[House Report 115-927]
[From the U.S. Government Publishing Office]
115th Congress } { Report
HOUSE OF REPRESENTATIVES
2d Session } { 115-927
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RECONSTRUCTION ERA NATIONAL HISTORICAL PARK ACT
_______
September 7, 2018.--Committed to the Committee of the Whole House on
the State of the Union and ordered to be printed
_______
Mr. Bishop of Utah, from the Committee on Natural Resources, submitted
the following
R E P O R T
[To accompany H.R. 5532]
[Including cost estimate of the Congressional Budget Office]
The Committee on Natural Resources, to whom was referred
the bill (H.R. 5532) to redesignate the Reconstruction Era
National Monument as the Reconstruction Era National Historical
Park, and for other purposes, having considered the same,
report favorably thereon with an amendment and recommend that
the bill as amended do pass.
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Reconstruction Era National Historical
Park Act''.
SEC. 2. RECONSTRUCTION ERA NATIONAL HISTORICAL PARK.
(a) Definitions.--In this section:
(1) Historical park.--The term ``historical park'' means the
Reconstruction Era National Historical Park.
(2) Map.--The term ``map'' means the maps entitled
``Reconstruction Era National Monument Old Beaufort
Firehouse,'' numbered 550/135,755 and dated January 2017;
``Reconstruction Era National Monument Darrah Hall and Brick
Baptist Church,'' numbered 550/135,756 and dated January 2017;
and ``Reconstruction Era National Monument Camp Saxton,''
numbered 550/135,757 and dated January 2017, collectively.
(3) Network.--The term ``Network'' means the Reconstruction
Era National Historic Network established pursuant to this Act.
(4) Secretary.--The term ``Secretary'' means the Secretary of
the Interior.
(b) Establishment.--
(1) Redesignation of reconstruction era national monument.--
(A) In general.--The Reconstruction Era National
Monument is redesignated as the Reconstruction Era
National Historical Park, as generally depicted on the
map.
(B) Availability of funds.--Any funds available for
the purposes of the Reconstruction Era National
Monument shall be available for the purposes of the
historical park.
(C) References.--Any references in a law, regulation,
document, record, map, or other paper of the United
States to the Reconstruction Era National Monument
shall be considered to be a reference to the historical
park.
(2) Boundary expansion.--
(A) Beaufort national historic landmark district.--
Subject to subparagraph (D), the Secretary is
authorized to acquire land or interests in land within
the Beaufort National Historic Landmark District that
has historic connection to the Reconstruction Era. Upon
finalizing an agreement to acquire land, the Secretary
shall expand the boundary of the historical park to
encompass the property.
(B) St. helena island.--Subject to subparagraph (D),
the Secretary is authorized to acquire the following
and shall expand the boundary of the historical park to
include acquisitions under this authority:
(i) Land and interests in land adjacent to
the existing boundary on St. Helena Island,
South Carolina, as reflected on the map.
(ii) Land or interests in land on St. Helena
Island, South Carolina, that has a historic
connection to the Reconstruction Era.
(C) Camp saxton.--Subject to subparagraph (D), the
Secretary is authorized to accept administrative
jurisdiction of Federal land or interests in Federal
land adjacent to the existing boundary at Camp Saxton,
as reflected on the map. Upon finalizing an agreement
to accept administrative jurisdiction of Federal land
or interests in Federal land, the Secretary shall
expand the boundary of the historical park to encompass
that Federal land or interests in Federal land.
(D) Land acquisition authority.--The Secretary may
only acquire land under this Act by donation, exchange
or purchase with donated funds.
(c) Administration.--
(1) In general.--The Secretary shall administer the
historical park in accordance with this Act and with the laws
generally applicable to units of the National Park System.
(2) Management plan.--If the management plan for the
Reconstruction Era National Monument--
(A) has not been completed on or before the date of
enactment of this Act, the Secretary shall incorporate
all provisions of this Act into the planning process
and complete a management plan for the historical park
within 3 years; and
(B) has been completed on or before the date of
enactment of this Act, the Secretary shall update the
plan incorporating the provisions of this Act.
