[Senate Report 106-441]
[From the U.S. Government Publishing Office]



                                                       Calendar No. 886
106th Congress                                                   Report
                                 SENATE
 2d Session                                                     106-441

======================================================================



 
                   CALIFORNIA TRAIL INTERPRETIVE ACT

                                _______
                                

               September 29, 2000.--Ordered to be printed

   Filed under authority of the order of the Senate of September 28 
                 (legislative day, September 22), 2000

                                _______
                                

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

                              R E P O R T

                         [To accompany S. 2749]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 2749) to establish the California Trail 
Interpretive Center in Elko, Nevada, to facilitate the 
interpretation of the history of development and use of trails 
in the settling of the western portion of the United States, 
having considered the same, reports favorably thereon without 
amendment and recommends that the bill do pass.

                         purpose of the measure

    The purpose of S. 2749 is to authorize the Secretary of the 
Interior to establish the California Trail Interpretive Center 
near Elko, Nevada to interpret the history of development and 
use of the California Trail in settling the West.

                          background and need

    The California Trail, stretching from the Missouri River 
westward to the California frontier, was the route of the 
greatest mass migration in American history. The trail was used 
by settlers and prospectors as they made their way west during 
the mid-1800's, its use exploding with the discovery of gold in 
California in 1848. Over 300,000 people emigrated west along 
the California Trail.
    In 1992, the California National Historic Trail was 
established by Public Law 102-328 as a component of the 
National Trails System. National historic trails are extended 
trails of national historical significance which follow as 
closely as practicable the original trails or routes of travel. 
The primary purpose of national historic trails is the 
identification and protection of the historic route and its 
historic remnants and artifacts for public use and enjoyment. 
The National Trails System Act allows the establishment of 
interpretive centers and other facilities along trails in order 
to provide for public understanding and enjoyment.
    S. 2749 authorizes the Secretary of the Interior, acting 
through the Director of the Bureau of Land Management, to plan, 
construct and operate a visitor center along the California 
Trail, near the city of Elko, Nevada. The location is at the 
junction of the California Trail and the Hastings Cutoff, the 
route on which the ill-fated Donner Party wandered for 31 days, 
setting the stage for their tragic attempt to cross the Sierra 
Nevada.

                          legislative history

    S. 2749 was introduced by Senator Reid on June 19, 2000. 
The Subcommittee on National Parks, Historic Preservation and 
Recreation held a hearing on S. 2749 on September 14, 2000. At 
the business meeting on September 20, 2000, the Committee on 
Energy and Natural Resources ordered S. 2749 favorably 
reported.

                        committee recommendation

    The Committee on Energy and Natural Resources, in open 
business session on September 20, 2000, by a unanimous voice 
vote of a quorum present, recommends that the Senate pass S. 
2749.

                      section-by-section analysis

    Section 1 designates the bill's short title.
    Section 2 contains congressional findings and purposes.
    Section 3 provides definitions for key terms used in the 
legislation, including the term ``California Trail,'' which 
means the California National Historic Trail established under 
section 5(a)(18) of the National Trails System Act (16 U.S.C. 
1244(a)(18)).
    Section 4(a) authorizes the Secretary of the Interior 
(acting through the Director of the Bureau of Land Management) 
to establish the California Trail Interpretive Center (Center) 
near the city of Elko, Nevada.
    Subsection (b) requires the Secretary, in carrying out 
subsection (a), to consider the findings of the master plan 
study for the Center and to initiate a plan for the development 
of the Center.
    Subsection (c) authorizes the Secretary to: (1) acquire 
land and interests in land for the construction of the Center 
by donation, purchase with donated or appropriated funds, or 
exchange; (2) provide for local involvement concerning the 
development and operation of the Center by the Advisory Board 
for the National Historic California Emigrant Trails 
Interpretive Center; (3) periodically prepare a budget and 
funding request that allows a Federal agency to carry out the 
maintenance and operation of the Center; (4) to enter into 
cooperative agreements with the State to provide assistance in 
removal of snow from roads and for rescue, firefighting, and 
law enforcement, and with Federal, State, or local agencies to 
develop or operate facilities and services to carry out this 
legislation; and (5) to accept donations of funds, property, or 
services, including one-time contributions for the Center of $3 
million from the State of Nevada, $1 million from Elko County, 
Nevada, and $2 million from the city of Elko, Nevada.
    Section 5 authorizes the appropriation of $12 million to 
carry out this legislation.

                   cost and budgetary considerations

    The Congressional Budget Office cost estimate report had 
not been received at the time the report was filed. When the 
report becomes available, the Chairman will request that it 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. 2749. The bill is not a regulatory measure in 
the sense of imposing Government-established standard 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. 2749, as ordered reported.

