[Senate Report 118-154]
[From the U.S. Government Publishing Office]


                                                       Calendar No. 306
                                                       
118th Congress }                                                { Report
                                 SENATE
 2d Session    }                                                { 118-154

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                         CONNECT OUR PARKS ACT

                                _______
                                

                January 9, 2024.--Ordered to be printed

                                _______
                                

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

                              R E P O R T

                         [To accompany S. 2018]

    The Committee on Energy and Natural Resources, to which was 
referred the bill (S. 2018) to require the Secretary of the 
Interior to conduct an assessment to identify locations in 
National Parks in which there is the greatest need for 
broadband internet access service and areas in National Parks 
in which there is the greatest need for cellular service, and 
for other purposes, having considered the same, reports 
favorably thereon with an amendment, in the nature of a 
substitute, and recommends that the bill, as amended, do pass.

                               AMENDMENT

    1. Strike all after the enacting clause and insert the 
following:

SEC. 1. SHORT TITLE.

    This Act may be cited as the ``Connect Our Parks Act''.

SEC. 2. BROADBAND INTERNET ACCESS SERVICE AND CELLULAR SERVICE 
                    ASSESSMENT AND PLANNING IN NATIONAL PARKS.

    (a) Definitions.--In this section:
          (1) Appropriate committees of congress.--The term 
        ``appropriate committees of Congress'' means--
                  (A) the Committee on Energy and Natural Resources of 
                the Senate;
                  (B) the Committee on Commerce, Science, and 
                Transportation of the Senate;
                  (C) the Committee on Natural Resources of the House 
                of Representatives; and
                  (D) the Committee on Energy and Commerce of the House 
                of Representatives.
          (2) Broadband internet access service.--The term ``broadband 
        internet access service'' has the meaning given the term in 
        section 8.1(b) of title 47, Code of Federal Regulations (or a 
        successor regulation).
          (3) Cellular service.--The term ``cellular service'' has the 
        meaning given the term in section 22.99 of title 47, Code of 
        Federal Regulations (or a successor regulation).
          (4) National park.--The term ``National Park'' means a unit 
        of the National Park System.
          (5) Secretary.--The term ``Secretary'' means the Secretary of 
        the Interior, acting through the Director of the National Park 
        Service.
    (b) Assessment.--
          (1) In general.--Not later than 1 year after the date of 
        enactment of this Act, the Secretary shall complete an 
        assessment of National Parks to identify--
                  (A) locations in National Parks in which there is the 
                greatest need for broadband internet access service, 
                based on the considerations described in paragraph 
                (2)(A); and
                  (B) areas in National Parks in which there is the 
                greatest need for cellular service, based on the 
                considerations described in paragraph (2)(B).
          (2) Considerations.--
                  (A) Broadband internet access service.--For purposes 
                of identifying locations in National Parks under 
                paragraph (1)(A), the Secretary shall consider, with 
                respect to each National Park, the availability of 
                broadband internet access service in--
                          (i) housing;
                          (ii) administrative facilities and related 
                        structures;
                          (iii) lodging;
                          (iv) developed campgrounds; and
                          (v) any other location within the National 
                        Park in which broadband internet access service 
                        is determined to be necessary by the 
                        superintendent of the National Park.
                  (B) Cellular service.--For purposes of identifying 
                areas in National Parks under paragraph (1)(B), the 
                Secretary shall consider, with respect to each National 
                Park, the availability of cellular service in any 
                developed area within the National Park that would 
                increase--
                          (i) the access of the public to emergency 
                        services and traveler information technologies; 
                        or
                          (ii) the communications capabilities of 
                        National Park Service employees.
          (3) Report.--On completion of the assessment under paragraph 
        (1), the Secretary shall submit to the appropriate committees 
        of Congress, and make available on the website of the 
        Department of the Interior, a report describing the results of 
        the assessment.
    (c) Plan.--
          (1) In general.--Not later than 3 years after the date of 
        enactment of this Act, the Secretary shall develop a plan, 
        based on the results of the assessment completed under 
        subsection (b) and subject to paragraph (4)--
                  (A) to install broadband internet access service 
                infrastructure in certain locations in National Parks; 
                and
                  (B) to install cellular service equipment and 
                infrastructure in certain areas of National Parks.
          (2) Consultation.--In developing the plan under paragraph 
        (1), the Secretary shall consult with--
                  (A) affected Indian Tribes; and
                  (B) local stakeholders that the superintendent of the 
                applicable National Park determines to be appropriate.
          (3) Requirements.--The plan developed under paragraph (1) 
        shall--
                  (A) provide for avoiding or minimizing impacts to--
                          (i) National Park viewsheds;
                          (ii) cultural and natural resources;
                          (iii) the visitor experience;
                          (iv) other resources or values of the 
                        National Park; and
                          (v) historic properties and the viewsheds of 
                        historic properties;
                  (B) provide for infrastructure providing broadband 
                internet access service or cellular service to be 
                located in--
                          (i) previously disturbed or developed areas; 
                        or
                          (ii) areas zoned for uses that would support 
                        the infrastructure;
                  (C) provide for the use of public-private 
                partnerships--
                          (i) to install broadband internet access 
                        service or cellular service equipment; and
                          (ii) to provide broadband internet access 
                        service or cellular service;
                  (D) be technology neutral; and
                  (E) in the case of broadband internet access service, 
                provide for broadband internet access service of at 
                least--
                          (i) a 100-Mbps downstream transmission 
                        capacity; and
                          (ii) a 20-Mbps upstream transmission 
                        capacity.
          (4) Limitation.--Notwithstanding paragraph (1), a plan 
        developed under that paragraph shall not be required to address 
        broadband internet access service or cellular service in any 
        National Park with respect to which the superintendent of the 
        National Park determines that there is adequate access to 
        broadband internet access service or cellular service, as 
        applicable.

