1999.--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. 1324]
The Committee on Energy and Natural Resources, to which was
referred the bill (S. 1324) to expand the boundaries of the
Gettysburg National Military Park to include the Wills House,
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. 1324, as ordered reported, is to expand
the boundaries of Gettysburg National Military Park to include
the Wills House in the borough of Gettysburg, Pennsylvania.
Background and Need
The Wills House, in the heart of the Borough of Gettysburg,
is the home where Abraham Lincoln stayed on the eve of
delivering his Gettysburg Address at the dedication of the
Soldiers' National Cemetery on November 19, 1863. It was at
this house where Lincoln made the final edits to his speech
that is considered by many as one of the important pieces of
oratory in the history of the United States.
David Wills, President Lincoln's host, was instrumental in
the creation of the national cemetery and led early
preservation efforts of the Gettysburg Battlefield.
The house is owned by the nonprofit Eisenhower Society. The
first floor is used as commercial space and its upper floors
contain a Lincoln museum. The Society has offered to sell the
property to the National Park Service. The Society is no longer
able to incur the costs necessary to operate and maintain the
museum.
The 1990 National Park Service ``Historic Pathways Plan''
for the Borough of Gettysburg recommended the house be the
primary site for the interpretation of the role the borough
played in the battle and its aftermath. The park's recent
general management plan (GMP) reiterates the importance of the
Wills House. Acquisition of the property would help fulfill the
park's mandate to interpret the Battle of Gettysburg in the
lower context of the Civil War and American History. It would
also provide the National Park Service with a physical presence
in the center of town.
The park has sufficient land acquisition funds available to
acquire the property. According to the GMP, restoration and
rehabilitation estimates total between $2.5 and $3 million.
Annual operating costs would be about $350,000 to $400,000.
Legislative History
S. 1324 was introduced by Senator Santorum on July 1, 1999.
The Subcommittee on National Parks, Historic Preservation and
Recreation held a hearing on S. 1324 on July 29, 1999.
At its business meeting on September 22, 1999, the
Committee on Energy and Natural Resources ordered S. 1324,
favorably reported, without amendment.
Committee Recommendation
The Committee on Energy and Natural Resources, in open
business session on September 22, 1999, by a unanimous voice
vote of a quorum present, recommends that the Senate pass S.
1324.
Section-by-Section Analysis
Section 1 amends section 1 of Public Law 101-377, ``An Act
to revise the boundary of the Gettysburg National Military Park
in the Commonwealth of Pennsylvania and for other purposes'',
to include the Wills House property in the Borough of
Gettysburg, identified as Tract PO2-1 on a map entitled
``Gettysburg National Military Park'' and numbered MARO 305/
80,011, Segment 2, dated April 1981, and revised May 14, 1999.
Section 2 amends section 2 of Public Law 101-377 to make
conforming changes to reference in section 1.
Cost and Budgetary Considerations
The following estimate of costs of this measure has been
provided by the Congressional Budget Office:
S. 1324--A bill to expand the boundaries of the Gettysburg National
Military Park to include the Wills House
Assuming appropriations of the necessary amounts, CBO
estimates that implementing S. 1324 would cost the federal
government about $4 million over the 2000-2004 period. The bill
would not affect direct spending or receipts; therefore, pay-
as-you-go procedures would not apply. S. 1324 contains no
intergovernmental or private-sector mandates as defined in the
Unfunded Mandates Reform Act and would have no significant
impact on the budgets of state, local, or tribal governments.
S. 1324 would expand the boundaries of the Gettysburg
National Military Park in Pennsylvania to include the Wills
House, a building located outside of the park in the borough of
Gettysburg.
Based on information provided by the National Park Service
(NPS) and assuming appropriation of the necessary amounts, CBO
estimates that the federal government would spend about $3
million over the next three of four years to acquire and
renovate the Wills House and to develop appropriate
interpretive exhibits. In addition, the NPS would spend between
$100,000 and $400,000 annually beginning in fiscal year 2000 to
operate the site. Operating expenses after fiscal year 2004
would be about $400,000 annually.
On September 10, 1999, CBO prepared a cost estimate for
H.R. 2435, a bill a expand the boundaries of the Gettysburg
National Military Park to include the Wills House. H.R. 2435
was ordered reported by the House Committee on Resources on
August 4, 1999. The two bills, and the two estimates, are
identical.
The CBO staff contact is Deborah Reis. This estimate was
approved by Peter H. Fontaine, Deputy Assistant Director for
Budget Analysis.
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. 1324. 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. 1324, as ordered reported.