SEC. 3. RECONSTRUCTION ERA NATIONAL HISTORIC NETWORK.
(a) In General.--The Secretary shall--
(1) establish, within the National Park Service, a program to
be known as the ``Reconstruction Era National Historic
Network'';
(2) not later than 1 year after the date of the enactment of
this Act, solicit proposals from sites interested in being a
part of the Network; and
(3) administer the Network through the Reconstruction Era
National Historical Park.
(b) Duties of Secretary.--In carrying out the Network, the Secretary
shall--
(1) review studies and reports to complement and not
duplicate studies of the historical importance of
Reconstruction Era that may be underway or completed, such as
the National Park Service Reconstruction Handbook and the
National Park Service Theme Study on Reconstruction;
(2) produce and disseminate appropriate educational and
promotional materials relating to the Reconstruction Era and
the sites in the network, such as handbooks, maps, interpretive
guides, or electronic information;
(3) enter into appropriate cooperative agreements and
memoranda of understanding to provide technical assistance;
(4)(A) create and adopt an official, uniform symbol or device
for the Network; and
(B) issue regulations for the use of the symbol or device
adopted under subparagraph (A); and
(5) conduct research relating to Reconstruction and the
Reconstruction Era.
(c) Elements.--The Network shall encompass the following elements--
(1) all units and programs of the National Park Service that
are determined by the Secretary to relate to the Reconstruction
Era;
(2) other Federal, State, local, and privately owned
properties that the Secretary determines--
(A) relate to the Reconstruction Era; and
(B) are included in, or determined by the Secretary
to be eligible for inclusion in, the National Register
of Historic Places; and
(3) other governmental and nongovernmental sites, facilities,
and programs of an educational, research, or interpretive
nature that are directly related to the Reconstruction Era.
(d) Cooperative Agreements and Memoranda of Understanding.--To
achieve the purposes of this Act and to ensure effective coordination
of the Federal and non-Federal elements of the Network and units and
programs of the National Park Service, the Secretary may enter into
cooperative agreements and memoranda of understanding with, and provide
technical assistance to, the heads of other Federal agencies, States,
units of local government, regional governmental bodies, and private
entities.
(e) Network Defined.--The term ``Network'' means the Reconstruction
Era National Historic Network established pursuant to this Act.
PURPOSE OF THE BILL
The purpose of H.R. 5532 is to redesignate the
Reconstruction Era National Monument as the Reconstruction Era
National Historical Park.
BACKGROUND AND NEED FOR LEGISLATION
The years following the Civil War, known as the
Reconstruction Era, were a time of significant transformation
for the United States. Reconstruction addressed how the 11
States that had seceded from the Union would be re-integrated,
as well as how the civil rights and integration into free
society of four million formerly enslaved individuals could be
secured. Intense controversy and even violence erupted over
these issues.
During Reconstruction, Congress passed three constitutional
amendments that permanently abolished slavery, defined
birthright citizenship, guaranteed equal protection under the
law, and prohibited voter discrimination based on race, color,
or previous condition of servitude (13th, 14th, and 15th
amendments).\1\ Congress also established the Freedmen's Bureau
to undertake needed relief efforts and assist newly freed
individuals with reaching full citizenship. With the assistance
of the Bureau, African Americans established schools and
independent churches, negotiated employment contracts, began
voting, and were elected to political office.\2\
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\1\``Landmark Legislation: Thirteenth, Fourteenth, & Fifteenth
Amendments''. The Civil War--The Senate's Story. United States Senate
website. https://www.senate.gov/artandhistory/history/common/generic/
CivilWarAmendments.htm
\2\``African American Records: Freedmen's Bureau''. National
Archives. https://www.archives.gov/research/african-americans/
freedmens-bureau
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Many in the South, however, believed that these new
official actions had been illegally imposed on them by the
government and amplified their resistance. Election fraud and
State laws passed to circumvent equal voting rights resulted in
disenfranchisement for African Americans. Some Southern whites
resorted to intimidation and violence to restore the antebellum
social order.\3\ For a brief time, the U.S. Army was used to
protect the rights of new voters and quell violence. In the
late 1870s and 1880s, as Congress grew wary of using military
force to enforce African American rights, the political tides
turned and the Reconstruction Era came to a close.