                                PURPOSE

    The purpose of S. 2018 is to require the Secretary of the 
Interior to conduct an assessment to identify locations in 
units of the National Park System in which there is the 
greatest need for broadband internet access service or cellular 
service.

                          BACKGROUND AND NEED

    Many of America's National Park System units are located in 
remote areas in the United States where telecommunications 
services can be sparse or even non-existent. With more than 300 
million people visiting the National Park System every year, 
this can be a major public safety concern. In some cases, 
people in need of emergency assistance have no way to 
communicate that need. Increased access to cellular service can 
ensure that when an accident happens, the public will be able 
to contact emergency services. Increased access to cellular 
service will also benefit communications capabilities for park 
rangers, especially as many parks transition to advanced radio 
over internet protocol (RoIP) systems.
    Additionally, the National Park Service has identified the 
lack of quality internet access as a barrier to hiring and 
retaining qualified personnel. Because many staff members 
reside within park boundaries, an increase in high-speed 
internet may reduce that barrier to entry.
    To address these concerns, S. 2018 directs the Director of 
the National Park Service, within one year after the date of 
enactment, to complete an assessment of locations in units of 
the National Park System in which there is the greatest need 
for broadband internet access or cellular service.

                          LEGISLATIVE HISTORY

    S. 2018 was introduced by Senators Barrasso, King, Lummis, 
Lee, and Hyde-Smith on June 15, 2023. The Subcommittee on 
National Parks held a hearing on S. 2018 on June 21, 2023.

                        COMMITTEE RECOMMENDATION

    The Senate Committee on Energy and Natural Resources, in an 
open business session on September 21, 2023, by a voice vote of 
a quorum present, recommends that the Senate pass S. 2018, if 
amended as described herein.

                          COMMITTEE AMENDMENT

    During its consideration of S. 2018, the committee adopted 
an amendment in the nature of a substitute, incorporating 
recommended edits from the National Park Service. The amendment 
clarifies the definition of a national park to mean a unit of 
the National Park System, and not just those areas designated 
as a ``national park.'' Second, it increases the timeframe to 
develop an assessment from 180 days to 1 year after the date of 
enactment, and it increases the timeframe to develop the plan 
from 2 years to 3 years after the date of enactment. Third, it 
includes a requirement that the National Park Service consult 
with affected Indian Tribes, in addition to local stakeholders, 
when developing the plan. Finally, the amendment requires that 
any infrastructure for service be located in previously 
developed areas.
    The amendment is explained in detail in the section-by-
section analysis, below.

                      SECTION-BY-SECTION ANALYSIS

Section 1. Short title

    Section 1 provides the short title of the bill, the 
``Connect Our Parks Act''.

Section 2. Broadband internet access service and cellular service 
        assessment and planning in national parks

    Subsection (a) defines key terms used in the bill.
    Subsection (b) requires the Secretary of the Interior 
(Secretary), within one year after the date of enactment of 
this Act, to complete an assessment of units of the National 
Park System to identify locations in which there is the 
greatest need for broadband internet access service or cellular 
service based on certain considerations. It also requires the 
Secretary to complete a report describing the results of the 
assessment.
    Subsection (c) directs the Secretary, not later than 3 
years after the date of enactment, to develop a plan based on 
the results of the assessment to install broadband or cellular 
service. In developing the plan, the Secretary is required to 
consult with affected Indian Tribes and local stakeholders. The 
subsection identifies requirements for the plan, including 
avoiding or minimizing impacts to park viewsheds, cultural and 
natural resources, visitor experience, and other park resources 
and values.

                   COST AND BUDGETARY CONSIDERATIONS

    The Committee has requested, but has not yet received, the 
Congressional Budget Office's estimate of the cost of S. 2018 
as ordered reported. When the Congressional Budget Office 
completes its cost estimate, it will be posted on the Internet 
at www.cbo.gov.

                      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. 2018. 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 S. 2018, as ordered reported.

                   CONGRESSIONALLY DIRECTED SPENDING

    S. 2018, as ordered reported, does not contain any 
congressionally directed spending items, limited tax benefits, 
or limited tariff benefits as defined in rule XLIV of the 
Standing Rules of the Senate.