Executive Communications
On July 29, 1999, 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 views on S. 1324. These reports had not been
received at the time the report on S. 1324 was filed. When the
reports become available, the Chairman will request that they
be printed in the Congressional Record for the advice of the
Senate. The testimony provided by the National Park Service at
the Subcommittee hearing follows:
Statement of Denis P. Galvin, Deputy Director, National Park Service,
Department of the Interior
Mr. Chairman, thank you for the opportunity to appear
before the subcommittee and to present the views of the
Department of the Interior on S. 1324, a bill to expand the
boundaries of the Gettysburg National Military Park to include
the Wills House. The Department of the Interior supports
enactment of this legislation.
Gettysburg National Military Park is the nationally
significant site of the Civil War Battle of Gettysburg and the
Soldier's National Cemetery. The Battle of Gettysburg lessened
the Confederacy's ability to successfully wage war and
contributed to the ultimate preservation of the United States.
Abraham Lincoln delivered his Gettysburg Address at the
dedication of the Soldiers' National Cemetery and heightened
Americans' sense of the meaning and importance of the Civil
War.
The park encompasses 5,900 acres of terrain upon which most
of the battle occurred. It contains more than 1,700 monuments
and cannon placed by the battle's survivors to commemorate
their comrades who fell in battle. The park also owns
collections of 38,000 artifacts and 350,000 printed texts,
historic photographs and other archival documents. The largest
and one of the most significant objects in the collection is
the cyclorama painting, the ``Battle of Gettysburg''. Together,
the land, monuments, archival collection, and the cyclorama
painting, represent a remarkable resource that can tell the
compelling story of this important time in America's history.
The National Park Service's mission at Gettysburg National
Military Park is to preserve and protect the resources
associated with the Battle of Gettysburg and the Soldier's
National Cemetery, and to provide an understanding of the
events that occurred there within the context of American
History.
In April 1997, the National Park Service (NPS) began the
planning for a new General Management Plan/Environmental Impact
Statement (GMP/EIS) to replace the park's outdated 1982 GMP.
Working with the public, NPS established four goals for the
GMP:
The land and resources of Gettysburg NMP are
protected, rehabilitated and maintained.
Visitors understand and appreciate the significant
events associated with the Gettysburg Campaign and its
impact on the development of the nation.
Visitors safely enjoy high-quality and accessible
educational experiences.
Public and private entities understand the park's
mission and act cooperatively to protect and interpret
the park and other resources related to the Gettysburg
Campaign and its commemoration.
As a part of the process, NPS held public scoping meetings,
workshops and focus group meetings; prepared and presented new
mapping and resource work to explain the 1863 battle landscape
and the changes it had undergone; and evaluated 5 preliminary
concepts. Because of public comment, a sixth combined concept
was developed. This combined concept eventually became NPS'
preferred alternative.
In August 1998, Gettysburg National Military Park released
a draft General Management Plan/Environmental Impact Statement
presenting four alternatives for future management of the
Gettysburg battlefield, setting the basic philosophy and broad
guidance for management decisions that affect the park's
resources and the visitor's experience. The draft GMP/EIS
included a preferred alternative derived from public comments
on the preliminary concepts.
The preferred alternative in the draft GMP/EIS includes a
suite of actions to improve resource protection and
interpretation at the park. In the battle action areas of the
park, the preferred alternative would include rehabilitation of
the large-scale landscape elements present during the battle--
the pattern of woods and open fields, and the system of lanes
over which troops traveled. It also proposes the rehabilitation
of small-scale landscape elements--fences, woodlots, orchards
and other features--that were significant to the outcome of the
battle. The preferred alternative would provide for the
rehabilitation of the major historic features and circulation
at the Soldiers' National Cemetery.
In addition to the measures within the park, the preferred
alternative proposed many measures to partner with the Borough
of Gettysburg and other interested parties, to improve
protection and interpretation of the battlefield-related
resources of historic downtown Gettysburg including:
Adding downtown Gettysburg to the park's auto tour
brochure as the ``fourth day'' of the battle. Since the
great majority of the park's visitors tour the
battlefield using the brochure, including the Borough
of Gettysburg as an element on the tour has the
potential to greatly increase tourism in the area.
Expanding the historic pathway and related
interpretive media and programs to encompass a greater
portion of the historic town.
Cooperating with local entities to preserve,
rehabilitate and interpret the Lincoln Train Station.
Establishing an NPS presence downtown at the Wills
House to ensure that the story of the town and its non-
combatants is properly presented and interpreted.
Developing, in coordination with local entities, an
active menu of programs, interpretation, living history
and tours to educate visitors about the town's role in
the battle, its aftermath and the preservation of the
battlefield.
Providing information about the town and site
interpreting the Gettysburg Battle and its aftermath in
the park visitor center.
Working with the community and private entities to
provide regular shuttle service between the Visitor
Center/Museum and downtown Gettysburg.
In June 1999, the NPS released its final General Management
Plan/Environmental Impact Statement for Gettysburg NMP, which
includes all the above recommendations pertaining to downtown
Gettysburg.