                        executive communications

    On September 15, 2000, 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. 2749. These 
reports had not been received at the time the report on S. 2749 
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 Bureau 
of Land Management at the Subcommittee hearing follows:

 Statement of Henri Bisson, Assistant Director for Renewable Resources 
                and Planning, Bureau of Land Management

    Mr. Chairman, thank you for the opportunity to testify 
today on S. 2749. The Bureau of Land Management (BLM) supports 
with recommended modification this bill to establish the 
creation of the California Trail Interpretive Center in Elko, 
Nevada.
    During the 19th century westward movement, the occurrence 
of hot springs, combined with the availability of feed and 
fresh water, gave rise to the community which is today the City 
of Elko--a well-remembered location along the Overland Trail. 
Over 300,000 emigrants passed over this ground on their way 
west between 1840 and 1869. The emigrants traveling on the 
California Trail added to the population base for the 
development of the American west, and in so doing, their 
numbers discouraged England and Russia in their efforts to 
colonize the Pacific Coast. The early settlers of the State of 
Nevada were direct descendants of the emigrants who traveled 
the California Trail. This six-month journey from St. Joseph, 
Missouri, to the Central Valley of California covering 1,800 
miles, saw twice as many emigrants than all other trails 
combined. Today, few motorists on Interstate 80 know that they 
are traveling along the California Trail. In fact, when aerial 
photographs were taken during construction of Interstate 80 in 
the 1960s, well over a century after the emigrants had passed 
by, remnants of the wagon passage could still be identified. A 
few of those who passed by the future site of Elko on their way 
west later returned to the region, founding some of the oldest 
ranches in the county and what would become, in the words of 
the late journalist Lowell Thomas, ``the last real cow county 
of the West.''
    Today Elko is the economic hub of northeastern Nevada. 
Through an interpretive center such as the one proposed by this 
legislation, Americans will continue to learn about, and better 
understand, one of the most important phases of American 
history--the emigrant experience. Through that great migration, 
Americans populated the West and took the first steps toward 
creation of the great economic engines that exist today in 
California, Oregon, Washington and Nevada.
    The proposed site of the center is a 40-acre parcel located 
approximately 10 miles southwest of Elko near the Hunter 
Interchange of Interstate 80, the junction of California Trail 
and the Hastings Cutoff, which during the gold rush years of 
1849-1850 brought fortune seekers to the Humboldt River. The 
Humboldt River and the original Central & Western Pacific 
Railroad also cross this area. The Interpretive Center would 
support economic diversity within Elko County. This is a county 
where an economy, historically dependent upon livestock, 
ranching and mining, will clearly benefit from the tourism 
opportunity. Easy access from I-80 will entice tourists to stop 
and learn more of our nation's colorful history.
    Through strong community support, $6 million has been 
committed toward this project, of which the city of Elko and 
the County of Elko have committed $2,000,000 and $1,000,000, 
respectively. Additionally, the State of Nevada has committed 
$3,000,000. Congress previously authorized $250,000 for a 
feasibility study which will be completed by mid-December of 
this year. S. 2749, is the next logical step, representing 
Congress' commitment to working with the local partners making 
the Center a reality, by authorizing a $12 million federal 
share of the required funding. In addition, the State of 
Nevada's commitment is contingent upon federal funding.
    BLM has the expertise to manage and maintain this Center. 
To ensure the Center's efficient operation, we recommend that 
the bill be modified to include permanent authority for the BLM 
to accept, retain, and expend donations of funds, property, or 
services. We also recommend that the BLM receive permanent 
authority to collect an entrance fee from visitors and to use 
the amounts received from fees for expenses associated with the 
Center's operation. In addition to expected income in the form 
of visitor entrance fees authorized by the pilot fee 
demonstration program, there will be estimated annual operating 
costs of $900,000 for which additional operations and 
maintenance funding will be needed on an annual basis if the 
visitor center is to provide the educational, informational and 
management services envisioned. The land management priorities 
in Nevada are such that the annual operating cost of the Center 
could not be met at the current funding levels.
    This concludes my statement. I will 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, the Committee notes that no 
changes in existing law are made by the bill S. 2749, as 
ordered reported.

                                  