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\3\``The Era of Reconstruction 1861-1900''. A National Historic
Landmarks Theme Study. National Park Service. https://www.nps.gov/nhl/
learn/themes/Reconstruction.pdf
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The Reconstruction Era National Monument was established in
January 2017 as a unit of the National Park System by a
proclamation issued by President Obama under the Antiquities
Act (54 U.S.C. 320301). It consists of a collection of
federally-owned historic sites located in Beaufort County,
South Carolina--an area that has been called the birthplace of
Reconstruction.\4\ For example, Beaufort County was home to the
``Port Royal Experiment'' initiated in 1861, just months after
the Civil War began. With the backing of President Lincoln and
the assistance of Northern charity organizations, 10,000 former
slaves were allocated land and worked to build a new community
at this site.\5\ In and around Beaufort County during
Reconstruction, some of the first African Americans enlisted as
soldiers and founded the first African American schools and
hospitals. Beaufort was also the home of Robert Smalls, a
former slave who became a political leader--serving on two
State constitutional conventions, in the State legislature, and
in the U.S. Congress.\6\
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\4\Presidential Proclamation 9567, January 12, 2017.
``Establishment of the Reconstruction Era National Monument''. https://
www.gpo.gov/fdsys/pkg/DCPD-201700017/pdf/DCPD-201700017.pdf
\5\``Port Royal Experiment''. VCU Libraries Social Welfare History
Project. Virginia Commonwealth University. https://
socialwelfare.library.vcu.edu/eras/civil-war-reconstruction/port-royal-
experiment/
\6\``Reconstruction Era'' brochure. Reconstruction Era National
Monument. National Park Service. https://www.nps.gov/reer/
planyourvisit/upload/REER-Site-Bulletin-Final_3_08_2016.pdf
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The National Park Service completed a theme study on the
Reconstruction Era in 2017. The report reiterated the
significance of historic sites in Beaufort County that were
already listed as National Historic Landmarks and supported the
decision to designate the sites as the Reconstruction Era
National Monument. The report also recommended other locations
in Beaufort County that could be considered for further study
to evaluate their significance and integrity for possible
nomination as National Historic Landmarks.\7\
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\7\``The Era of Reconstruction 1861-1900''. A National Historic
Landmarks Theme Study. National Park Service. https://www.nps.gov/nhl/
learn/themes/Reconstruction.pdf
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H.R. 5532 designates the Reconstruction Era National
Monument as the Reconstruction Era National Historical Park to
provide more permanent recognition of the site. The bill also
establishes the Reconstruction Era National Historic Network,
much like the National Underground Railroad Network to Freedom
to coordinate preservation and education efforts nationwide and
integrate local historical places, museums and interpretative
programs.
COMMITTEE ACTION
H.R. 5532 was introduced on April 17, 2018, by Congressman
James E. Clyburn (D-SC). The bill was referred to the Committee
on Natural Resources, and within the Committee to the
Subcommittee on Federal Lands. On July 17, 2018, the
Subcommittee held a hearing on the legislation. On July 18,
2018, the Natural Resources Committee met to consider the bill.
The Subcommittee was discharged by unanimous consent.
Congressman Rob Bishop (R-UT) offered an amendment designated
#1; it was adopted by unanimous consent. No additional
amendments were offered and the bill, as amended, was ordered
favorably reported to the House of Representatives by unanimous
consent.
COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS
Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of
rule XIII of the Rules of the House of Representatives, the
Committee on Natural Resources' oversight findings and
recommendations are reflected in the body of this report.
