[Senate Report 107-263]
[From the U.S. Government Publishing Office]



                                                       Calendar No. 580
107th Congress                                                   Report
                                 SENATE
 2d Session                                                     107-263

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



 
        METACOMET-MONADNOCK-MATTABESETT TRAIL STUDY ACT OF 2001

                                _______
                                

               September 9, 2002.--Ordered to be printed

                                _______
                                

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

                              R E P O R T

                        [To accompany H.R. 1814]

    The Committee on Energy and Natural Resources, to which was 
referred the Act (H.R. 1814) to amend the National Trails 
System Act to designate the Metacomet-Monadnock-Mattabesett 
Trail extending through western Massachusetts and central 
Connecticut for study for potential addition to the Natural 
Trails System, having considered the same, reports favorably 
thereon without amendment and recommends that the Act do pass.

                                Purpose

    The purpose of H.R. 1814 is to amend the National Trails 
System Act to study the Metacomet-Monadnock-Mattabesett Trail, 
a system of trails and potential trails extending southward 
approximately 180 miles through western Massachusetts and 
central Connecticut, for potential addition to the National 
Trails System

                          Background and Need

    H.R. 1814 authorizes the Secretary of the Interior to study 
the feasibility of designating existing and proposed segments 
of a 250-mile trail in New England as part of the National 
Trails System.
    The proposed ``Metacomet-Monadnock-Sunapee-Mattabesett 
Trail'' would connect existing portions of the Blue-Blazed 
Hiking Trail, and would travel in a north-south direction 
through western New Hampshire, western Massachusetts, and 
central Connecticut. The trail would stretch from a location 
near Mount Cube in Grafton County, New Hampshire, to Long 
Island Sound east of New Haven, Connecticut. The proposed trail 
would largely follow existing trails, uniting the Monadnock-
Sunapee-Greenway Trail in New Hampshire, with the Metacomet-
Monadnock Trail in Massachusetts and Connecticut, and the 
Mattabesett Trail in Connecticut. Several additional trail 
segments would need to be developed to complete the various 
components, the longest being in New Hampshire connecting the 
Appalachian Trail to the top of Mount Sunapee, and in 
Connecticut linking the Mattabesett Trail to Long Island Sound.
    At this time, only 25 percent of the land underlying the 
proposed trail is publicly owned, while the remaining lands are 
privately owned. Current arrangements with landowners allow the 
trail to cross private land. If the trail is designated part of 
the National Trail System, the National Park Service would need 
to secure new agreements to continue public access across these 
lands.
    The proposed trail would provide hiking and recreational 
opportunities within a heavily populated region. Secretary 
Norton designated two sections of the Metacomet-Monadnock Trail 
as a national recreation trail in recognition of the 
outstanding scenic features, geological formations, and natural 
and cultural resources located along the trail.

                          Legislative History

    H.R. 1814 was introduced by Representative Olver on May 10, 
2001. The House of Representatives passed the bill by a voice 
vote on October 23, 2001. A companion measure, S. 1609, was 
introduced by Senators Kerry, Kennedy, Lieberman, and Dodd on 
November 1, 2001. The Subcommittee on National Parks held a 
hearing on H.R. 1814 and S. 1609 on June 20, 2002. At the 
business meeting on July 31, 2002, the Committee on Energy and 
Natural Resources ordered H.R. 1814 favorably reported.

                        Committee Recommendation

    The Committee on Energy and Natural Resources, in open 
business session on July 31, 2002, by a voice vote of a quorum 
present, recommends that the Senate pass H.R. 1814.

                      Section-by-Section Analysis

    Section 1 designates the bill's title as ``Metacomet-
Monadnock-Mattabesett Trail Study Act of 2001.''
    Section 2 designates the Metacomet-Monadnock-Mattabesett 
Trail for study for potential addition to the National Trails 
System.
    Section 3 directs the Secretary of the Interior to submit 
the study to Congress not later than 2 years after enactment of 
the legislation, notwithstanding the 3-year time frame set 
forth in section 5(b) of the National Trails System Act.