                        EXECUTIVE COMMUNICATIONS

    The testimony provided by the Department of the Interior at 
the June 21, 2023, hearing on S. 2018 follows:

 Statement of Michael A. Caldwell, Associate Director, Park Planning, 
 Facilities, and Lands, National Park Service, U.S. Department of the 
                                Interior

    Chairman King, Ranking Member Daines, and members of the 
Subcommittee, thank you for the opportunity to present the 
Department of the Interior's views on S. 2018, a bill to 
require the Secretary of the Interior to conduct an assessment 
to identify locations in National Parks in which there is the 
greatest need for broadband internet access service and areas 
in National Parks in which there is the greatest need for 
cellular service, and for other purposes.
    The Department supports the goal of S. 2018 to better 
understand and prioritize the broadband internet and cellular 
service needs of the National Park Service. However, because 
this bill was only recently introduced, the Department would 
appreciate having more time to evaluate the bill and work with 
the sponsor and Committee on amendments.
    S. 2018 would direct the Secretary of the Interior, acting 
through the Director of the National Park Service (NPS), to 
conduct an assessment of national parks to determine where 
there is the greatest need for broadband internet access 
service and cellular service. For broadband internet access 
service, the assessment would consider availability in housing, 
administrative facilities, campgrounds, and locations where 
that service is determined to be necessary. For cellular 
service, the assessment would consider areas that would 
increase the access of the public to emergency services, or the 
communications capabilities of National Park Service employees.
    S. 2018 would also direct the Secretary to develop a plan, 
based on the results of the assessment, to install broadband 
internet access and cellular service infrastructure in national 
parks. Requirements of the plan would include consultation with 
local stakeholders, provide for minimal disruptions to park 
resources, and provide for the use of public-private 
partnerships among other requirements.
    More than 400 units of the National Park System stretch 
from Guam to the Virgin Islands and from Alaska to Florida 
across the United States. While some parks are located in or 
near developed areas, others are in or near remote wilderness. 
The diversity in landscapes means that internet access and cell 
phone service vary in different parks--and can even be 
inconsistent within the boundaries of an individual park. Due 
to the remoteness of some parks, costs to provide internet and 
cellular service can be quite high, regardless of whether the 
agency or a provider takes on those costs.
    The NPS provides free Wi-Fi internet service at some 
visitor centers and other facilities around the country. In 
addition, many concession operations in parks, such as lodges 
and restaurants, provide some form of internet for visitors, 
either for free or for an additional charge.
    The NPS is acting in support of Executive Order 13821, 
Streamlining and Expediting Requests to Locate Broadband 
Facilities in Rural America, and the Presidential Memorandum, 
Supporting Broadband Tower Facilities in Rural America on 
Federal Properties Managed by the Department of the Interior. 
The NPS has created a Right-of-Way (ROW) webpage to provide 
more information for individuals and companies interested in 
applying for ROW permits from the bureau, including to provide 
internet and cellular service. It holds a bi-annual internal 
training on ROW permitting process for headquarters, region, 
and park staff. The NPS has a national ROW permitting team and 
a ROW coordinator in each region to support parks in processing 
ROW permit applications.
    All bureaus of the Department coordinate to maintain a web-
based mapping application that allows users to see locations of 
existing federal broadband infrastructure, filter data, and add 
layers for analysis.
    While the Department believes the assessment and plan 
required under this bill could be useful in focusing the NPS's 
efforts on its greatest internet and cellular service needs, we 
recommend amending S. 2018 in a few areas.
    First, as defined in S. 2018, the term ``National Park'' 
means a unit of the National Park System that is designated as 
a ``national park''. While we understand that the focus of this 
bill is increasing internet and cellular access in the more 
expansive and remote parks, there are many units designated as 
``national recreation area'', ``national preserve'', or similar 
titles that have the same access issues that many of our large 
remote units designated as ``national parks'' have. To conduct 
the assessment and prepare the plan proposed by this 
legislation fairly, we believe that all units should be 
included. To achieve this, we recommend amending the bill's 
definition of ``National Park'' to include all units of the 
National Park System.
    Second, we are concerned that the bill's timeframes of 180 
days and two years would not be sufficient to complete the 
assessment and plan, respectively, with existing resources. We 
recommend that the bill be amended to extend these timeframes.
    Third, the bill requires consultation with parks' local 
stakeholders in developing the plan. We recommend that Tribes 
be explicitly included as consulting parties on the plan as 
well.
    Finally, we have a number of suggested technical edits and, 
as mentioned previously, we may have additional recommendations 
upon further evaluation of S. 2018. The Department welcomes the 
opportunity to work with the bill's sponsor and the Committee 
on these amendments before the Committee acts on the bill.
    Chairman King, this concludes my statement. I would be 
pleased to answer any questions you or other members of the 
Subcommittee 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 S. 2018 as ordered 
reported.