COMPLIANCE WITH HOUSE RULE XIII AND CONGRESSIONAL BUDGET ACT
1. Cost of Legislation and the Congressional Budget Act.
With respect to the requirements of clause 3(c)(2) and (3) of
rule XIII of the Rules of the House of Representatives and
sections 308(a) and 402 of the Congressional Budget Act of
1974, the Committee has received the following estimate for the
bill from the Director of the Congressional Budget Office:
U.S. Congress,
Congressional Budget Office,
Washington, DC, August 30, 2018.
Hon. Rob Bishop,
Chairman, Committee on Natural Resources,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for H.R. 5532, the
Reconstruction Era National Historical Park Act.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Janani
Shankaran.
Sincerely,
Keith Hall,
Director.
Enclosure.
H.R. 5532--Reconstruction Era National Historical Park Act
H.R. 5532 would redesignate the Reconstruction Era National
Monument in Beaufort County, South Carolina, as the
Reconstruction Era National Historical Park. The bill also
would direct the National Park Service (NPS) to establish the
Reconstruction Era National Historic Network, which would
comprise existing units and programs of the NPS related to the
history of the Reconstruction Era as well as the properties and
programs of other federal, state, local, and private entities
that join the network.
Redesignating the Reconstruction Era National Monument may
require the NPS to update maps, informational materials, and
signage. Based on the costs of similar tasks, CBO estimates
that those costs would be insignificant. The bill also would
permit the NPS to acquire additional lands for that park by
means of donation, purchase using donated funds, or through a
land exchange. CBO has no information on whether the NPS would
expand the park; however, based on the experience of other NPS
units, CBO expects that any such expansion would not occur for
several years, and any associated management costs would be
less than $500,000 over the 2019-2023 period.
As part of establishing the Reconstruction Era National
Historic Network, the NPS would produce and distribute maps and
interpretive guides, create and adopt an official symbol for
the network, and provide assistance to participating entities.
Using information from the NPS about the costs of administering
similar efforts and based on the expected scope of the program,
CBO estimates that the agency would need less than $500,000 in
the first year following enactment for basic planning,
developing educational materials, and coordinating activities
with participating entities. In subsequent years, CBO estimates
that the NPS would need about $1 million each year to manage
the network and provide technical assistance to participating
entities through cooperative agreements.
In total, CBO estimates that implementing H.R. 5532 would
cost $5 million over the 2019-2023 period; such spending would
be subject to the availability of appropriated funds.
Enacting H.R. 5532 would not affect direct spending or
revenues; therefore, pay-as-you-go procedures do not apply.
CBO estimates that enacting H.R. 5532 would not increase
net direct spending or on-budget deficits in any of the four
consecutive 10-year periods beginning in 2029.
H.R. 5532 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act.
The CBO staff contact for this estimate is Janani
Shankaran. The estimate was reviewed by H. Samuel Papenfuss,
Deputy Assistant Director for Budget Analysis.
2. General Performance Goals and Objectives. As required by
clause 3(c)(4) of rule XIII, the general performance goal or
objective of this bill is to redesignate the Reconstruction Era
National Monument as the Reconstruction Era National Historical
Park.
EARMARK STATEMENT
This bill does not contain any Congressional earmarks,
limited tax benefits, or limited tariff benefits as defined
under clause 9(e), 9(f), and 9(g) of rule XXI of the Rules of
the House of Representatives.
COMPLIANCE WITH PUBLIC LAW 104-4
This bill contains no unfunded mandates.
COMPLIANCE WITH H. RES. 5
Directed Rule Making. This bill does not contain any
directed rule makings.
Duplication of Existing Programs. This bill does not
establish or reauthorize a program of the federal government
known to be duplicative of another program. Such program was
not included in any report from the Government Accountability
Office to Congress pursuant to section 21 of Public Law 111-139
or identified in the most recent Catalog of Federal Domestic
Assistance published pursuant to the Federal Program
Information Act (Public Law 95-220, as amended by Public Law
98-169) as relating to other programs.
PREEMPTION OF STATE, LOCAL OR TRIBAL LAW
This bill is not intended to preempt any State, local or
tribal law.
CHANGES IN EXISTING LAW
If enacted, this bill would make no changes in existing
law.
[all]