S. 1324 would amend Public Law 101-377, the comprehensive
boundary legislation for Gettysburg National Military Park, by
expanding the boundary of the park to include the Wills House
in the Borough of Gettysburg. The Wills House is the home where
Abraham Lincoln stayed on the eve of delivering his Gettysburg
Address at the dedication of the Soldiers' National Cemetery at
Gettysburg on November 19, 1863. David Wills, President
Lincoln's host in Gettysburg, was instrumental in the creation
of the Soldiers' National Cemetery and early preservation
efforts of the Gettysburg Battlefield. The Soldiers' National
Cemetery was the first national cemetery established to honor
U.S. veterans. It was at the Wills home where Lincoln made the
final edits to one of the most important speeches in United
States history.
The Wills House, located in the heart of the Borough of
Gettysburg, is currently owned by a non-profit organization,
the Eisenhower Society. The house's first floor is used as
commercial space and its upper floors contain a Lincoln museum.
The Eisenhower Society operates the museum. The Society has
approached the National Park Service with an offer to sell the
property to the National Park Service so the property may
become a part of Gettysburg National Military Park. The Society
is no longer able to incur the costs necessary to operate and
maintain the museum. They are a willing seller and support the
addition of the property to the park.
In 1990 the National Park Service developed the Historic
Pathways for the Borough of Gettysburg. The plan recommended
that the Wills House be the site for the primary interpretation
of the role the Borough of Gettysburg played in the battle and
its aftermath. Gettysburg National Military Park's recently
approved general management plan reiterates the importance of
the Wills House for interpreting the significant role of
Gettysburg and its citizens in the battle, its aftermath and
its commemoration.
Acquisition by the National Park Service would provide the
park with an unparalleled opportunity to fulfill the park's
legislated mandate to interpret the ``Battle of Gettysburg in
the larger context of the Civil War and American History . . .
including the causes and the consequences of the Civil War. . .
.'' Acquisition would also provide the National Park Service an
important physical presence in the center of the Borough of
Gettysburg. Such a presence is critical to providing visitors a
better understanding of how the battle and its aftermath
influenced the town and were influenced by the town.
In the park's general management plan it is estimated that
restoration and rehabilitation of the Wills House for use as a
year-round interpretive center to include the Lincoln Museum
and fabricate and install new exhibits will cost between $2.5
and $3 million. Annual operation costs are estimated at
approximately $350,000 to $400,000 including staffing and
utility costs. Acquisition costs are estimated to range from
$520,000 to $600,000. Acquisition and restoration would be
subject to the availability of funding and National Park
Service priorities.
We thank the committee for taking up this important piece
of legislation. Acquisition and rehabilitation of the Wills
House is an important factor in implementing the parks' general
management plan. It is a major investment in the Borough of
Gettysburg that the National Park Service believes is a key to
bringing the community and the park together in telling the
story of Gettysburg.
This completes my statement. I will be happy to answer
questions which you or members of the committee 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 by the
bill S. 1324, as ordered reported, are shown as follows
(existing law proposed to be omitted in enclosed in black
brackets, new matter is printed in italic, existing law in
which no change is proposed in shown in roman):
(Public Law 101-377, August 17, 1990)
Sec. 1(a). * * *
* * * * * * *
(b) Additional Land.--In addition to the land identified in
subsection (a), the park shall also include the property
commonly known as the Wills House located in the borough of
Gettysburg and identified as Tract PO2-1 on the map entitled
``Gettysburg National Military Park'' numbered MARO 305/80,011
Segment 2, and dated April 11, 1981, revised May 14, 1999.
[(b)] (c) Lands Excluded From the Park.--Lands and
interests in lands outside of the boundary so depicted as
``Park Boundary'' on the [map referred to in subsection (a)]
maps referred to in subsections (a) and (b) are hereby excluded
from the park and shall be disposed of in accordance with
provisions of section 2(c).
Sec. 2(a). * * *
* * * * * * *
(c) Conveyance of Lands Excluded From Park.--(1) The
Secretary is authorized, in accordance with applicable existing
law, to exchange Federal lands and interests excluded from the
park pursuant to section [(1b)] (1c) for the purpose of
acquiring lands within the park boundary.
* * * * * * *
(d) Relinquishment of Legislative Jurisdiction to
Pennsylvania.--With respect to any lands over which the United
States exercises exclusive or concurrent legislative
jurisdiction and which are excluded from the park pursuant to
section [(1b)] (1c), the Secretary may relinquish to the State
of Pennsylvania such exclusive or concurrent jurisdiction by
filing with the Governor a notice of relinquishment to take
effect upon acceptance thereof, unless otherwise provided by
the laws of the State.
* * * * * * *