                   Cost and Budgetary Considerations

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

                                     U.S. Congress,
                               Congressional Budget Office,
                                    Washington, DC, August 8, 2002.
Hon. Jeff Bingaman,
Chairman, Committee on Energy and Natural Resources,
U.S. Senate, Washington, DC.
    Dear Mr. Chairman: The Congressional Budget Office has 
prepared the enclosed cost estimate for H.R. 1814, the 
Metacomet-Monadnock-Mattabesett Trail Study Act of 2001.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact for this 
estimate is Deborah Reis.
            Sincerely,
                                          Barry B. Anderson
                                    (For Dan L. Crippen, Director).
    Enclosure.

H.R. 1814--Metacomet-Monadnock-Mattabesett Trail Study Act of 2001

    H.R. 1814 would amend the National Trails System Act to add 
a network of trails in the northeastern United States to the 
list of routes to be studied for possible inclusion in the 
National Trails System. The Secretary of the Interior would 
have two years to conduct a study of the 180-mile Metacomet-
Monadnock-Mattabesett Trail system in Massachusetts and 
Connecticut.
    Based on information provided by the National Park Service 
and assuming appropriation of the necessary amount, CBO 
estimates that it would cost the federal government $270,000 
over the next two years to conduct the required study and 
report to the Congress on its findings. H.R. 1814 would not 
affect direct spending or receipts; therefore, pay-as-you-go 
procedures would not apply. The legislation contains no 
intergovernmental or private-sector mandates as defined in the 
Unfunded Mandates Reform Act and would impose no costs on 
state, local, or tribal governments.
    On September 21, 2001, CBO transmitted a cost estimate for 
H.R. 1814 as ordered reported by the House Committee on 
Resources on September 12, 2001. The two versions of the 
legislation are identical, as are the cost estimates.
    The CBO staff contact for this estimate is Deborah Reis. 
The 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 H.R. 1814. 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 H.R. 1814, as ordered reported.

                        Executive Communications

    The pertinent legislative report received by the Committee 
from the Department of the Interior setting forth Executive 
agency recommendations relating to H.R. 1814 is set forth 
below:

                   U.S. Department of the Interior,
                                   Office of the Secretary,
                                     Washington, DC, July 25, 2002.
Hon. Jeff Bingaman,
Chairman, Committee on Energy and Natural Resources,
U.S. Senate, Washington, DC.
    Dear Mr. Chairman: This letter sets forth the views of the 
Department of the Interior on S. 1609 and H.R. 1814, Metacomet-
Monadnock-Matabesett Trail Study Act of 2001.
    The Department supports this study, with a technical 
amendment noted at the end of this letter. However, we did not 
request additional funding for this study in fiscal year 2003. 
We believe that any funding requested should be directed 
towards completing previously authorized studies. There are 34 
studies pending currently, of which we hope to transmit at 
least four to Congress by the end of 2002. To meet the 
President's Initiative to eliminate the deferred maintenance 
backlog, we must continue to focus our resources on caring for 
existing areas in the National Park System. We caution that our 
support of this legislation authorizing a study does not 
necessarily mean that the Department will support designations 
of these segments as additions to the National Trails System.
    The purpose of both bills is to conduct a study to 
determine the suitability for inclusion in the National Trails 
System of this 180-mile extended trail, which could eventually 
connect the Metacomet-Monadnock Trail in Western Massachusetts 
with Long Island Sound in Connecticut. The Trail would largely 
follow existing trails linking the Metacomet-Monadnock Trail in 
Massachusetts and Connecticut, to the Mattabesett Trail in 
Connecticut. New trail sections would need to be developed in 
Connecticut linking the Mattabesett Trail to Long Island Sound. 
Other shorter gaps would also be filed. The great majority of 
this trail is located on private land. Outside of sections of 
trail on state lands, the trail currently is permitted to cross 
private land through a variety of agreements with the 
landowners. As part of this study, these agreements should be 
examined to ensure that the National Park Service works 
cooperatively with private landowners in an effort to continue 
public access across these private lands if the trail is 
designated.
    Although the region was heavily traveled by Native 
Americans, for whom the trails have been named, it is not an 
historic route. Each section was conceived and built by local 
trail enthusiasts and much of the work was initiated in the 
late 1950's. The Connecticut Forest and Park Association has 
been the primary steward of the Mattabesett Trail and the 
Connecticut portion of the Metacomet Trail. The Appalachian 
Mountain Club, through its Berkshire Chapter, has picked up the 
responsibility for the Metacomet-Monadnock Trail in 
Massachusetts. Organized volunteers provide the management and 
maintenance for each trail segment. If the trail was designated as part 
of the National Trails System, then existing trail clubs would be given 
the opportunity to assume a leadership role in working with landowners 
and communities to address any concerns they may have.
    The existing sections of this proposed trail have similar 
scenic and recreational characteristics to the segments of the 
Appalachian National Scenic Trail in Massachusetts and 
Connecticut. The trails provide for a rare opportunity for 
multi-day, overnight hiking trips in highly populated 
Connecticut and Massachusetts. In Connecticut and 
Massachusetts, the state governments and well-established 
trails organizations have made substantial commitments to the 
existing trail sections. Our experience with other national 
scenic and historic trails shows that trail clubs can and 
should assume a leadership role in working with landowners and 
communities, addressing their concerns to make their trails 
successful. The opportunity for good partnering exists in both 
states and is worthy of further exploration.
    In June 2001, Secretary Gale Norton designated two sections 
of the Metacomet-Monadnock Trail as a national recreation 
trail, recognizing the outstanding scenic features, geological 
formations, and natural and cultural resources along the route. 
There are well over 800 national recreation trails in the 
National Trails System. The designation as a national trail 
proposed in S. 1609 and H.R. 1814 would, if successful, provide 
more extensive Federal involvement, through the authorities of 
the National Trails System Act for this chain of trails.
    The National Park Service supports this proposed study, as 
the existing trail segments possess many of the characteristics 
required of a national scenic trail. Only through further 
investigation will it be possible to determine if it is 
feasible and suitable for inclusion in the National Trails 
System. Furthermore, in order to better plan for the future of 
our national parks, we believe that any such studies should 
carefully examine the full life cycle operation and maintenance 
costs that would result from each alternative considered.
    If this legislation is enacted and funds are available, the 
National Park Service would launch a study of the existing and 
proposed trails segments to evaluate the support for the trail, 
the impacts of federal involvement on the communities and 
private property it passes through, and the resources that 
would be opened for public use. The study would take 
approximately three years to complete and would, at a minimum, 
follow the requirements listed in section 5(b) of the National 
Trails System Act. Through this process, the National Park 
Service looks forward to working with and hearing the valuable 
input of the hundreds of communities that these trails cross in 
Massachusetts and Connecticut.
    The long title of S. 1609 refers to conducting a study on 
the feasibility of designating the Metacomet-Monadnock-
Mattabesett Trail as a national historic trail. We would like 
to clarify that this trail has the potential to be a national 
scenic trail, instead of a national historic trail, and 
recommend amending the long title accordingly.
    The Office of Management and Budget advises that there is 
no objection to the presentation of this report from the 
standpoint of the Administration's program.
            Sincerely,
                                              Craig Manson,
               Assistant Secretary for Fish and Wildlife and Parks.

                        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 Act H.R. 1814, 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):

                     A. NATIONAL TRAILS SYSTEM ACT


             (Public Law 90-543; Approved October 2, 1968)


  AN ACT To establish a national trails system, and for other purposes

    Be it enacted by the Senate and House of Representatives of 
the United States of America in Congress assembled,

                              SHORT TITLE

    Section 1. This Act may be cited as the ``National Trails 
System Act''.

           *       *       *       *       *       *       *


             NATIONAL SCENIC AND NATIONAL HISTORICAL TRAILS

    Sec. 5. (a) National scenic and national historic trails 
shall be authorized and designated only by Act of Congress. 
There are hereby established the following National Scenic and 
National Historic Trails:

           *       *       *       *       *       *       *

    (c) The following routes shall be studied in accordance 
with the objectives outlined in subsection (b) of this section:

           *       *       *       *       *       *       *

          (39) * * *
    (______ ) Metacomet-Monadnock-Mattabesett Trail.--The 
Metacomet-Monadnock-Mattabesett Trail, a system of trails and 
potential trails extending southward approximately 180 miles 
through western Massachusetts on the Metacomet-Monadnock Trail, 
across central Connecticut on the Metacomet Trail and the 
Mattabesett Trail, and ending at Long Island Sound.

           *       *       *       *       *       *       *


                                  
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